, 
 
 R K F O R T 
 
 OF THE 
 
 OF THE 
 
 STATE OF MICHIGAN. 
 
 BY AUTHORITY, 
 
 LANSING: 
 
 W: S. GEORGE & CO., PRINTERS TO THE STATE 
 1871 . 
 

R E P O R T 
 
 OF THE 
 
 Will 
 
 PINAL REFORMATORY, AMI CHARITABLE INSTITUTIONS 
 
 OF THE 
 
 STATE OF MICHIGAN. 
 
 LANSING: 
 
 'V- s. GEORGE (t CO., PRINTERS TO THE STATE 
 1871. 
 
) REPORT. 
 
 To His Excellency Henky P. Baldwin, 
 
 Governor of the State of Michigan : 
 
 The undersigned, Commissioners appointed by your Excel- 
 lency under joint resolutions of the Senate and House of 
 Representatives, approved April 3d, A. D. 1869, to examine 
 the discipline and general management of the penal, reforma- 
 tory, and charitable institutions of the State, and report plans 
 and recommendations for their improvement, beg leave to 
 report : 
 
 That soon after our appointment we entered upon the dis • 
 charge of our duties, and from time to time, ever since, we 
 have been engaged in the performance thereof. These duties 
 have occupied a much larger share of our time than we antici- 
 pated, and much more time than we have given to them could 
 profitabfy have been bestowed. 
 
 The field of inquiry marked out for us was a very broad 
 one, requiring extended investigations both at home and 
 abroad, a large intercourse with persons who have charge of 
 or aie interested in institutions of a similar character, a very 
 considerable reading, and full consideration. 
 
 While we have a full consciousness that we have not accom- 
 plished all that ought to have been accomplished, nor done 
 what we have done as well as it ought to have been done, we 
 have done the best that we could without giving to the subject 
 much more time than it was possible for us to give, or than 
 was expected of us by the Legislature or your Excellency. 
 
 We have visited a large number of jails and alms-houses in 
 our own State, including some in the older and richer counties 
 
4 
 
 REPORT ON PENAL AND 
 
 and some of the new and poorer ones, and have seen some of 
 the best and some of the worst of both these classes of insti- 
 tutions to be found within our limits. There may be some 
 exceptionally good or exceptionally bad, that we have not seen, 
 but we have seen enough to judge accurately of their general 
 condition, their prevailing defects and merits, and the reforms 
 which are needed. 
 
 We have all visited the State Prison at Jackson, the lie form 
 School at Lansing, and the House of Correction at Detroit, 
 and most of us have visited these institutions several times. 
 We have also visited the Asylum for the Insane at Kalamazoo, 
 and the Institution for the Blind, and Deaf and Dumb, at Flint. 
 
 We have also visited institutions in the States of Ohio, Illi- 
 nois, Kew York, Massachusetts, and Rhode Island, although 
 in some instances we have not all visited the same institutions 
 
 We have taken especial pains to see and converse largely 
 with men who have acquired experience, skill, and reputation 
 in the management or supervision of like institutions in our 
 own and other States, and also with eminent philanthropists 
 who have made this whole subject of the prevention and treat- 
 ment of crime, vagrancy, pauperism, insanity, and imbecility a 
 profound study. 
 
 We have also carefully read and considered a large number 
 of reports, essays, and volumes bearing upon these subjects, 
 many of which are of great and everywhere acknowledged 
 merit. 
 
 We have thus endeavored to lit ourselves for the performance 
 of the duties imposed upon us by the Joint Resolution of the 
 Legislature, or pointing out existing defects in our present in- 
 stitutions, and recommending such improvements as we think 
 should be made therein ; and making such further recommend- 
 ations connected with this subject as to the Board may seem 
 proper. 
 
CONDITION OF OUE COUNTY JAILS. 
 
 Ours has been the experience of all who have undertaken to 
 examine the actual condition of count} 7- jails, whether in this 
 or in other States. 
 
 Their condition is wretched beyond all power of description, 
 and beyond all conception of those who have not had the 
 experience of their own senses in the matter. 
 
 There are, of course, marked differences in the condition of 
 the jails ; some few, a very few , are subject only in a slight 
 degree to the sanitary objections made, but we speak of their 
 condition in general. Some of the worst jails are in the oldest 
 and wealthiest counties. 
 
 The defects in them are not owing so much to the manner 
 in which they are kept, as to inherent defects in their con- 
 struction, their dilapidated condition, and a fatal vice in the 
 common-jail system. 
 
 For the most part, our sheriff's are both humane and compe- 
 tent men, and as a general rule the prisoners are well fed, and 
 treated with a reasonable degree of personal kindness. 
 
 FIRST — OF SANITARY DEFECTS. 
 
 It is an acknowledged fact that light and fresh air in gener- 
 ous measure are absolutely essential to a healthful condition 
 of both mind and body. For the most part, our jails seem in- 
 geniously constructed to exclude as much of these essential 
 elements of health as is possible without destroying life. 
 
 Nor is any proper provision made for cleanliness of person. 
 Many prisoners come to the jails filthy in person and in 
 clothing. They are thrust into long, narrow, dimly-liglited, 
 badly-ventilated corridors, from which open the cells. There 
 are no bathing requirements or facilities, and prisoners are not 
 always required even to wash their hands and faces. This 
 corridor is used as the sitting and eating room of all the pris- 
 oners, clean and unclean, and is often also the privy and water- 
 
6 
 
 REPORT ON PENAL AND 
 
 closet of all; and if not, the privy is closely adjoining, and 
 the corridor is filled with its fetid and sickening odor. 
 
 The cells are very small, usually not exceeding in size four 
 or five feet by eight, and seven feet in height ; without ventil- 
 ating flues, and with absolutely no light or air except such as 
 steals through the iron grates of the narrow doors opening 
 into the corridors. No breath of pure, fresh air ever reaches 
 the inmates. Yet in these cells, alive with vermin, poisoned 
 with the stagnant, fetid air, the prisoners spend one half of 
 their time ; and when too sick to creep out into the corridor, 
 the whole of it. 
 
 The jails are crowded to excess : Thus the Calhoun County 
 jail, which was built to accommodate eight prisoners, some- 
 times contain twenty inmates. Two, and sometimes three, are 
 put into a single cell, and a corridor not large enough to ac- 
 commodate half a dozen is the living and eating room of a 
 score of prisoners. The heating arrangements are often most 
 defective and insecure, and the corridors are little to be pre- 
 ferred to the cells. As a rule, continued good health is impos- 
 sible under such circumstances, and Mr. Bingham, the Agent 
 of the State Prison, informs us that those convicts that come 
 from a long confinement in our county jails usually come in 
 a very bad sanitary condition, and actually recruit under the 
 discipline of the State Prison. 
 
 The larger proportion of the persons confined in our county 
 jails are confined awaiting trial, and they are often detained 
 month after month. They are not convicts, and the law pre- 
 sumes them innocent. Experience shows that a portion of 
 them are innocent of the crimes with which they are charged, 
 while a much larger portion of them are never convicted. 
 
 The power to arrest and detain persons charged with crimes 
 is one essential to the public good, but it is one that is often 
 abused by the malice of accusers and the reckless carelessness 
 or corruption of officers ; and innocent persons are not un- 
 frequently the victims. But we submit that whatever right 
 the State may have to punish convicts by depriving them of 
 
REFORMATORY INSTITUTIONS. 
 
 i 
 
 stanlight and pure air, thus destroying health of body and 
 mind by such incarceration, it has no right thus to treat per- 
 sons who are simply accused of crime and are awaiting trial. 
 They, at least, are entitled to such of the decencies and ordi- 
 nary comforts of life as may be consistent with safe detention. 
 
 SECOND — MORAL CONDITION. 
 
 The moral condition of our jails is infinitely worse than 
 their sanitary condition, and after a full examination and 
 careful consideration, we have come to the clear and painful 
 conviction, that they are' the very hot-beds and nurseries of 
 vice and crime, and that the State is directly responsible for a 
 large share of the crime which it seeks to punish. 
 
 The general plan upon which jails are constructed is that of 
 corridors, with cells opening therefrom. The prisoners are 
 locked in their cells at night, but during the day they congre- 
 gate in the corridors, without employment, and without over- 
 sight or restriction as to intercourse. There is no separation 
 of the convicts from persons merely accused of crime. Here, 
 often, are gathered those old and hardened in villainy, lost to 
 shame, proud and boastful of their crimes; those who have 
 committed their first crime, under the influence of some strong 
 temptation; those who have committed some venial offense 
 while under the influence of intoxicating liquors or some sud- 
 den passion ; mere children, new in the paths of vice ; those 
 who are accused, but are entirely innocent of any crime ; and 
 those who are arrested on civil process and are unable to find 
 bail. 
 
 If the wisdom of the State had been exercised to devise a 
 school of crime, it would have been difficult to devise a more 
 efficient one. Here are the competent teachers, the tractable 
 pupils, the largest opportunities for instruction, with nothing- 
 to distract attention from the lessons. Those merely accused, 
 and those guilty of a first offense, however venial, are taught 
 that the mere fact of an imprisonment has shut them out 
 from all the avenues of respectable industry ; that there is no 
 
8 
 
 REPORT OK PENAL AND 
 
 hope in that direction ; that society has become their enemy; 
 and that the only course open to them is to become the enemy 
 of society. They are taught how to do this most effectually, 
 and that the chance of detection and punishment decreases 
 just as one becomes skillful in crime ; and all the arts, devices, 
 and exploits of the experts are taught in detail to listening 
 and wondering ears, who soon learn to admire the audacity 
 and skill described, and to long to imitate and excel such dis- 
 play of them. 
 
 Gambling is a common amusement, and the tricks of pro- 
 fessional gamblers are learned. The jails are often so arranged 
 that the male prisoners can converse with female prisoners, 
 and occasional access to the rooms of the latter has been 
 obtained. 
 
 The insecurity of the jail often tempts to efforts and con- 
 spiracies to escape. 
 
 As a rule, the prisoners have access to no books, no efforts of 
 any kind are made for their intellectual or moral improvement, 
 and no interest is shown in their welfare, unless occasionally 
 some clergyman, like the Rev. Dr. Gillespie, of Ann Arbor, in 
 the spirit of the Master, makes the jail and its inmates a part 
 of his field of labor. 
 
 Can it be wondered at that the universal experience is, that 
 this treatment tends to make men criminals instead of reform- 
 ing them? These evils are not peculiar to our own State. 
 They exist elsewhere, and all who have turned their thought- 
 ful attention to the subject, whether as practical men or phi- 
 lanthropists, unite in the opinion that our present county -jail 
 system is an unmitigated evil, and ought to be abated. 
 
 The State has no right, under any pretext, to compel any 
 portion of its citizens to such ruinous associations. If it does 
 not reform its prisoners, it should not corrupt them, and then 
 punish them for the very corruption it has wrought out. 
 
 What reform should be made will be considered in another 
 portion of this report. 
 
REFORMATOR Y INSTITUTIONS. 
 
 OUR POOR-HOUSES. 
 
 Like our jails, our poor-houses are in the main adminis- 
 tered by kindly and humane men, and the manifold evils which 
 exist spring rather from want of intelligent consideration, the 
 want of proper supervision, and the inherent defects of the 
 system under which these charities are administered, than from 
 any want of humanity. 
 
 The duty of every community to care for its own poor, 
 worthy or unworthy, is clearly recognized in every Christian 
 community, and at this day it needs no argument to make 
 that duty plain. This duty should be performed so as to lessen, 
 and as far as possible prevent pauperism and crime. It should 
 be so performed as to do no moral or physical injury to those it 
 attempts to relieve, but, on the contrary, to do them good. 
 
 BUILDINGS. 
 
 It is difficult to generalize upon the condition of the houses 
 in which the poor are kept. Some buildings are good, and 
 reasonably suitable for the purpose for which they are used. 
 Others are most unsuitable in their construction, and others in 
 a most dilapidated condition, needing thorough repair, or to 
 be torn down. The general complaint of superintendents and 
 keepers is, that the board of supervisors do not grant them 
 sufficient means for putting or keeping them in a proper con- 
 dition. 
 
 VENTILATION AND CLEANLINESS. 
 
 Most of our poor-houses are utterly deficient in any proper 
 system of ventilation. The ventilation by windows and doors 
 does very well for family households, but as applied to large, 
 crowded rooms, as some rooms in a poor-house often are, and 
 filled with such persons as occupy them, it is utterly defective. 
 The atmosphere becomes laden with offensive odors, and the 
 very walls become impregnated by them. Living in such 
 
 o 
 
10 
 
 REPORT ON PENAL AND 
 
 rooms must inevitably be greatly prejudicial to health, and 
 must send many inmates to the hospital. 
 
 There is, too, for the most part, an utter want of bathing 
 facilities and requirements. In some counties a washtub is 
 furnished, and inmates are required to bathe the whole person 
 weekly, but this is not generally the case. We found no bathing 
 tubs, and no generous supply of water. When the character 
 and number of inmates is considered, the importance of this 
 subject is very great, and the neglect is a very culpable one, 
 affecting health, decency, and morals. 
 
 HOSPITALS AND MEDICAL ATTENDANCE. 
 
 In very few of the poor-houses are there any suitable hospi- 
 tal arrangements. Where there are rooms assigned for hospi- 
 tals, they are for the most part unfit for such use, and are 
 often crowded to excess. 
 
 In some of them thus crowded we found the air exceedingly 
 offensive, and the rooms made thereby utterly unfit for human 
 habitation. The wonder was, not that the sick did not get 
 well, but that the well who came in to them did not get sick. 
 When the number of sick to be found in such institutions is 
 considered, this want of hospital accommodations is a very 
 pressing one. In this connection the want of proper medical 
 attendance may be mentioned. This want, however, we infer 
 from the salaries paid, for we had little opportunity to form an 
 opinion. Thus the rich county of Washtenaw, with over one 
 hundred inhabitants in the poor-house, and nineteen of them 
 insane, pays forty-five dollars a year to a physician, who fur- 
 nishes his own medicines. This is not, however, a fair illustra- 
 tion, as many of the counties pay more liberally, with a smaller 
 number of inmates. Jackson county pays one hundred dollars ; 
 Calhoun eighty, and half the charge in surgical cases in addi- 
 tion. But in few cases do the counties pay such a sum as 
 would be a very meager compensation for a physician who can 
 command a good practice, and no other ought to be emplo} r ed, 
 whether reference be had to the demands of humanity or of a 
 
REFORMATORY INSTITUTIONS. 
 
 11 
 
 true economy. The classes of disease met within poor-houses 
 require to he dealt with by men of skill and experience, and 
 by such treatment the chances are greatly increased of an 
 early convalescence, and the consequent relief of the county 
 from further expense. 
 
 Such men, too, can more readily detect the attempts at impo- 
 sition by shamming sickness, — attempts not unfrequently 
 made. We can hardly conceive it possible that poor-houses 
 can be well served when such beggarly salaries are paid to 
 physicians. 
 
 CLASSIFICATION OF INMATES. 
 
 The two great causes of pauperism, as of crime, are drunk- 
 enness and licentiousness. Hence, in most poor-houses a large 
 proportion of the inmates have been brought there by the 
 drunkenness or lewdness of themselves or their parents, or 
 those upon whom they are dependent. 
 
 The immediate victims of these vices of both sexes, as 
 found in poor-houses, are usually degraded, debased, and 
 thoroughly corrupted both in mind and body, and utterly unfit 
 for any association with the comparatively pure. Besides 
 these, there are found others, who, from lives of criminal or 
 vicious indulgences, are fit companions for the drunken and 
 the lewd. 
 
 While these classes in some instances constitute the major- 
 ity of those found in our alms-houses, there are other and 
 entirely different classes who are largely represented therein. 
 
 There are those who, from old age, accident, disease, or in- 
 firmity, and without fault of their own, are unable to support 
 themselves, and are driven to the poor-house. There are weak- 
 minded and imbecile persons, and idiots, and the incurable in- 
 sane; some harmless and some not. Then, there are children, 
 some young and helpless, and others of such an age that their 
 characters are becoming rapidly formed, and who are receiving 
 life-long impressions that must shape their whole being. 
 
12 
 
 REPORT ON PENAL AND 
 
 The mingling of all these classes together can only result 
 in unmixed evil. 
 
 The forced association of the good with the bad degrades 
 and corrupts the former, without improving the latter. 
 
 Most of our poor-houses are so constructed that no proper 
 separation and classification of the inmates is possible. In 
 some of the largest ones it could be done, and to some extent 
 it is done, although very imperfectly. In the smaller ones the 
 very paucity of numbers makes classification impracticable. 
 
 The result is, that the unfortunate are forced to mingle with 
 the vicious and degraded in the same rooms, and in all the 
 daily employments and associations of life. Professional pros- 
 titutes from the cities associate with the weak and innocent 
 girl whom sickness has sent to this last refuge of poverty. 
 Innocent children mingle with the corrupt and vile of both 
 sexes, thus taking their first lessons in vice, receiving an edu- 
 cation for a life of pauperism and crime. Thus in Wayne 
 county, where we visited the poor-house, there w r ere over 
 twenty children old enough to go to school, and who for four 
 hours attended a very good school, but for the rest of the time 
 mingled without restraint with the various inmates, many 
 of whom were exceedingly vile in more senses than one. 
 
 LABOR AND DISCIPLINE. 
 
 We take it to be the settled conviction of all thought fu 
 persons who have made the treatment of pauperism a study, 
 that all inmates of poor-houses should be sternly required to 
 work to the extent of their ability; and this is not merely with 
 reference to the direct benefit which the public may derive 
 from that labor, but with reference to the moral and physical 
 welfare of the inmates themselves, to the general order and 
 discipline of the institution, and also with reference to driving 
 from it all who can work and will not. 
 
 In general, the poor-honsc should be either a work-house or 
 a hospital, or both in one, and all who are not fit subjects for 
 the hospital should be required to work ; work regularly and 
 
REFORMATORY INSTITUTIONS. IS 
 
 systematically, and this whether they can accomplish much or 
 little. This, of course, does not apply to those who are too 
 young or too old to work, and yet not sick. There is no such 
 foe to order and morality as idleness, this prolific parent of all 
 vice, and there is no duty upon the part of the public to sup- 
 port any one in idleness who can work. There is also a well- 
 recognized moral power in work, as an element both in the 
 building up and the reformation of character, and discipline 
 and order cannot well be enforced without it. 
 
 From our examinations and inquiries we are satisfied that a 
 great reformation, both in the matter of labor and discipline, 
 is needed. To some extent, and in some poor-houses to a con- 
 siderable extent, the inmates do work. The women who are 
 able, work about house, help to take care of the sick and 
 helpless, and sew for the establishment ; and able-bodied men 
 work on the farm. But there are in most poor-houses a class 
 of men, and in the aggregate a considerable number, who can- 
 not work much on a farm, and yet who could "work very 
 considerably at some kind of mechanical or other labor in 
 shops, and especially is this the case in the winter season, 
 when the numbers are the largest and there is little on the 
 farm to be done, and when the order that comes from work is 
 most essential. There is unquestionably a great practical and 
 economical difficulty, under our present system, of introducing 
 mechanical labor into our poor-houses. The number that can 
 be thus employed in each poor-house is so limited, that it 
 would not authorize the needful expense of tools, machinery, 
 instructors and supervision. That the power of labor in the 
 inmates of our poor-houses, whatever it is, should be utilized 
 to the utmost that it can be consistently with their welfare, is 
 required by every consideration of humanity, economy, good 
 order and good morals. How the reform can be best intro- 
 duced, we will hereafter consider. 
 
 EDUCATION — MORAL AND INTELLECTUAL. 
 
 The law wisely requires that the children in the poor-houses 
 over five and under eighteen shall be educated, and where 
 
14 
 
 REPORT ON PENAL AND 
 
 there are ten or more, that a school shall be maintained in the 
 building. There are very few counties in which there are ten 
 children of the required age. In Wayne county we found a 
 very good school, and in some others schools are maintained, 
 but we were not fortunate enough to see them. Where schools 
 are not thus maintained, the children in poor-houses generally 
 reap but liftle benefit from the provisions of law. Some of 
 them attend district schools; others are taught by some 
 inmate, but usually without much system or success. In all 
 cases the associations of the children at the poor-house are 
 calculated to defeat the great end of education, — the develop- 
 ment and elevation of the pupil. These children are the 
 wards of the State, and the State has the deepest interest in 
 raising them from the pauper class ; and it seems very clear to 
 us, that some other provision should be made for them, and of 
 that we shall also hereafter speak. 
 
 No provision is made by law or by local authority for fur- 
 nishing means of culture of any kind to any other class of 
 paupers. There are no libraries, no schools, and no religious 
 instruction for them. In some counties, benevolent and 
 religious persons have occasionally held religious services, and 
 have organized Sabbath schools ; but in general, the Sabbath is 
 marked only by a change of clothing and cessation from such 
 labor as is performed, save that of the household and the 
 hospital. 
 
 THE INSANE AND IDIOTIC. 
 
 There is no chapter in the history of our charitable institu- 
 tions so fraught with painful and revolting interest, as that 
 which relates to the treatment of the insane and the idiotic 
 in our poor-houses. For the most part they are made insane 
 or idiotic without their own fault, but whether so or not, their 
 utter helplessness excites our commiseration, and their want of 
 reason and self-control excites our fears. More than all other 
 classes, they require the tender guardianship of the State, for 
 in no other way can they be properly cared for. The State has 
 
REFORMATORY INSTITUTIONS. 15 
 
 erected an Asylum for their custody and care at Kalamazoo, 
 and has authorized the Superintendents of the Poor to send 
 insane and idiotic paupers there or elsewhere, as shall best 
 promote the interest of the county and conduce to the com- 
 fort and recovery of such paupers. The Asylum has not 
 sufficient capacity to receive and care for one-half of the 
 insane of the State, and is full to overflowing, and within the 
 last year more than one hundred applications have been made 
 for admission from the different counties of the State, that 
 were from necessity rejected. Then, some counties prefer to 
 maintain their insane and idiotic poor at the poor-house, be- 
 cause it is cheaper. The result is, there are probably in the 
 aggregate more than two hundred insane and idiotic inmates 
 in our poor-houses. 
 
 A portion of these are entirely harmless, and mingle with, 
 and are treated like other paupers, hut there is a large number 
 who are not thus harmless. Their condition is for the most 
 part deplorable, and in some instances horrible beyond 
 description. We had read in romance and in history of such 
 modes of treating the insane, but we did not dream that in- 
 stances of it could be found in our State, and especially in some 
 of our most wealthy counties. Thus, in Calhoun county, we 
 found two insane women and one boy confined in low*, dimly- 
 lighted, badly- ventilated cells, which, in winter, could not be 
 properly w*armed. In one of them there w r as no furniture 
 whatever, except a coarse board frame of an old settee without 
 a bottom, and an old filthy, long cushion, used alternately 
 as a seat and a bed. Its inmate, a woman, when we saw her, 
 was crouched in one corner of this cage, wrapped in a filthy 
 dress, and glared like a wild beast upon all who looked in upon 
 her. Her cell was cleaned twfice a day, and yet she lived much 
 of the time in her own filth. The other cases were not so bad 
 as this, but they had some of its characteristics. We speak 
 of this case the more freely because the keeper in charge of 
 the poor-house seemed an intelligent, capable, humane man, 
 
REPORT OX PEXAL ANI) 
 
 16 
 
 and keenly felt the inhumanity of this treatment, but his duties 
 in managing the farm and caring for the general welfare of 
 the institution were very arduous, demanding his entire time 
 and thought. He was entirely unacquainted with the man- 
 agement of the insane, was supplied with insufficient assist- 
 ance, and there were no other rooms in the buildings where 
 these poor creatures could be kept. 
 
 There is no room to doubt, that if these persons, and others 
 similarly situated, were in an asylum for the insane, they 
 could, by proper treatment, be taught the decencies of life, and 
 that their condition would in every respect be greatly 
 ameliorated. 
 
 In Kent county, we found in the poor-house twenty insane 
 persons and nine idiots, all in the most deplorable condition, 
 and presenting a most revolting spectacle. 
 
 In Allegan county, one poor insane woman was found in a 
 condition where her suffering from cold must have been in- 
 tense. 
 
 In Oakland county, where the poor-house is a new, large, 
 roomy buiding, there are good rooms for the insane, but un- 
 fortunately there are no proper means of warming them. 
 
 In Wayne and Washtenaw counties they have erected sepa- 
 rate buildings for the insane. In this way, unquestionably, 
 better and healthier rooms are secured to them ; but after a 
 careful examination and consideration, we are clearly of the 
 opinion that the attempt to treat the insane in county poor- 
 houses is a sad, melancholy failure, and must continue to be 
 so. 
 
 The successful treatment of the insane, whether for mere 
 custody or for cure, is a science by itself. To fit one for such 
 treatment requires, in addition to a natural titness, careful 
 medical and other instruction, much study, and large 
 experience. 
 
 These qualifications can only be secured by good salaries 
 and the prospect of a permanent situation. That the ordi- 
 
REFORMATORY INSTITUTIONS. 
 
 17 
 
 nary keepers of poor-houses are utterly unlit for such a 
 position will be readily admitted. The counties which have 
 built or may build separate buildings for the insane cannot 
 afford to, and certainly will not, employ competent men 
 to take charge of them. The number of inmates is, and will 
 be too small, and the expense too great to justify it. Beyond 
 all question the two hundred and more insane paupers not 
 now in the asylum for them can be treated much more advan- 
 tageously and far more economically in one institution, and 
 under one supervision, than they can possibly be treated in the 
 several poor-houses, if they are properly treated. 
 
 Wayne connty, the most populous one in the State, with a 
 far greater number of insane paupers than any other, has 
 tried the experiment of a separate building and supervision, 
 under the most favorable circumstances, and it has proved a 
 lamentable failure. The building, though costing about 
 $21,000, is unfit for the purpose, as any building must measur- 
 ably be, that any county in this State will undertake to build. 
 There is a great want of separate rooms for the treatment of 
 exceptional cases and of the sick. 
 
 The cells designed for the refractory and violent are in the 
 basement, without light or ventilation except through a grated 
 opening in the doors, and are utterly without the means of 
 being warmed. 
 
 But the great failure thus far has been, and we think will 
 be, the want of proper care and supervision. 
 
 The first keeper appointed was utterly unfit for the place, 
 and his treatment of some of the inmates was at times exceed- 
 ingly brutal. The second retained his place but for a few weeks, 
 being found incompetent for a proper discharge of his duties. 
 And such must be the case with any that the counties will 
 be likely to employ, or can employ, at the salaries which they 
 will pay. 
 
 Nor are the Superintendents of the Poor, as a rule, in our 
 
18 
 
 REPORT ON PENAL AND 
 
 opinion, the best men to select and employ such officers, or 
 supervise such institutions. 
 
 . OUR PAUPER SYSTEM EXPENSES. 
 
 Our examination and inquiries have satisfied us that our 
 pauper system, as it now exists and is administered, is a very 
 expensive one, and we shall in another connection refer to this 
 feature more fully. 
 
 GENERAL REMARKS. 
 
 We have thus pointed out in detail some of the defects of 
 our poor-houses and their administration. We desire to say 
 that w^e found many things to approve. 
 
 The inmates were usually supplied with an abundance of 
 suitable food, and were treated with personal kindness. 
 
 The farms were usually in a good condition, and the pecu- 
 niary affairs of the institutions are in general managed with a 
 fair degree of prudence and economy. Indeed, some of the 
 defects which we have referred to result from an unwise econ- 
 omy, to call it by no harsher name. 
 
 The Boards of Supervisors appoint the Superintendents, and 
 fix the annual appropriations for the poor. Beyond this they 
 have seemed to feel little responsibility. Their general object 
 is to reduce the county expenses to the lowest possible point, 
 and in doing this they often do a great wrong to these institu- 
 tions, whose wants they have not sufficiently studied. 
 
 The Superintendents are embarrassed by pinching appropria- 
 tions, and cannot do what wisdom and humanity require to be 
 done. Then, too, it is not easy to find a suitable person for 
 keeper of the poor-house for the salary which is or can be 
 paid. The position is at once a disagreeable, responsible, and 
 difficult one. The keeper should understand farming well, 
 and should be a good and upright man of business. He should 
 also understand human nature in all its phases, and have the 
 rare power of governing bad men and women, and mainly by 
 moral force. He should be patient, kind, forbearing, sympa- 
 
REFORMATORY INSTITUTIONS. 
 
 19 
 
 thizing ; gentle with the weak, and stern with the obdurate- 
 These qualities, absolutely essential to a complete administra- 
 tion of our poor-house system, cannot, in general, be com- 
 manded by our several counties. These difficulties, and the 
 other defects which we have pointed out, and others which 
 exist, seem to demand the careful consideration of the Legis- 
 lature, and an earnest effort to find a remedy. 
 
 STATE INSTITUTIONS. 
 
 We have a more pleasant task in calling your attention to 
 the penal and charitable institutions under the immediate 
 control of the State. It has been our experience, as it has 
 been that of our investigators, to find, as a general rule, that 
 institutions of the kind named, not under some general cen- 
 tral supervision, are subject to great neglects and abuses, and 
 that mere local supervision is inefficient both to prevent and 
 expose them. 
 
 THE ASYLUMS. 
 
 We have doubted, owing to the somewhat ambiguous terms 
 of the Resolution under which we act, whether we were author- 
 ized to visit the asylums of the State, but at the suggestion of 
 your Excellency we have done so, and the result has been most 
 gratifying to ourselves. 
 
 They are both institutions that give great credit to the State, 
 and, so far as we can judge, are in good hands, and are well 
 managed and supervised. 
 
 The Asylum for the Insane, at Kalamazoo, is full to overflow- 
 ing, and the Principal has been under the painful necessity of 
 rejecting a large number of applications for admission. These 
 rejections have very naturally excited jealousy on the part of 
 some, that there was favoritism exercised. After a careful 
 inquiry as to both rejections and admissions, we are satisfied that 
 the Principal has acted upon the right principle of discrimina- 
 
20 
 
 REPORT OH" PEHAL AND 
 
 tion, both as to the character of the patients and the localities 
 from whence they have been received. 
 
 He lias endeavored to give preference to those patients who 
 have been most recently attacked, and those in whose cases 
 there is the most hope of recovery ; and to fairly distribute the 
 admissions through the State. That in some given cases he 
 may have misjudged as to the merits of the different appli- 
 cations, is not only possible, but it is almost inevitable. The 
 true remedy is, to provide more extended accommodations. 
 
 We are gratified to find in our visit to other States, that 
 this, our oldest and only complete Asylum, has the reputation 
 abroad of being one of the best institutions of the kind in the 
 Union. 
 
 The building for the Educational Institute of the Deaf and 
 Dumb, at Flint, is not yet completed, but is fast approaching 
 completion under the w 7 atchful supervision of Mr. James B. 
 Walker, Building Commisssoner and Trustee. It will be a 
 spacious, convenient, and elegant structure, — perhaps some- 
 what too spacious and expensive for the present wants of the 
 classes for whom it is designed. As we have already remarked, 
 the Institution seems to be well managed and in good 
 condition. 
 
 THE STATE PRISON. 
 
 We have examined with considerable care into the condition 
 of the State Prison, at Jackson, its management, and its general 
 workings ; and we find something to approve and something 
 to criticise. 
 
 There are some defects of location, construction, and con- 
 dition, for which the present management are in no way respon- 
 sible, yet the effects of which they very sensibly feel. 
 
 The prison is located upon a low, w 7 et, uninviting spot, with 
 no agreeable surroundings, and the construction is in many 
 respects exceedingly defective. There is no chapel, and no 
 place where any large body of the prisoners can be gathered 
 together for any purpose, except in the low, dingy dining- 
 
REFORMATORY INSTITUTIONS. 
 
 21 
 
 room. There is no school-room, no bathing facilities; the 
 hospital accommodations are insufficient, and the cells very 
 poorly ventilated. The yard walls are low, and in many 
 places seem almost ready to tumble down, and are exceedingly 
 insecure. 
 
 This insecurity presents one of the most serious obstacles to 
 good discipline that exists. It is a constant temptation to 
 efforts and conspiracies to escape ; and the hope of escape tends 
 strongly to unsettle the minds of the convicts, make them 
 unwilling to work, indifferent to good conduct, insubordinate, 
 and fortifies them against reformatory influences. The first 
 deep impression that should be made upon the mind of the 
 convict is, that he cannot escape ; that the law is too strong 
 for him, and that efforts in that direction are unavailing. 
 Then, and only then, will he settle down to a sense of his true 
 condition. 
 
 But, besides these defects in location and construction, there 
 are other defects in the condition of grounds and building 
 for which the management is responsible. As compared with 
 some prisons which we have visited elsewhere, there is a great 
 want of order, neatness, and taste in the prison yard and its 
 surroundings, — a careless, shabby look, almost indescribable 
 without going into great detail, and yet which is felt by all 
 those who have a higher ideal before them of what such 
 grounds should be. Some of the wooden buildings within the 
 enclosure are in a dilapidated, ruinous condition, and should 
 either be torn down or repaired. These will be considered 
 small matters by many, but they aid very greatly in giving 
 character to the institution, and they affect the credit of the 
 State. 
 
 One very great improvement has been made since our first 
 visit. A building has been erected for the insane convicts, 
 with large, airy cells, and with an abundance of light and air. 
 The improvement in the condition of these men is very mani- 
 fest. Heretofore it has been deplorable. Still the fact exists, 
 
22 
 
 EEPORT ON PENAL AND 
 
 that they are under the care of men who have no experience 
 or skill in administering to the mind diseased ; and is it not a 
 serious question whether — when the insanity of the convict is 
 clear — he should not be treated like other insane persons ? 
 He is no longer a fit subject either for punishment or reform, 
 but for cure or skilled custody. 
 
 So far as we can judge, the business interests of the prison 
 are managed with fidelity and skill by the present Agent, and 
 it is more than paying expenses. This is a very gratifying 
 result, and creditable to that officer ; still, the prison was not 
 established to make money, and whether it does so or not is a 
 question entirely subordinate to the question whether it is so 
 administered as to accomplish all the good to society for which 
 it was designed, and which it is capable of accomplishing. 
 
 Whether the discipline of the prison is what it should be, 
 and whether the convicts are treated as they ought to be, so as 
 best to accomplish that good, are questions upon which differ- 
 ent persons will materially differ in ©pinion, and this difference 
 will depend mainly upon the different theories entertained as 
 to the object and purpose of the punishment of convicts, and 
 the end sought thereby. All will agree that an incidental pur- 
 pose of punishment is its deterring influences in preventing 
 others from committing similar crimes, and that an incidental 
 purpose of imprisonment is for the time being to secure society 
 from the further crimes of the convict himself, by making it 
 impossible for him to commit them ; but these are not the 
 leading or principal purposes. 
 
 One theory, and until recently the common one, is that the 
 leading object of the imprisonment of convicts is to punish 
 them for crimes committed, by depriving them of all the 
 ordinary enjoyments of life not essential to its continued and 
 healthful existence, and by close imprisonment and compul- 
 sory labors for a given time, or for life. In other words, they 
 are to be treated as so many human machines submitted to 
 the custody of the law, to be worked in prison for a given time, 
 
REFORMATORY INSTITUTIONS*. 
 
 23 
 
 or for life, and to be kept in good working order, so as to 
 accomplish the greatest amount of labor possible. This theory 
 requires that the convicts be well fed, not over-worked or 
 cruelly treated, and that they be subjected to a rigid discipline, 
 so that order be maintained and the work be done ; but it 
 entirely loses sight of the welfare of the convict and the 
 security of society when he shall be discharged from custody, 
 if discharged at all, and the practical working of this theory 
 has demonstrated that convicts are made worse, and not better, 
 by its adoption, — that as a rule they are greater criminals after 
 imprisonment than before, and that society has much more to 
 fear from them than ever. 
 
 Another theory is, that the State occupies towards criminals 
 somewhat the relation of a parent to a sinning child, — that 
 while he is to be punished, punishment is not an end but a 
 means, and that the leading object of punishment is to reform 
 the criminal and restore him to society as a safe and useful 
 member thereof ; and that the mode of punishment, discipline, 
 and treatment must have primal reference to this great end. 
 Of course there lies at the foundation of this theory a firm 
 faith in the possibility of this reformation of criminals, and 
 without this faith it cannot exist. The advocates of this theory 
 are rapidly increasing, both among practical men, familiar with 
 prison management, and intelligent, thoughtful, Christian phi- 
 lanthropists ; and they claim that the experiments of the last 
 half century in Norfolk Island, in France, Germany, Ireland* 
 and in this country, have proved that, by a proper course of 
 reformatory treatment, a very large percentage of convicts may 
 be reformed and made safe and useful members of society. 
 We shall hereafter discuss more fully this reformatory system, 
 and we merely remark here that it involves the use of indus- 
 trial, educational, moral and religious agencies, and an earnest 
 attempt to fit convicts to become good citizens, and to procure 
 employment for them on their discharge; that it does not 
 involve a lax discipline, but, on the contrary, it demands a 
 
24 
 
 KEPOET ON PENAL AND 
 
 discipline, kindly yet firm, and, if necessary, inexorable. It, 
 however, encourages hope, rewards good conduct, and seeks to 
 arouse the energies of the convict for his own reformation. 
 
 Such a theory has only been, and can only be, successful in 
 practice, when administered by capable men and women, whose 
 hearts are in the work, and who have an abiding faith in the 
 possibility of reforming a large proportion of the persons 
 placed under their charge. 
 
 If judged by the theory first above mentioned, as to the 
 leading object of imprisonment, we think our State Prison is 
 reasonably well managed. Discipline and order among the 
 convicts are well maintained, and they are, as a rule, well fed 
 and not overworked, or cruelly treated ; but we have reason 
 to fear that there are exceptions to this general rule. 
 
 Judged by the other theory given, we think the manage- 
 ment of the prison comes far short of the reformatory system 
 inculcated in theory, and as exemplified in practice, and we 
 think a change could very advantageously be made in this 
 direction. Something has already been done. Valuable addi- 
 tions to the library have been made, and prisoners are encour- 
 aged to read. The chaplain seeks to win their confidence, 
 makes himself their friend, and leads their thoughts to higher 
 and more sacred things. The want of a chapel and a school- 
 room is sadly felt, and the contract system interferes somewhat 
 with that entire control of the prisoners by the Agent which 
 is desirable. The commutation system is a move in the right 
 direction, and works w r ell ; and the Agent has recommended a 
 most desirable provision, by which good conduct shall be 
 rewarded, by permitting the family of the convict to share his 
 earnings. But under the system established at Jackson, con- 
 victs are not made to feel that their punishment is reformatory 
 in its character, and that it is expected of them that they are 
 to grow better under it, and that a deep interest is felt by 
 society in that result, and that every effort at reform will meet 
 with warm-hearted sympathy. There is no immediate motive 
 before them for especial good conduct. It brings no immuni- 
 
REFORMATORY INSTITUTIONS. 25 
 
 ties, no privileges, no distinction. In long terms, the hope of 
 abbreviating the time of detention is too weak to operate with 
 much power. There is no attempt at classification on the basis 
 of character or meritorious conduct. Their very dress, the 
 detested prison stripe, is at ouce a badge and an instrument of 
 degradation, when the great effort should be to arouse self- 
 respect, and stimulate to self-amendment and elevation. 
 
 Without discussing the question whether flogging should 
 ever be resorted to, we think it is administered here quite too 
 frequently, and on occasions when it should not be. It was 
 administered twenty-nine times during the last year, and i3 
 resorted to occasionally, simply to compel a confession, and 
 sometimes even to compel the confession of the motive of an 
 act. Thus, when some prisoners escaped, it was ascertained 
 that one who had not escaped had made and hung some iron 
 balls like slung shot, which were used by the escaping prison- 
 ers. The convict admitted the making of the balls, but 
 claimed that he made them to use about a machine where he 
 was at work. He was whipped to compel a confession that he 
 had made them for the use of the escaping prisoners, and was 
 whipped until he did confess, and then the whipping was sus- 
 pended. He was not whipped for the act , but to wring from 
 him, by the torture of the lash, a confession of the motive of 
 the act. 
 
 So, a convict, in attempting to escape, dropped a knife, which 
 he had made from an old file. He was asked for what he made 
 the knife. He gave a false reason, and was whipped until he 
 confessed that he made it to use in his contemplated escape. 
 He was not whipped for the attempted escape, or for making 
 the knife, but to compel a confession, and the whipping was 
 continued until he did confess. This torture, to compel a con- 
 fession, belongs to the Inquisition and to past ages. It as 
 often compels the victim to utter a falsehood to end the tor- 
 ture, as to reveal the truth, and has about it no commendatory 
 features. 
 
 4 
 
26 
 
 REPORT ON PENAL AND 
 
 The general concurrence of those who have considered the 
 subject seems to be, that flogging tends to degrade the victim, 
 and brutalize* both those who inflict and those who witness it; 
 and if resorted to at all, it should only be in extreme cases. 
 From the very nature of the mode of punishment, it is very 
 apt to be inflicted in the heat of passion rather than with 
 judicial calmness. 
 
 We have thus felt it our duty, under the requirement of 
 the Resolution, — to make “fuT minutes of all the defects” 
 which we discover, — to point out what we consider the defects 
 in the management of our State Prison. As we have already 
 said, in many respects we find that management worthy of 
 praise, and we entertain no doubt that the future will see 
 marked improvements in other respects. 
 
 The salary paid to the Agent is utterly inadequate for the 
 duties imposed upon him, and which he does perform. We 
 think both the mode of his appointment and his term of office 
 open to great objections. But these subjects we shall hereafter 
 consider. 
 
 REFORM SCHOOL. 
 
 There is no class of institutions in which we have become 
 more profoundly interested than in those established for the 
 reform of juvenile offenders. We have examined several of 
 them with care, and inquired into their workings, and through 
 reports and printed volumes have endeavored to inform our- 
 selves thoroughly as to others, — their history, their workings, 
 and their stccess. Whatever doubts there may be as to the 
 possibility of reforming adult persons convicted to crime, 
 there are none whatever as to the possibility of reforming a 
 large proportion of juvenile offenders. This has been fully 
 proved, both in this country and in Europe, and that such in- 
 stitutions are to be considered among the most efficient means 
 for the prevention of both crime and pauperism, cannot be 
 doubted. The class of children committed to them have, for 
 the most part, come from the class of vagrants, and therefore 
 
 i 
 
REFORMATORY INSTITUTIONS. 
 
 27 
 
 the most unlikely subjects of reform, yet the statistics show that 
 from fifty to seventy per cent of all the discharged inmates live 
 decent and reputable lives, while many of them have become 
 men of marked respectability and worth in their localities. 
 These institutions have been in the main conducted with 
 especial reference to the reformation of their inmates by the 
 power of religious principle, by the kindly discipline of the 
 school, the work-shop, the farm, and the family; and just in 
 proportion as they have assumed a penitentiary character, they 
 have failed. The success of all reformatory institutions must 
 depend very much upon the personal character and efforts of 
 those who are at the head. 
 
 No mere routine, no system merely mechanical, has ever 
 given or can give success. They must be pervaded by the true 
 spirit of Christian reform, and this must be caught from and 
 infused by the Principal, or by those in charge; otherwise the 
 success must be very imperfect. 
 
 While we cannot claim for our Reform School that it is a 
 model institution, yet we have been in most respects favorably 
 impressed with its management. The Principal seems deeply 
 imbued with the true Christian spirit of benevolence, and 
 clearly comprehends the idea that the institution is intended 
 to be reformatory in its character rather than punitive, — that 
 it is a school and not a prison, and is making earnest, and to 
 a very considerable extent successful, efforts to impress this 
 character upon the Reform School. A large experience, and a 
 careful study of the spirit and the method of some of the best 
 institutions of the kind, will no doubt enable him to improve 
 the management of this. 
 
 As compared with some institutions which we have visited, 
 it seems to us that it could be improved, among other things, 
 in the general aspect of the grounds, both inside and outside 
 of the inclosed yard, so that order, neatness, and taste should 
 be a more marked characteristic thereof; by the better classifi- 
 cation of its inmates with reference to character and conduct; 
 
28 
 
 REPORT ON PEKAL AND 
 
 by a more perfect system of grading and marking, so that good 
 conduct should more certainly and obviously insure its 
 rewards, and bad conduct its penalties, and by a more special 
 and earnest effort to prepare its inmates for a speedy discharge 
 from the school, the finding of a proper place for them in 
 private families, and the careful looking after them when thus 
 discharged. 
 
 The Rev. Dr. Pierce, now and for some years Chaplain of 
 the New York House of Refuge, and previously the Principal 
 of the Reform School for Girls, at Lancaster, Massachusetts, 
 says in his “Half a Century with Juvenile Delinquents,” “all 
 institutional life is unnatural, and no child should be confined 
 in any one, however improving, longer than is indispensable to 
 prepare it for the natural home in a family, where it must 
 certainly and ultimately live. We should never weary of the 
 experiment of placing the child in a home. If it fails in one, 
 it may find a congenial atmosphere in another.” 
 
 There is no better authority on this subject, and his opinion 
 is, we think, in accord with that of most others who have given 
 much thought to the subject. The child should not be kept 
 so long that this institutional life, in the midst of congregated 
 boyhood, becomes either habitual or attractive, and so that a 
 life of toil in a quiet country family seems dull and monoto- 
 nous ; and yet they need to be kept long enough to break up 
 the vagrant, roaming habits which have been formed, and 
 until they have been trained to regular industry, so that it has 
 become a habit, and until they have received a rudimental 
 education and have developed a good moral purpose. As soon 
 as this is done, they may and should be returned to their 
 friends, or intrusted to families of farmers or mechanics care- 
 fully selected, still subject to the kindly supervision and 
 watchful care of the institution, or absolutely discharged. The 
 time required for this preparation will, of course, vary with 
 the character and age of the child, the wisdom of the treat- 
 ment, and with the other circumstances of the case. The judg- 
 
REFORMATORY INSTITUTIONS. 
 
 29 
 
 ment of the Principal and of the Supervising Board must, of 
 course, be entitled to great, if not decisive weight, in deter- 
 mining when the inmate is fitted to leave. It must, however 
 be borne in mind that the Principal would naturally feel a 
 reluctance to part with an inmate whose conduct was good, 
 who was in every way improving, and who had become an 
 example to others, and had acquired skill in labor. 
 
 There are two distinct classes of Reformatory Institutions 
 for Juveniles, viz: those conducted upon the congregated sys 
 tern, and those conducted on what is called the family system. 
 
 In those conducted upon the congregated system, the inmates 
 are gathered in one large building, and to a greater or less 
 extent mingle freely with each other in the play-ground, the 
 dining-hall, the school-room, and the work-shop, subject, how- 
 ever, to classification, oversight, and various regulations. In 
 some they have separate dormitories, and in some they sleep in 
 large rooms which are subjected to careful supervision. There 
 is usually a strong wall or high fence around the yard where 
 the inmates are permitted to be, to prevent escape. 
 
 Under the family system, there are no high enclosures, and 
 the obstacles to escape are moral rather than physical. The 
 inmates are placed in separate houses scattered about the 
 grounds, each house containing from thirty to fifty inmates. 
 In the Industrial School for Girls at Lancaster, Mass., which 
 may be termed a model school of this class, there are five sep- 
 arate buildings for scholars, with accommodations for thirty 
 in each building, and in each is a matron, a teacher, and a 
 housekeeper. Each house has its separate school-room, and 
 each household is a distinct family by itself, holding very little 
 intercourse with the others. 
 
 They only meet together in the chapel for worship, singing, 
 etc. The theory is, that as far as possible the family life should 
 be preserved, and that each inmate should be brought into 
 intimate and kindly relations with the matron and the teacher, 
 who are supposed to be fitted kindly and wisely to. guide, con- 
 
30 
 
 REPORT ON PENAL AND 
 
 trol, and educate the objects of their charge, and develop their 
 higher natures. In boys’ schools they usually have a man and 
 his wife at the head of each family. In some schools on the 
 family system, the inmates of all the houses attend the same 
 school, and eat at the same table. 
 
 Some of the most successful reformatory institutions of 
 Europe, both for boys and for girls, are upon this plan, as are 
 quite a number in this country. Of this class are the Reform 
 Schools of New Jersey, Ohio, Indiana, Wisconsin, and of 
 Chicago ; while a majority of all are upon the congregational 
 system, including the largest, and in many respects the best 
 and most successful of all, the New York House of Refuge, 
 we think it too early yet to determine which of the two sys- 
 tems is entitled to a decided preference, if either. One prac- 
 tical difficulty in the family system in this country is the 
 securing of a sufficient number of proper persons to put at the 
 head of each household. 
 
 The number of persons fitted for the position is very small, 
 and that number cannot be obtained at the prices which are 
 or will be paid, especially as a Principal to preside over the 
 institution, as a whole, would still be required, of the same 
 eminent capacity as in a congregated one. 
 
 In Europe the same difficulties do not exist as to obtaining 
 a proper “house-mother,” “house-fathers,” “ elder brothers,” 
 etc., for the several houses. Persons are trained for this pur- 
 pose as for a Christian duty. Their places are comparatively 
 permanent, and the success of these schools is largely depend- 
 ent on these facts. 
 
 The “Reform School for Boys,” at Westborough, Mass., is 
 upon a mixed system, having a large central building upon 
 the congregated plan, and several houses, accommodating 
 thirty each, under the care of a man and his wife. Rev. Mr 
 Wines, the Secretary of the Prison Association of New York, 
 thus describes and speaks of the workings of this system : 
 
 “ All the boys committed to the Institution are first placed 
 in the congregated department, from which, as a reward of 
 
REFORMATORY INSTITUTIONS. 
 
 31 
 
 merit, they are promoted to one of the families when vacancies 
 occur in these by the discharge of their inmates. The mem- 
 bers of a family hold their positions subject to a forfeiture by 
 misconduct, in consequence of which, and as a punishment 
 therefor, they are sent back to the congregated department. 
 This arrangement is found in practice to operate as a power- 
 ful stimulus to good conduct; first, as a means of purchasing 
 a place in the family, where greater freedom and increased 
 privileges are enjoyed, and no less, secondly, as a means of re- 
 taining it.” 
 
 The judgment of the trustees on this point is thus expressed 
 in their report: “ We think the two systems, the congregate 
 and the family combined, are better than either separate.” 
 
 And it must be admitted that there are adyantages lying on 
 the surface, and obvious at a glance, in this combination. 
 
 Our own school has already one house outside of the high 
 enclosure intended for safe custody, and we believe that it is 
 proposed to erect another, and gradually, if they operate well, 
 to work into the mixed system. Our own judgment favors 
 this plan. We may safely pronounce our Reform School thus 
 far, a success. While it has not accomplished all the good that 
 the most sanguine anticipated, nor all that it can do, it has 
 been, and is doing, a good work in rescuing from a life of 
 vagrancy and crime a very large number of its inmates ; and 
 under the improved management that will come from a larger 
 experience and a more profound study, we may confidently 
 anticipate a greatly increased usefulness. 
 
 DETROIT HOUSE OF CORRECTION. 
 
 This institution has been in operation but a few years, but 
 it has already acquired a wide-spread and almost a national 
 reputation for remarkable success in several particulars. 
 
 1st. For its pecuniary success. 
 
 2d. For its success in maintaining a high standard of 
 discipline, without the use of the lash or similar modes of 
 punishment. 
 
32 
 
 REPORT ON PENAL AND 
 
 3d. For its success as an educational and reformatory insti- 
 tution. 
 
 This fact has led us to examine carefully into its manage- 
 ment and general workings. 
 
 It was peculiarly fortunate in obtaining for its Superintend- 
 ent one who had been educated for such work, and who 
 expected to make the management of prisoners a lifelong busi- 
 ness. He was not appointed as a reward for political services, 
 or with any reference to his political opinions, but he was 
 sought out in anather State, and selected and employed as 
 sensible business men would select and employ an agent for 
 a responsible position, with sole reference to his peculiar fitness 
 for the position ; and a salary has been paid sufficient to 
 obtain and retain his services. 
 
 The result is, that with prisoners whose confinement averages 
 but about one hundred days, during the eight years of its 
 existence the earnings of the House of Correction, over 
 expenses and deficits, have been sixty-nine thousand eight 
 hundred and thirty-seven dollars and eighty-three cents. 
 
 Its deficits were all within the first two years, so that in the 
 last six years its surplus has been eighty-one thousand three 
 hundred and seventeen dollars and ninety-seven cents, or an 
 average of thirteen thousand five hundred and fifty-three 
 dollars per annum. 
 
 We find that there is no practical difficulty in maintaining 
 discipline without the lash or similar punishments. 
 
 A spirit of order and obedience to the established rules gen- 
 erally pervades the institution, and flagrant disobedience is 
 very rare. 
 
 But we have been especially interested in the reformatory 
 efforts here put forth, and their results. 
 
 We think the efforts may be thus classified: 1st, Sanitary ; 
 2d, Educational ; 3d, Moral and Religious. 
 
 1st. Of the Sanitary. Good ventilation is secured, and clean- 
 
REFORMATORY INSTITUTIONS. 
 
 33 
 
 liness is everywhere enforced, both of the cells and rooms and 
 of the person. 
 
 There are ample opportunities for bathing the whole person, 
 and it is required as often as once a week, and sometimes 
 oftener. The result is that the health of the prisoners is 
 remarkably good. 
 
 Dr. Brown, in his report for the year 1869, says it has been 
 “ one of uninterrupted good health,” and adds that they are 
 indebted for this “ to the perfect ventilation of all the wards, 
 the system of cleanliness enforced in every department, the 
 frequent bathing of inmates, and the sound and wholesome 
 provision furnished.” During the past hot summer the same 
 general health has prevailed. 
 
 This cleanliness and good health is a good foundation for 
 other reformatory effort. 
 
 2d. Educational. The school is a very marked feature in 
 the House of Correction, and its success in arousing the 
 inmates to aspire to a higher ideal of life than they have before 
 cherished, and to an earnest effort to cultivate their faculties, 
 is very marked. It must be borne in mind that, as in most 
 prisons for adults, the majority of the prisoners are under 
 thirty years of age, and nearly half of them are under twenty- 
 five. 
 
 The school is held two evenings in the week in the chapel, 
 which is so arranged that both men and women may be pres- 
 ent without seeing each other. It is under the charge of an 
 accomplished teacher, Mr. Tarbell, of the Bishop Union 
 School, assisted by the chaplain, wiiile Miss Hall, also a most 
 capable teacher, has special charge of the women’s school. 
 
 Mr. Tarbell says: “The change in the appearance of the 
 prisoners is very manifest.” “ Those who arc doing the best 
 are the young men from twenty-five to thirty years of age.” 
 
 In addition to the ordinary course of teaching in classes, 
 Mr. Tarbell gives them a short lecture upon some interesting 
 topic connected with their education. In addition to this 
 
34 
 
 REPORT OK PEKAL AND 
 
 school, every Saturday afternoon during the winter season the 
 prisoners are collected in the chapel to listen to a short lec- 
 ture upon some interesting subject. These courses of lectures 
 have been really very valuable, and have deeply interested the 
 prisoners. 
 
 They have access also to a very good library, and books 
 therefrom are distributed to them by the chaplain. 
 
 3d. Moral and Religious Efforts. All experience in attempts 
 to reform prisoners has shown the importance of moral and 
 religious forces as elements in any true reform. Such forces 
 seem to have become especially potent here. The prisoners 
 are made to feel that the chaplain is their sympathizing friend. 
 
 He treats them not as a class by themselves, of criminals, 
 but as men and Avomen needing sympathy and help — needing 
 the strength and consolation which come from penitence and 
 from faith in a redeeming Saviour. They are earnestly taught 
 that they not only may , but that they ought to become true 
 Christians, and respectable members of society. Profound 
 religious impressions seem to have been made that are bring- 
 ing forth their legitimate fruit in this life. 
 
 Besides these special efforts, care is taken to make the pris- 
 oners feel that the very purpose of the punishment to which 
 they are subjected is correctional and curative, not merely 
 punitive, and that the officers in charge, as well as society in 
 general, are really seeking the good of the imprisoned, and 
 that in this, their own help and co-operation arc sought and are 
 needed. After careful inquiry we are satisfied that the result 
 of these reformatory efforts is hopeful and cheering. Those 
 results cannot be reduced to figures, or in any way very accur- 
 ately measured, but that many men and women have been 
 truly reformed, there seems to be no doubt. What has been 
 accomplished is sufficient to stimulate to greater efforts in the 
 same direction. 
 
 Amongst other things desirable to complete a system of 
 reformatory measures are, first, facilities for testing the char- 
 
REFORMATORY IKSTITUTIO N S. 
 
 35 
 
 acters of those hopefully reformed before their absolute dis- 
 charge, and, secondly , an efficient agency to procure, as far as 
 possible, home employment upon discharge. 
 
 Experience here, as elsewhere, has clearly shown that pris- 
 oners confined for short terms are not within the reach of 
 educational or reformatory infiuenees, and that they are dis- 
 charged without improvement, and to a great exent to go 
 through again the same routine of drunkenness, disorder, 
 profligacy, crime, arrest, conviction, and imprisonment. 
 
 It may be asked, what good purpose is served by such a 
 system ? 
 
 The House of Shelter for Women, under the care of Mrs. 
 Wiggins, as matron, and Miss Hall, as teacher, seems to be 
 arranged very judiciously, and gives promise of great good in 
 its efforts to restore sinning women to usefulness. 
 
 The value of such a refuge to the weak and erring cannot 
 well be estimated. 
 
 RECOMMENDATIONS. 
 
 Having thus referred to existing systems and institutions, 
 their merits and their defects, we now proceed, in the further 
 discharge of our duties, to make such suggestions and recom- 
 mendations for their improvement as seem to us advisable. 
 
 In some respects no State is better situated than our own 
 for making improvements, especially in the important matters 
 of dealing with pauperism and crime. 
 
 Except in tw r o or three counties the investments for poor- 
 house buildings are very small, and the farms occupied by them 
 are worth much more than they cost. 
 
 We have but one State Prison, and that is in a condition so 
 that it will require early and extensive repairs and improvements. 
 
 We can, without serious loss in any quarter, adopt such sys- 
 tems of caring for the poor, and of conducting prisons, as the 
 experience of other States and countries may suggest, and the 
 Legislature in its wisdom may deem the best, and such as are 
 
36 
 
 REPORT OK PEKAL AKD 
 
 most in accordance with the spirit of the age and the true 
 principles of Christian philanthropy. 
 
 COUNTY JAILS. 
 
 Any effective reform of our prison institutions must involve 
 a radical change in the existing county jail system. An evil 
 to be remedied, as pointed out in a previous part of this report, 
 is the want of means to separate prisoners awaiting trial, and 
 persons detained as witnesses, from those convicted and under- 
 going the sentence of the law. 
 
 Mainly on this account, to be accused of crime and confined 
 in jail awaiting the issue, hardly ever fails to attach a social 
 stigma to the individual, which even an honorable acquittal 
 does not entirely remove. He is liable as long as the memory 
 remains, to be twitted as a “jail bird.” 
 
 The demoralizing influence of this liability is only to be 
 fathomed by the degree of sensitiveness of the individual char- 
 acter. Some will feel its injustice more than others, but all are 
 hurt by it. The remedy must come from the drawing of a 
 line of demarkation between the accused and convicted, as 
 well defined in their practical t reament, as the law recognizes 
 in its theory, — presumptive innocence until guilt be proven. 
 To accomplish this, it seems to us indispensable that Houses 
 of Detention should be established for safe custody of the 
 accused, avoiding entirely the use of the term “ jail,” in this 
 connection. 
 
 The Executive Committee of the Prison Association of 
 ISew York, in their annual report for 1869, introduce the sub- 
 ject of the county jails of that State, in the following language : 
 “A popular preacher in Brooklyn said recently, in a sermon, 
 4 Look at our jails ! They are a disgrace to civilization. Some 
 are fit to put wild beasts in, but most of them are not.’ 
 The rhetoric is strong here, but there is a terrible basis of 
 truth underlying it. There may be half a dozen of the sixty- 
 eight jails in the State (though we could scarcely name as 
 
REFORMATORY INSTITUTIONS. 
 
 37 
 
 many) properly constructed to meet the exigencies of the 
 existing system ; but in general they are as faulty in construc- 
 tion and arrangement as they well can he, — dark, damp, 
 cramped, ill-ventilated, and gloomy in the extreme/’ This 
 description might also have been written for the jails in 
 Michigan. It is impossible to believe that the advancing civil- 
 ization of the age, and the knowledge to be derived from the 
 attraction of public attention at this time to the general sub- 
 ject of prison management, will permit this condition to be 
 permanent. Mistaken and ill-judged economy no doubt con- 
 tributes largely to produce the miserable state of so many of 
 our jails, and the question of cost will be one of the obstacles 
 to reform. Assuming, however, that public sentiment, once 
 awakened, will insist upon improvement, the necessity for 
 rebuilding or remodeling a great majority of the county jails 
 becomes at once apparent. 
 
 Should this course be taken, we see no reason why much 
 additional cost need be involved in remodeling the system as 
 well as the buildmgs ; and in all other respects, it would prove 
 a most favorable time for instituting measures for moral 
 reform. 
 
 Regarding our county jails, under the present mode, as hot- 
 beds for the propagation of crime and criminals, we hold the 
 best good of society, nay, that its very safety demands the 
 change which w r e suggest. Our view T s upon this subject are so 
 well expressed by the Prison Association of ISTew' York, that 
 we again quote from their twenty-fifth annual report : 
 
 “ County jails should be made simply houses of detention. 
 Their punitive character should be abrogated, and a class of 
 prisons, occupying a middle ground between the State Prison 
 and the common jail, established for the treatment of persons 
 convicted of minor offenses. Detention for trial, and punish- 
 ment on conviction, are essentially different processes, and ‘the 
 fitness of things’ requires in each a special method in har- 
 mony with its nature, and adapted to the end in view. There 
 
38 
 
 REPORT OX PEXAL AXD 
 
 is between the convicted and the accused the vast difference 
 which separates judicial certainty from simple suspicion. 
 Hence, the association of these two classes in prison is not only 
 an impropriety and a wrong, but a procedure contrary to 
 morals, to justice, to the public security, to humanity, which 
 no Christian nation should permit, and which the criminal 
 law ought, at whatever cost, to prohibit. * * * * Sepa- 
 
 rate imprisonment should be enforced in all common jails. 
 If association is the seminal evil of our jail system, the remedy 
 must be in individual imprisonment. The Prison Association 
 held this view from the start, and has maintained it through- 
 out. The reason on which, this view rests is not far to seek. 
 Persons under the arrest of justice, charged with different 
 offenses, almost always differ also in age, character, and moral 
 condition. Suppose ten, twenty, fifty such confined in the 
 same prison ; some of them will be wholly innocent, others 
 guilty of some slight misdemeanor, and others, still, utterly 
 blasted and gangrened by a long course of crime. Is it not a 
 supreme injustice to compel a contact of the former with the 
 latter, — to force upon the upright man, unjustly prosecuted, 
 the contiguity, morally and physically corrupting, of those 
 gross and foul natures who are awaiting their legitimate 
 punishment ? ” 
 
 A State that incarcerates one of her citizens for any cause, 
 Is bound, by every principle of rectitude, to use all possible 
 precautions against his being restored to society a worse man 
 than when he was arrested. To secure this, the Houses of 
 Detention must be well constructed and well governed, and 
 .should have provision for regular employment and instruction. 
 
 In this connection, we quote from the report of a commit- 
 tee on prison architecture, to the Legislature of the State of 
 New York: 
 
 “With the sole exception of the deprivation of liberty, 
 nothing in these places of detention ought to take on the 
 afflictive austerity of the prison. No doubt every citizen* 
 
REFORMATORY INSTITUTIONS. 
 
 39 
 
 when the public weal requires it, is bound to pay the painful 
 tribute of a forced detention, till his innocence is established ; 
 but justice demands a detention which separates him from all 
 impure contact. To meet this demand requires that we 
 advance one step further ; that is, that we keep the accused 
 from one another by means of cellular separation, the only 
 proper and rational mode of detention for this class of pris- 
 oners. To refuse to the accused such a shield against con- 
 tamination is at once a denial of the right and an abuse of 
 power. It is to impose on him a punishment which may have 
 the gravest consequences, both for himself and society, and 
 which, therefore, no plea can either justify or excuse.” 
 
 These Houses of Detention should be subject to supervisory 
 inspection from the Central Board, should one be established, 
 as hereinafter suggested. 
 
 INTERMEDIATE PRISONS. 
 
 The adoption of our recommendation in regard to county 
 jails being used only as houses of detention, would involve the 
 necessity of providing some other means of custody for the 
 class of prisoners sentenced to confinement in the common 
 jails under the present system. To send them to the State 
 Prison is not to be thought of, for reasons so obvious as not to 
 need enumeration. How, then, are they to be held, and how 
 treated ? We answer, by the institution of a class of inter- 
 mediate, District Prisons, of which the Detroit House of 
 Correction, already spoken of, may be taken as a type, to occupy 
 a middle place between the House of Detention and the State 
 Prison proper. These District Prisons might be located at 
 convenient points in the State, and we consider should be 
 under State control. They should be reformatory in character 
 in the most practical sense. All persons convicted of minor 
 offenses should be sent to them and put to work. Among the 
 advantages of such prisons may be suggested : the opportunity 
 their management should afford for classifying the prisoners ; 
 that industrial labor might be fully organized in them, and 
 
40 
 
 REPORT ON PENAL AND 
 
 the cost of crime be diminished by the income derived from 
 such labor; not one of which advantages can be derived under 
 the county jail system, to say nothing of the importance of 
 getting rid of the demoralizing contamination which the latter 
 system entails. 
 
 Besides these improvements separate departments for impris- 
 onment of the young might fitly form a feature in the system, 
 and the State Prison might properly be relieved by the con- 
 finement in these institutions of convicts now sent there on 
 short sentences. 
 
 REFORM. 
 
 An adequate and satisfactory system of prison discipline has 
 been defined to include the reformation of the criminal, the 
 punishment of crime, and the protection of society. H aving 
 already seen the extent to which the system of jurisprudence 
 established by society is responsible for the propagation of 
 crime, we may well question the right of society very rigidly 
 to visit punishment upon the individual for the offense it has 
 been a main instrument in creating, or at least in causing him 
 to commit. Neither ought we to overlook, in this connection, 
 the well established fact of hereditary inheritance of a ten- 
 dency to vicious habits, leading eventually to criminal acts, 
 which partakes of the nature of a disease, that deprives the 
 possessor of full control of his moral faculties, if it do not 
 even divest him of consciousness of their existence, and which 
 certainly blunts his perceptions of the difference between right 
 and wrong, Then, when considering the protection of society 
 as involved in this definition of prison discipline, it needs no 
 argument to demonstrate that there is no method by which 
 society can do so much to protect itself, as through the 
 reformation, if practicable, of the criminal. Hence the propo- 
 sition for reformation might not improperly be regarded as 
 embracing the whole. 
 
 Researches into criminal statistics reveal the fact that in 
 the State Prisons of the United States the proportion of minors 
 
REFORMATORY INSTITUTIONS. 
 
 41 
 
 incarcerated, taking the average in them all, is over twenty 
 per cent ; that in one it rises to nearly fifty per cent ; and 
 that in several others it exeeeds one-fourth of the whole 
 number; that the tendency in every department of vice and 
 crime seems to be of late years youthward ; that thieves, pick- 
 pockets, burglars, and indeed every class of criminals, average 
 many years younger now than they did a quarter of a century 
 ago ; and that the same is true of drunkards. Such being 
 the testimony of the Executive Committee of the Prison 
 Association of New York, can an organized and well devised 
 attempt at reformatory discipline, such as our present system 
 does not afford, begin too soon ? 
 
 Although laboring under the difficulty of having to deal in 
 the main with very short sentenced conviets, the Detroit 
 House of Correction presents, in its management and influ- 
 ence, the best example of a reformatory, or intermediate prison, 
 with which we are acquainted in this country. Its accom- 
 plished superintendent, Z. R. Brockway, Esq., in an able paper 
 contributed to the twenty-fourth annual report of the Prison 
 Association of New York, says: “The design of these insti- 
 tutions is two-fold, viz: preventive and reformatory, — to 
 restrain and prevent the manifestation of the vicious inclin- 
 ations of the class described, and to improve the character of 
 the individuals who commit offenses and are imprisoned there- 
 for. The true interests of society are best promoted by those 
 measures that prevent the perpetration of offenses and the 
 growth of bad character in its members; for every infraction 
 of law not only mars the character of the offender, and brings 
 into activity a bad element, but is a shock to the fabric of 
 society, weakening the whole structure in proportion to the 
 trivial or heinous character of the offense. The Christian 
 institutions, benevolent and charitable societies, and educa- 
 tional establishments, are all, in the nature of their organiza- 
 tion, admirably adapted to this work ; but as their influence 
 does not perfectly accomplish this end, some other provision 
 
 0 
 
KEPOItT ON PENAL AND 
 
 42 
 
 is necessary for the treatment of those who bn ak through 
 these restraints, and actually enter upon a vicious course, lead- 
 ing, as vicious practices always do, towards the commission of 
 the higher crimes. * * * * The reformatory designs of 
 these establishments must not and need not be lost sight of 
 in our zeal for their preventive influence, for the highest' wel- 
 fare of the inmates is perfectly consonant with the bestw'elfare 
 of society at large. I do not hesitate to say, that in the reforma- 
 tion of prisoners, and in wise efforts to that end, will be 
 found a key to the true prison system, and the soundest 
 criminal code. * * * * * * 
 
 “ The design of these municipal or intermediate establish- 
 ments, then, may be stated to be the treatment of persons who 
 commit offenses against society, known as misdemeanors, with 
 the view to exert a preventive and reformatory power, the 
 preventive force beiug most surely had, and in largest meas- 
 ure, by locating, constructing, organizing, and administering 
 them for the main purpose of reformation. * * * 
 
 “ They must be legislated into existence as a part of society, 
 in harmony with every means she adopts for her preservation 
 and the highest development and welfare of her members. 
 Just as hospitals and asylums are instituted to heal physi- 
 cal and mental disease, so these prisons should be established 
 to cure moral deformity. They are needed as adjuncts to the 
 various refining and purifying agencies, to make further effort 
 in the same direction for those who arc not held by them to 
 symmetrical, moral development, and who become an offense 
 to society in spite of them.'’ 
 
 The unavoidable length of this report must prevent us from 
 entering into much detail on what may be considered the best 
 system of reformatory prison discipline, on W'hich much differ- 
 ence of opinion exists among those who have made it their 
 study. We must content ourselves with a glance at the lead- 
 ing: features of those which seem to have met with the best 
 success, [f the fundamental principles meet the approval of 
 
REFORMATORY INSTITUTIONS. 
 
 43 
 
 the legislative body, the details would be a lit subject for future 
 consideration. 
 
 SHORT SENTENCES. 
 
 At tlio outset one of the greatest obstacles to reform, com- 
 plained of by prison officers and others, is the prevalence of 
 short sentences. Earl Stanley, some years since, said in an 
 address on reformatory institutions: “It is proved by a con- 
 currence of testimony that short imprisonments are not 
 reformatory in their effect; that usually they send back the 
 offender more hardened than he went in. The difficulty is 
 not to find witnesses on this point, but to choose them. I 
 believe there is not a governor of a gaol, not a chaplain, not 
 a chairman of the quarter session, who is not here of one 
 mind.” 
 
 Dr. Staats, physician of the Albany, If. Y., Penitentiary, 
 one of the model prisons of the United States, says in his 
 report for 1868 : “The ten-day cases — convictions for public 
 intoxication — have been numerous, and have required much 
 of our care and attention ; all of little avail, however, for, to 
 judge from the frequency with which these persons return to 
 the penitentiary, their brief season of abstinence, instead of 
 quenching the appetite for strong drink, only enhances its 
 intensity. It is mortifying to notice, year after year, the 
 extent to which our hospital is made an infirmary for habitual 
 drunkards.” A.nd the Board of Inspectors of the same insti- 
 tution, speaking of the income of the penitentiary, observe : 
 “ The relative falling off in this particular will prove very con- 
 siderable, if we are obliged to devote a large share of the earn- 
 ings of our efficient hands to the support of a battalion of ten 
 to sixty-day men and habitual drunkards, wdio ivaste the sub- 
 stance of the institution without any return, or even benefit 
 to themselves.” 
 
 The Rev. David Dyer, in an essay entitled “ Impressions of 
 Prison Life in Great Britain,” remarks: “I was led more 
 deeply than ever to feel the inutility, as a general rule, of short 
 
44 
 
 REPORT 0>s PENAL AND 
 
 sentences. In the first visits I made, I was surprised to find 
 so many persons confined for periods extending from two to 
 seven days, during which time they were generally subject to 
 low diet and hard labor. On inquiring the reason for such 
 sentences and treatment, I was repeatedly told that the preva- 
 lent practice in Great Britain is to subject those who have 
 been found guilty of petty offenses, to a short, sharp, deterrent 
 course of punishment, that they might be kept from the fur- 
 ther commission of crime. I asked if this was the practical 
 result of this course, and I was assured that it was not, for 
 that the number of recommittals, which were chiefly from this 
 class of convicts, was very large, not less than thirty-nine per 
 cent, and these have increased ten per cent within the last ten 
 years. I repeatedly inquired of different prison governors, 
 whether they thought such sentences generally useful, and the 
 answer I received invariably was an emphatic No. Some 
 added, They are baneful in their effect, and pointed to the large 
 number of recommittals as jjroof. On asking what they would 
 do with persons who had been repeatedly convicted and sen- 
 tenced for short periods, they replied: ‘Make every additional 
 offense a heightened aggravation, and impose a proportionate 
 punishment/” 
 
 The Howard Association, a society formed in London for 
 the improvement of prison discipline, say: ** These repeated 
 short sentences are very mischievous. For further committals 
 there should be sentences of sufficient duration to form habits 
 of labor, in collective, industrial occupations, and to impart an 
 ability to earn an honest living.” 
 
 General Pillsbury, Superintendent of the Albany, N. Y., 
 Penitentiary, whose reputation as an experienced and most 
 successful prison official is cosmopolitan, in his annual report 
 for 1869, to the Inspectors, says on this subject : “ Of the 1,029 ! 
 prisoners received during the year, 864 (or more than four- ; 
 fifths) admitted themselves to have been intemperate, and 795 
 (or more than three-fourths) were committed for terms of less ! 
 
REFORMATORY INSTITUTIONS. 
 
 45 
 
 than six months. A great many of these were persons con- 
 victed of public intoxication and sent here for ten, twenty, 
 or thirty days, in default of payment of some small fine. It is 
 for the lawgivers to determine whether imprisonment in the 
 penitentiary is the best punishment for public intoxication in 
 any case, but if it is designed to have any effect in curing the 
 vice of drunkenness, a term of not less than six months should 
 be imposed in all cases of second or further conviction. Under 
 the existing law, it is not unfrequent for the same individuals 
 to be convicted ten, twenty, or thirty times of public intoxica- 
 tion, and on each occasion committed for a few days. The 
 records of this institution are full of such instances. On our 
 books for the past year, I notice one case where a prisoner con- 
 victed of public intoxication for the thirty-third time, was sen- 
 tenced to be commilted here twenty days, or to pay a fine of 
 five dollars; and in default of this paltry fine, the trifling term 
 of twenty days’ imprisonment was the penalty enforced. Such 
 prisoners are a constantly recurring burden upon the institu- 
 tion, and consequently upon the county, for they are unfit to 
 labor during flic short time they are confined after their 
 debauch, and they go forth unreformed and unimproved, only 
 to repeat the same offense of public intoxication, and to be 
 sent back to prison for another equally brief and useless period. 
 If they were sent to the penitentiary for a term of not less 
 than six months, there might be some hope of weaning them 
 from their vicious and destructive habit, and restoring them 
 to such a bodily condition as would fit them for useful labor.” 
 
 We might multiply such testimony, but enough has been 
 quoted to show that short sentences are opposed to reforma- 
 tion, and financially a burden to the institutions. 
 
 INDETERMINATE SENTENCES. 
 
 It ma}^ be asked if it can be consistent with justice to inflict 
 long terms of imprisonment for minor offenses. The answer 
 involves a feature of criminal jurisprudence new in this State, 
 but the principle of which has been tried with marked«success 
 
4 a 
 
 REPORT ON PENAL AND 
 
 elsewhere; that is, to sentence the convicted offender for a 
 term to be determined by the evidence of reformation, and 
 detain him in custody until he shall, by reliable tests, demon- 
 strate that he has the will and the power to abandon his crim- 
 inal propensities. The doctrine that the offender should be 
 detained until by his own efforts and conduct he shall have 
 earned the right to be free, originated with that profound 
 thinker, Archbishop Whately. Since its first suggestion, it has 
 been growing in favor, and has been adopted as the true prin- 
 ciple, by many of the most active, progressive, best-informed, 
 and thoroughly practical philanthropists among those who 
 have devoted their attention to prison administration, as well 
 by prison officers as by those who in other capacities are giving 
 their time to the benevolent object of ameliorating prison 
 discipline and reforming the criminal classes. This method 
 is strongly advocated by Rev. Dr. Wines, corresponding secre- 
 tary of the New York Prison Association, who defines it thus : 
 “ It is based on the idea that the criminal is a dangerous man, 
 or, if you please, a morally insane man, whom it is not safe to 
 suffer to go at large ; and therefore he must be restrained of 
 his liberty, till, like other madmen, his cure has been effected, 
 and he may be set free without new peril to the community. 
 Or to state the same principle in other words, men who have 
 committed crime have thereby forfeited their privileges in 
 society, and before they can regain them, they must give satis- 
 factory proof that they again deserve and are not likely to 
 abuse them. Can anything be more conformable to abstract 
 reason and natural justice than such a principle? It would 
 not, as might be supposed on a superficial view, proscribe pun- 
 ishment as such, which will always be necessary both to teach 
 the lesson that ‘ the way of the transgressor is hard * and to 
 induce penitence and submission ; still less would it leave out 
 of view the object of setting a deterring example. What it 
 would do would be to raise the character of both these elements 
 in criminal treatment, placing the first in the light of a benev- 
 
REFORMATORY INSTITUTIONS. 47 
 
 olent means by making it an agency of reformation, — whereas 
 at present it is too often regarded as a vindictive end , — and 
 securing the second by showing the law constantly and neces- 
 sarily victorious over individual obstinacy , instead of being, as 
 now, frequently defeated by it. No doubt much of the hard- 
 ness of old offenders arises at present from the gratification of 
 pride in braving the worst that the law can inflict, and main- 
 taining an ungovernable will amid all its severities. But for 
 this pride there would be no place in a system in which more 
 endurance could serve no useful end, and only submission , 
 obedience , and reformation could restore to freedom. Under 
 such a system the voice of the law to a convicted felon would 
 be: f You have broken one of the first laws of society; you 
 have shown yourself unfit to go at large ; you must be separ- 
 ated for a season from your fellows ; you friust suffer the 
 penalty which the law has righteously annexed to transgres- 
 sion ; you must be shut up in prison and remain there until 
 you give evidence that you are a changed man, and can be 
 safely permitted to enjoy your freedom. In thus dealing with 
 you, society has no resentments to gratify, no vengeance to 
 inflict. It is for your good, as well as for her safety, that she 
 so afflicts you ; you must be punished for what you have done ; 
 but while you are in prison we will give you every chance to 
 recover yourself. Nay, more, we will help you in that work. 
 If you are ignorant, we will give you an opportunity of learn- 
 ing in the prison school what you ought to have learned in the 
 common school. If you never learned a trade, we will put you 
 in possession of one. If religious truth was withheld from 
 you in childhood, you shall be made acquainted with it in 
 your adult age. We will, through these various agencies, 
 impart to you the power, and we would fain hope the disposi- 
 tion, to earn and eat honest bread. But you must work with 
 us ; your will must be in accord with ours ; your efforts must 
 tend in the same direction ; there must be, on your part, a real 
 and hearty co-operation with us. On this condition alone can 
 
48 
 
 REPORT ON PENAL AND 
 
 you attain that radical reformation of character to which we 
 wish to bring you, and the attainment of which is indispensa- 
 ble to your liberation. Until you show to our satisfaction 
 that you can be restored to freedom with safety to the com- 
 munity, your imprisonment must continue; and if you never 
 giye us such satisfaction, then you never can be discharged, 
 your imprisonment will be for life. We do not set the mad- 
 man free till he is cured of his madness ; neither can we safe- 
 ly, or even justly, set the criminal free till he is cured of his 
 propensity to crime. As the security of society and the good 
 of the lunatic require that his confinement should be regulated 
 upon this principle, so equally do the security of society and 
 the good of the criminal demand that his incarceration should 
 be adjusted upon the same principle. We put your fate into 
 your own hands, and it is for you to determine the period, 
 within certain necessary limits, during which the restraint 
 upon your liberty shall continue. You may either prolong it 
 to the close of yonr life, or restrict it to a duration which you 
 yourself will allow to be but reasonable and just.’” 
 
 Mr. Brockway, of the Detroit House of Correction, has 
 strongly enforced similar views on various occasions. In his 
 annual report for 1868, he says, in speaking of prostitutes, 
 vagrants, confirmed pilferers, and those whose appetites or pas- 
 sions are beyond their control, who by indulgence become 
 dangerous members of society and are convicted of misde- 
 meanors : “ Experience has demonstrated, that to sentence such 
 persons to imprisonment for definite periods of time frequently 
 subverts the purpose in view, and is almost always a hindrance ; 
 for the effect of too long sentences is depressing, and if too 
 brief, diverting, so that in either case that mental process 
 essential to reformation is prevented or destroyed. Human 
 wisdom is insufficient to adjust the sentence at the time of 
 imposing it, as now done, so as to avoid this consequence, and 
 I am satisfied that it can only be accomplished by the aid of 
 that observation of the character and conduct to be had sub- 
 
REFORMATORY INSTITUTION'S. 
 
 49 
 
 sequent to the commitment of the prisoner. There cannot 
 certainly be an increase of liability to erroneous and unjust 
 sentences, by leaving the duration of imprisonment to he de- 
 termined by competent authority after suitable opportunity for 
 observing the prisoner, but on the contrary it must be lessened 
 by such a course.” 
 
 In his essay on “ Intermediate Prisons,” before referred to, 
 the same gentleman says, “ Every consideration that warrants 
 the commitment of men to hospital or asylum until, in the 
 opinion of competent persons, they are sufficiently healed to 
 return to society without injury, is an argument for holding in 
 custody persons of such moral character as to render them 
 inimical to the general welfare, until they are changed, and can 
 mingle with their fellows without contaminating them. And 
 when such persons reach this point they should not be held 
 in confinement because of arbitrary sentence. This standard 
 of legislation possibly cannot be reached at once, but effort in 
 this direction should be made in the organization of every new 
 establishment.” 
 
 As the result of much discussion on this topic in Great 
 Britain, the London Times remarked: “ We believe it will be 
 found the cheapest and most politic course, as well as the most 
 humane, to leave no stone unturned to bring about the 
 reformation of criminals, and not to discharge them upon 
 society until they are reformed. In desperate cases we must 
 even acquiesce in the conclusion of imprisonment for life.” 
 And the London Spectator adds on this subject, that the 
 detention of criminals until their reformation would be 
 justified upon the same grounds that justify the detention of 
 the insane. As long as they are criminally disposed they are 
 morally insane, and should be in safe custody. As soon as 
 they have ceased to be criminally disposed, and become dis- 
 posed, like ordinary people, to earn their livelihood in an 
 honest way, they are cured of their insanity, and may safely 
 go at large.” 
 
50 
 
 REPORT 0 N PENAL AND 
 
 Nowhere, perhaps, are the arguments in favor of this prin- 
 ciple more forcibly presented than in a paper addressed to Rev. 
 Dr. Wines, and read at the National Congress on Penitentiary 
 and Reformatory Discipline, held at Cincinnati, Ohio, in 
 October of the present year. The writer is Matthew Daven- 
 port Hill, recognized as one of the ablest criminal jurists of 
 Great Britain, who brings to the consideration of the subject 
 the knowledge gained from an experience of about forty years 
 as Judge of the Recorder’s Court of the city of Birmingham, 
 in England. 
 
 He maintains, substantially, that all punishment is a means 
 to an end, not the end itself, — the end being the diminution of 
 crime; yet he would not contemn any other good which may 
 be incident to the means adopted to secure that result As a 
 general principle, the diminution of crime, so far as it is to be 
 effected by punishment, must be sought for in the reformation 
 of the criminal, and for that purpose it is a necessary and a 
 legitimate exercise of human authority to detain him until 
 this effect shall have been produced. 
 
 A criminal is a man who has suffered under a disease, 
 exhibiting itself in the perpetration of crime, and who may 
 reasonably be held to be under the dominion of such disease, 
 until his conduct afford very strong presumption not only that 
 he is free from its immediate influence, but that the chances 
 of its recurrence have become exceedingly remote. It will be 
 at once admitted that if we could, with certainty, so train a 
 criminal during his imprisonment as to relieve him forever 
 from all disposition to relapse into crime, any length of incar- 
 ceration would be well spent, both as regards the interests of 
 society, and especially as regards the interest of the criminal. 
 
 If the offender must be sent to prison, what is to measure 
 the duration of the punishment? Time sentences are so 
 familiar to our minds, and enforced by such long ages of 
 prescription, that an inquiry into their reasonableness demands 
 efforts which few can be induced to make. In apportioning a 
 
REFORMATORY INSTITUTIONS. 
 
 51 
 
 time sentence to a given offense we assume that some assign- 
 able proportion exists between offenses and inflictions, — that a 
 pounds weight of crime should be visited with a pound's 
 weight of punishment, — but the vague proportion we are able 
 to establish in our minds carries us a very little way towards 
 the exactitude required for practical purposes. This failure is 
 manifested by daily experience. Whenever a case is tried by a 
 plurality of judges, it is well known that it is only by com- 
 promise they agree upon a sentence wherever the Legislature 
 has left them discretionary power. If this be true of judges, 
 who, sitting together month after month, are worn with an 
 approach to mental uniformity, the difference of apportion- 
 ment between one court and another must be so great as to 
 preclude all hopes that crimes meet, as a rule, with their 
 desert, neither more nor less. In our attempt to award pain 
 according to desert, we are fated to err, either on the side of 
 mercy or severity. When the jury has convicted the prisoner, 
 it remains to be considered whether the offense is mitigated or 
 aggravated by its incidents ; whether the prisoner is young or 
 of mature age ; whether he has had the advantages of educa- 
 tion, or been under the influence of ignorance and evil associ- 
 ations; whether or not he has been previously convicted; 
 whether his deviation from rectitude seems an exception or 
 indicates the rule of his life. All these and many other points 
 for consideration will rise up in the mind of a thoughtful 
 judge, but they will assuredly not be dealt with by any two 
 minds so as to result in the same infliction. And if we take 
 into account the modifications of opinion which society under- 
 goes from time to time, and observe its effect on the sentences 
 pronounced at various periods for offenses of similar magni- 
 tude, we shall all come to the conclusion, that standards of 
 punishment are much more easy to imagine than to realize. 
 Having watched the operation of non-reformatory punishments 
 for more than half a century, Mr. Hill offers himself as a 
 witness to the illusory nature of all expectation that they can 
 
52 
 
 REPORT OK PEKAL AKD 
 
 be made effectual as deterrents from repetition of crime. If, 
 then (he says), it be impossible to duly adjust penalties, and if 
 simply deterrent punishments are inefficacious, in what prin- 
 ciple can we find refuge except that of reformation or cure ? 
 But as a cure cannot be predicted in any case with absolute 
 certainty, the time required for its accomplishment cannot be 
 measured in advance, and there is no rational alternative but 
 that of sentences undefined in extent. 
 
 The next, and perhaps the most important to be considered, 
 is, how shall it be ascertained when the moral cure is accom- 
 plished? Premising that a strong presumption in favor of 
 reformation is all the certainty that the nature of the case will 
 admit of, and bearing in mind that upon careful analysis all 
 moral certainty resolves itself into a high degree of probability, 
 — such a probability as justifies us in acting upon it, — we find 
 the problem practically solved for us, not only in the Old 
 World, but in the New. 
 
 IRISH PRISOK SYSTEM. 
 
 The former we find in what is known as “ The Irish Prison 
 System,” devised and inaugurated at Dublin in 1854, by Sir 
 Walter Crofton; the latter in the government of the New 
 York House of Refuge on Randall’s Island. 
 
 Under the Irish system, the convict is brought to under- 
 stand that his fate is measurably in his own hands ; and the 
 opportunity is afforded him, during his imprisonment, through 
 industry, learning, and good conduct, to raise himself, step by 
 step, to positions of greater freedom and comfort, while idle- 
 ness and bad conduct produce the contrary result. There are 
 four distinct stages in this system. 
 
 The first stage is one of solitary confinement under circum- 
 stances of great privation, designed, apparently, to show the 
 'power of the government to compel the most refractory to obe- 
 dience, as well as to demonstrate in the future by its contrast 
 with the indulgences of the more advanced stages, the advan- 
 
ItEFO RMATORY INSTITUTIONS. 
 
 53 
 
 tages to be gained by good conduct, and what the prisoner may 
 be liable to fall back to, by remand, for ill conduct. Under its 
 discipline the most obdurate and defiant wills are found to 
 yield. The duration of this strict imprisonment is usually 
 eight months, but may be reduced by uniform good conduct. 
 At the end of the first four months, however, the privations 
 are considerably modified. At first the seclusion is absolute ; 
 then the cell door is thrown open a part of the day 3 and after- 
 wards during the whole day. This is felt to be a great privil- 
 ege after four months of total seclusion, and is withdrawn for 
 any misconduct. Meantime, the system is minutely explained 
 to the prisoner, and the explanations are repeated till he fully 
 understands them and is impressed with the conviction that 
 his condition during his imprisonment will depend mainly on 
 his own conduct, while his treatment by the officers satisfies 
 him that they are really concerned for his welfare. The usual 
 effect of this first stage of imprisonment is to plant in the con- 
 vict’s mind the feeling that there must be an active co-operation 
 on his part with his keepers in the effort to effect his improve- 
 ment, moral, mental, and industrial. Its operation is to cause 
 the antagonism he first felt towards the authorities to gradually 
 melt away, and replace it with the feeling that kindness and 
 sympathy have met him where he looked only for harshness 
 and oppression. 
 
 The second stage embraces four classes of different grades. 
 Its operation is that of progressive classification, in which the 
 convict advances from one grade to another by merit marks ; 
 these marks being given severally for general good conduct, for 
 diligence at work, and for the desire shown for improvement in 
 education , — not for actual progress made. 
 
 The design of the marks given is in a great measure to 
 realize to the mind of the convict “ that his progress to liberty, 
 within the period of his sentence, can be furthered only by the 
 cultivation and application of qualities opposed to those which 
 led to his conviction.” Mainfold inducements to good conduct 
 
54 
 
 KEPOBT OlH PEKAL AXD 
 
 and obedience are held out to the convicts in this stage, 
 besides the progress toward liberation within their several 
 terms of sentence. Such distinctions between the several 
 classes are made, and such rewards and privileges are granted 
 to each, as, without impairing the discipline, are fitted to invite 
 and encourage them in a course of vigorous self-restraint and 
 self-culture, the great effort of the authorities being to induce 
 the prisoner to become the principal agent in his own reform- 
 ation. 
 
 The third stage of this system is termed the “ intermediate 
 prison,” and is so called because it holds a middle ground 
 between an imprisoment strictly penal and a condition of 
 full liberty-. The imprisonment here is almost wholly moral. 
 Walls, bars, and bolts are discarded, and very little supervision 
 is employed. In the Irish system, two principles are never 
 lost sight of, viz., first , the necessity of placing the felon at 
 the outset under rigid restraint, and making him feel “ that 
 the way of the transgressor is hard second , the reformation 
 of the offender being the ultimate object in view, that this 
 restraint must be gradually relaxed, and the lesson of active 
 exertion and self-control be imparted in place of that of mere 
 passive submission to authority. This third stage is but 
 slightly penal, and those passing through it have almost as 
 much freedom as laboring people in civil life. While engaged 
 in the labors of the day they converse together as freely as 
 laboring men do, no restriction being placed upon them in this 
 respect, except those self-imposed restraints which result from 
 an honest and diligent attention to work. 
 
 Instruction, religious and secular, is still faithfully imparted. 
 The almost unfailing effect of this course of training is a 
 waking up of the dormant powers of intellect, and a develop- 
 ment of all the elements of manhood. 
 
 The fourth stage of the Irish convict system is a period of 
 further and final test of the reformation of the convict, lie 
 is discharged from the intermediate prison under a conditional 
 
REFORMATORY INSTITUTIONS. 
 
 55 
 
 pardon, certified by what is called a ticket-of-leave, or ticket 
 of license. 
 
 The convict who violates any of the conditions of his license 
 and thereby forfeits the same, is sure to be returned to close 
 confinement, but he is eligible to promotion again by good 
 conduct. No convict, however, who has passed through all 
 the successive stages of this system, and after a full discharge, 
 commits fresh crime, and is again sentenced to prison, is per- 
 mitted to go through the same course of training and trial a 
 second time. Police supervision of convicts released on license 
 is real and effective in Ireland. The conditions of the license 
 are stringently enforced, a course which has proved as beneficial 
 to the convict as it has to the public. 
 
 The foregoing sketch of the nature of the Irish Prison 
 System is condensed from a detailed account of the same 
 contributed to “ Hours at Home,” by the Corresponding 
 Secretary of the New York Prison Association. 
 
 It is proper, lest misconception should arise from the use of 
 similar terms for dissimilar things, that we should point out 
 the distinction between prisons bearing the common term 
 “intermediate.” The prison called “ intermediate” in the 
 Irish system is one occupying a place between strict penal 
 confinement and full liberty; the “intermediate prison” 
 recommended in this report, and the institution to which the 
 term is generally applied in this country, is one occupying a 
 place between the House of Detention, or the County Jail, 
 and the State Prison. 
 
 NEW YORK HOUSE OF REFUGE. 
 
 The solution on this continent of the problem for ascer- 
 taining the cure of the criminal disease, is to be found in the 
 system of management of the House of Refuge, under the very 
 able superintendency of Mr. Israel C. Jones, on Randall’s 
 Island, New York. It is true this institution was created and 
 is maintained for the care and reform of juvenile delinquents, 
 
56 
 
 REPORT OX PEXAL A XI) 
 
 but its system does not on that account appear to us to be less 
 applicable for adult reformatories. 
 
 As in the Irish prisons, which we have just been consider- 
 ing, the leading feature of the New York House of Refuge is 
 the mark system. 
 
 In the second annual report of the Board of State Commis- 
 sioners of Public Charities, made in 1869, the Commissioners 
 give the following synopsis of the plan on which this admirable 
 institution is conducted : 
 
 “ This institution is organized on the congregate plan, 
 and not on the family or separate system. Its leading feature 
 consists in its system of grades, of which there are four. The 
 rank of the child in these depends upon good conduct, which 
 is established by daily marks. The grade is re-settled each 
 week in the presence of the division, and the child’s rank is 
 raised or lowered according to the number of marks. The 
 continuance' in grade number one for three months advances 
 the child to the Class of Honor, and like good conduct for one 
 year entitles him to a discharge if the highest class in school 
 has been attained. The power of earning a discharge has a 
 most important influence upon good conduct. It is said that 
 every boy knows his position in reference to a discharge, and 
 can respond at once when he can be released. The managers 
 have seized upon the golden rule, that ‘punishment should 
 be made to consist as far as possible in the taking away of 
 privileges conceded for good conduct/ It is believed that 
 there is a power in this principle not half understood, and that 
 it may be made, with perfect publicity and fairness of adminis- 
 tration, productive of the most valuable results. 
 
 “As a general rule, young men under twenty-one should be 
 sent to an institution organized on the plan of a reformatory. 
 Their sentences should be 4 reformatory sentences,’ and they 
 should be able to earn their discharge by good conduct. A 
 new institution might be established which should embrace all 
 young men of this class between sixteen and twenty-one. 
 
REFORMATORY INSTITUTIONS. 
 
 This is believed to be the great need of the hour. The annual 
 stream which is pouring into our State Prisons might thus, in 
 a measure, be checked.” 
 
 The spirit governing the method of classification in the 
 House of Refuge is well illustrated in the following section of 
 chapter XXI, of the by-laws of the institution : 
 
 “ Section 1. The boys shall be separated into three divisions, 
 to occupy separate portions of the main building, and shall be 
 designated as the First , Second , and Third Divisions. Those 
 who, from their previous career, may be deemed to be disposed 
 and likely to contaminate their companions, or who may 
 exhibit an intractable disposition either before commitment or 
 during their residence in the House, shall be included in the 
 Second and Third Divisions, and occupy the north wing ; those 
 of a less depraved character, and more liable to be injured by 
 the corrupting companionship of hardened offenders, shall be 
 included in the First Division and occupy the south wing. 
 The age of the inmate shall not be conclusive in determining 
 his position, but the danger of imparting and receiving contam- 
 ination shall be the main consideration.” 
 
 The chaplain of the institution. Rev. B. K. Pierce, D. D., in 
 his interesting volume — “A Half Century with Juvenile 
 Delinquents,” remarks : “ The marked feature of the House 
 
 of Refuge at the present time is, the practical direction which 
 has been given to its long-established system of grades, and 
 the important office which it is made to accomplish in the 
 discipline of the House. So manifest has been the effect, that 
 the lock-ups, which were constructed in the House at its open- 
 ing for separate and solitary punishment, have been every one 
 of them removed, and a large, open dormitory lias been con- 
 structed in their place. Corporal punishment has been in this 
 way reduced to an exceedingly small percentage, and a general 
 appearance of cheerfulness and hopefulness has been secured 
 throughout the institution. In the Appendix to this volume 
 the system is presented in detail. The boy is met when he 
 8 
 
58 
 
 REPORT ON PENAL AND 
 
 enters the House (and the same is true of the girl) with the 
 assurance that the hour of his discharge is in his own hands. 
 The two simple rules of the Refuge (1st, ‘ Tell no lies/ — 2d, 
 ‘ Always do the best you can’ ) are recited to him, and the 
 effect of obedience to them upon his standing and comfort in 
 the House, and upon the time of his discharge, is clearly and 
 fully explained to him. If in the school, in the shop, in the 
 yard, and everywhere, he always tells the truth and does the 
 best he knows how, he will receive and hold the grade 1. If 
 he retains this grade for a year, and has advanced to the fourth 
 class in school, he has purchased his discharge by good con- 
 duct, and the door that has detained him opens before him as 
 soon as his friends or the institution can secure a suitable 
 place for him.” 
 
 The Superintendent, Mr. Jones, in his annual report for last 
 year, says: 
 
 “ In this way a new life is begun, self-restraint is imposed, 
 diligence, hitherto untried, is acquired, and by perseverance in 
 well-doing, inspired, it may be, at first not by the highest 
 motives, good habits become fixed. By securing the respect 
 of others the lad learns to respect himself, and gradually but 
 surely an entire reformation, in a large majority of cases, is the 
 result” 
 
 This Commission together visited the House of Refuge on 
 Randall'S Island, in July last, and have pleasure in bearing 
 testimony that our observations led us to believe that the insti- 
 tution is fully entitled to all the commendation it has received. 
 
 The Executive Committee of the Prison Association of New 
 York, in their report for 1869, remark : “ If the character of 
 sentences were so changed that the release of prisoners was 
 made dependent on their reformation, or at least on the accu- 
 mulation of a certain amount of marks as the result of good 
 conduct, industry, and progress in learning, such an element 
 in their imprisonment could not fail to be powerfully opera- 
 tive in the direction of their moral amendment.” 
 
REFORMATORY INSTITUTIONS. 
 
 59 
 
 And the Earl of Carnarvon has shown that the system has 
 been applied with marked success, by the visiting Justices in 
 the gaol of Hampshire county, in England. 
 
 Having seen the inequality and frequent injustice of time 
 sentences, we think the foregoing array of argument in favor 
 of the practical results of indeterminate or reform sentences 
 ought to be conclusive with all reasonable minds. 
 
 DISCHARGED CONVICTS. 
 
 But the most perfect conception of prison discipline must 
 be comparatively valueless, unless adequate provision be made 
 for the welfare of discharged convicts. If such a man be 
 brought up for a second or third offense, and be convicted, the 
 severity of his sentence is generally increased by the fact of his 
 previous convictions. Such is the dictum of society pronouced 
 in its own self-defense, and usually regarded as equitable. 
 Society complacently looks upon the fresh crimes of the indi- 
 vidual as proofs of his innate depravity, and seldom pauses to 
 consider how far society itself is responsible — fearfully respon- 
 sible — for these criminal acts. 'When a discharged convict 
 re-enters the world, he may have the best intentions as to his 
 future life, and the strongest resolves to do right and pursue 
 an honest career. Is it in his power to keep them ? In look- 
 ing for employment, the fact of his having been a convict, if 
 he make it known, as a general rule will shut the doors of 
 society with ignominy against him. Society thus tempts him 
 at the outset, as the only alternative that he has, to lie about 
 his previous record when inquired into, in order that he may 
 not be abruptly and perhaps insultingly denied the opportu- 
 nity to commence earning his bread by honest work. If he 
 yield to this first temptation, where can he go and be certain 
 that sooner or later his having been a convict will not be dis- 
 covered, and his discharge from employment immediately 
 follow ? In that event the fact of his having misrepresented 
 his previous occupation, though nothing else may appear 
 
GO 
 
 REPORT ON PENAL AND 
 
 against his thorough reform, it is set down as an additional * 
 mark to his discredit, and after a few trials he finds society has 
 set a ban upon him, and placed the mark of Cain on his 
 forehead. 
 
 The history of convicts is full of such experience, and 
 innumerable instances could be adduced where the individual 
 finds it impossible to carry out his virtuous resolutions. Mean- 
 time he is surrounded by the strongest temptations and induce- 
 ments — the pressure of want, and the solicitations of old 
 associates — to return to a life of crime. To resist these suc- 
 cessfully he must be aided by some kindly influence for his 
 moral support. Society owes him the aid, not only for his 
 benefit, but for its own protection. If it be afforded, he will 
 probably be kept from the evil path ; if withheld, he is likely 
 to become only more hardened and embittered against society, 
 and to return with added violence to criminal pursuits. 
 
 This is an old question, at home and abroad, and if any 
 effort is to be made in Michigan to reform our criminals, their 
 treatment after release must enter largely into the plan, or 
 the rest will be comparatively nugatory. As long ago as 
 1803, in a communication to the Mechanics’ Association of 
 New York, Edward Livingston, who has been justly named 
 “ the father of legal and penitentiary reform in this country,” 
 when he was mayor of that city used this language: “It 
 must be evident that nothing will tend so much to defeat the 
 principal object of reformation, and at the same time to endan- 
 ger the security of the city, as the situation in which those 
 stand at the time of their discharge, who have undergone the 
 sentence of the law. The odium justly attached to the crime 
 is continued to the culprit after he has suffered its penalty. 
 He is restored to society, but prejudice repels him from its 
 bosom. lie has acquired the skill, and has the inclination to 
 provide honestly for his support. Years of penitence and labor 
 have wiped away his crime, and given him habits of industry 
 and skill to direct them. But no means are provided for their 
 
REFORMATORY INSTITUTIONS. 
 
 61 
 
 exertion. He has no capital of his own, and that of others 
 will not be intrusted to him. He is not permitted to labor, 
 he dares not beg, and he is for subsistence driven to plunge 
 anew into the same crimes, to suffer the same punishment he 
 has just undergone, or perhaps, with more caution and address, 
 to escaps it. Thus the penitentiary, instead of diminishing, 
 may increase the number of offenses.” 
 
 An evil so early recognized, of course has not been without 
 efforts in various quarters for its amelioration. In our own 
 State, however, we know of no systematic endeavors at remedy 
 having been attempted, except in the instance of that praise- 
 worthy institution, the Detroit House of Shelter, established 
 two or three years ago, the design of which, however, is 
 limited to females discharged from the Detroit House of 
 Correction. 
 
 But, to achieve beneficial results in this direction, it is no 
 longer necessary to grope in the dark. The Irish Prison 
 System already discussed is not satisfied with merely reform- 
 ing criminals. An essential part of its scheme is to take care 
 of the interests of manumitted prisoners by finding them 
 remunerative employment after their discharge. The spirit of 
 the whole system has this end in view, and the treatment in 
 the advanced stages is devised with the two-fold object of 
 convincing the convict that you really trust him, and con- 
 vincing the public that the discharged convict may be safely 
 employed. The government has an agent in Dublin (Mr. 
 James Organ), a part of whose duty is to find employment 
 for these men. When he began this work fourteen years ago, 
 it was with the greatest difficulty that he could find places for 
 any. Now, the difficulty is reversed, so that it is harder for 
 an employer to yet a liberated convict than it is for each con- 
 vict to find an employer. 
 
 In a late report by Mr. Organ, he says : Crime is fast dis- 
 appearing in Dublin, and old and habitual thieves are becom- 
 ing honest and industrious citizens, whilst homes that have 
 
62 
 
 REPORT OX PEXAL AX* 
 
 hitherto been the scenes of vice and poverty are now replaced 
 by those of morality and plenty. Employers continue to 
 repose confidence in my men, and the demand for them during 
 the past year has at times exceeded the supply .” 
 
 What a contrast to the position of liberated convicts in this 
 country. 
 
 Speaking of the intermediate Agricultural Prison at Lusk, 
 about twelve miles from Dublin, Mr. Organ says: “I cannot 
 speak too highly of the cheering effects which farm labor has 
 produced, even upon the most sluggish criminals, or of its 
 happy results even upon the cool and calculating .adept in 
 vice, from whose brow the honest drop of sweat never 
 trickled.” Further, that he regards “as proved in innumera- 
 ble instances that the most indolent criminals can be trained 
 to honest and independent toil, not so much through fear or 
 coercion, as through the influence of hope and encouragement.” 
 
 Again, to use the language of Rev. Dr. Wines: “Besides 
 effecting the remarkable change just mentioned, thereby remov- 
 ing all obstacles out of the way of the re-absorption of dis- 
 charged convicts into virtuous society, which remains among 
 us the most difficult and perplexing of all the problems we 
 have to grapple with, the result of this system has been to 
 diminish crime in Ireland more than fifty per cent. The 
 number of convicts confined in government prisons in 1854 
 was 3,933, in 1866 it was only 1,637. * * * Hence, 
 
 it would seem that for Ireland the vexed problem, what shall 
 be done with our criminals ? which has been for ages a crux 
 terribilis to the nations, has been satisfactorily solved.” 
 
 As regards the question of expense, w r e have already seen 
 that the best reformatory prison v r e have, the Detroit House 
 of Correction, is a money-making institution under the able 
 executive management of Mr. Brockway, and that the reform 
 system in Ireland, in fourteen years, has converted one-half her 
 criminals into honest and industrious producers ; and so long 
 as criminals continue unreformed it is a fair subject of inquiry 
 
REFORMATORY INSTITUTIONS. 
 
 63 
 
 whether, when at large, they do not cost the community much 
 more than when kept within the walls of even expensive 
 institutions. 
 
 Since the members of this Commission agreed upon making 
 the recommendations herein contained, in regard to prison 
 reform, the views set forth have been strengthened by the 
 adoption at the National Congress of Penitentiary and Reform- 
 atory Discipline, which was held at Cincinnati in October last, 
 after full discussion, of a “ Declaration of Principles,” among 
 which are the following : 
 
 “III. The progressive classification of prisoners, based on 
 character, and worked on some well adjusted mark system, 
 should be established in all prisons above the common jail. 
 
 “ IV. Since hope is a more potent agent than fear, it should 
 be made an ever-present force in the minds of prisoners by a 
 well devised and skillfully applied system of rewards for good 
 conduct, industry, and attention to learning. Rewards, more 
 than punishments, are essential to every good prison system* 
 
 “V. The prisoner’s destiny should be placed in his own 
 hands; he must be put into circumstances where he will be 
 able, through his own exertions, to continually better his own 
 condition. A regulated self-interest must be brought into 
 play, and made constantly operative. 
 
 “ VIII. Peremptory sentences ought to be replaced by those 
 of indeterminate length. Sentences limited only by satisfac- 
 tory proof of reformation should be substituted for those 
 measured by mere lapse of time. 
 
 “ XVIII. The more valuable parts of the Irish prison sys- 
 tem — the more strictly penal stage of separate imprisonment, 
 the reformatory stage of progressive classification, and the 
 probationary stage of moral imprisonment and natural training 
 — are believed as applicable to one country as another — to the 
 United States as to Ireland. 
 
 “XXXI. The construction, organization, and management 
 of all prisons should be by the State, and they should form a 
 
64 
 
 REPORT ON PENAL AND 
 
 graduated series of reformatory establishments, being arranged 
 with a view to the industrial employment, intellectual educa- 
 tion, and moral training of the inmates.” 
 
 STATE PRISON. 
 
 On the subject of the State Prison at Jackson, it seems only 
 necessary to add, that if intermediate district prisons shall be 
 established, it would, in the general plan, be a prison for the 
 custody of the worst and most incorrigible class of criminals, 
 the discipline of which might be modified so far as practicable 
 to carry out the general principles recommended ; and power 
 might be vested in some authority for the removal of any of 
 its inmates to intermediate prisons when fit subjects for such 
 action should be found. 
 
 PAUPERISM. 
 
 In all organized communities there has been more or less 
 pauperism. The subject has engaged the attention of the 
 philanthropist, philosopher, and legislator from the days of 
 Moses to the present time. The poor have existed under all 
 forms of government, whether Theocracy, Monarchy, or Re- 
 public, and the amelioration of their condition, or the removal 
 of the causes which lead to destitution and poverty, has been 
 the subject of legal enactments and voluntary efforts in all 
 countries advanced in civilization. 
 
 The progress made in the removal of this, as of other great 
 social evils, has hitherto been exceedingly slow ; and although 
 we should expect that the entire destruction of pauperism can 
 only be accomplished when the whole people shall become per- 
 fected in everything that makes man good and wise, yet we see, 
 in looking over history, that it has been lessened by wise laws, 
 and increased by pernicious legislation. 
 
 That the subject should engage the serious consideration of 
 the people, is shown by the magnitude of the evil in Michigan, 
 and more especially in some of the older States of this coun- 
 try and under the governments of Europe, where the number 
 
REFORMATORY INSTITUTIONS. 
 
 05 
 
 of paupers swell into mighty armies, and the annual expendi- 
 ture to feed and clothe them amounts to many millions of 
 dollars. 
 
 In the State of Massachusetts the number of paupers in 
 1868 was 11,133, and the cost of their support was oyer one 
 million dollars. The whole number in alms-houses in the 
 State of New York in 1867 was 13,690, and the amount ex- 
 pended for their maintenance and for out-door relief for the 
 same year, was $2,387,023. Besides this expenditure, very large 
 numbers in these States are maintained in private charitable 
 institutions. The amount expended in England and Wales, 
 during the sixteen years from 1818 to 1834, was between thirty 
 and thirty-five million dollars annually. The amount of poor 
 rate levied in those countries in 1859 w T as $40,541,110, — the 
 population being for that year 1 9,578,000. Very large numbers 
 in these countries are also relieved by private charities. 
 
 The largest number at one time of paupers in the county 
 poor-houses of this State in 1869 w'as 1,478, and the amount 
 expended for their support in the same year, exclusive of the 
 amount raised on the county farms, was $117,515 59. The 
 amount expended during the same year for out-door or tempo- 
 rary relief, was $148,611 69. 
 
 The percentage of paupers in new States is always less than 
 in the older ones, on account of the greater demand for labor, 
 the simpler ways of life, and the greater ease of obtaining the 
 means of support. As our State becomes more densely popu- 
 lated, and our cities increase in size, we may expect to have a 
 condition of things not unlike that which we find in older 
 countries, unless we check the progress of this great social evil 
 by wise and timely legislation, and a diminution of the causes 
 which lead to poverty and destitution. 
 
 The evils now existing in the pauper system of this State 
 we have already attempted to point out. A very prominent 
 cause of these evils is a ivant of proper classification . We 
 have seen that the aged, the young, the insane, the demented, 
 9 
 
66 
 
 EEPORT OK PEKAL AND 
 
 the idiots, the common vagrants, those who have been reduced 
 to destitution and want through lives of vicious indulgence 
 and crime, and those who are without a blemish on their char- 
 acter, are collected together in the county alms-houses, pro- 
 miscuously ; eating from the same table, congregating idly 
 together in the same rooms, — the foolish with those wiser, — the 
 vicious and criminal with the pure and unspotted, — without 
 order or system, and generally with no attempt to improve or 
 make them better, physically, morally, or mentally. It cannot 
 be claimed that these evils are the result of the imperfect 
 institutions of a new State, which will disappear as we advance 
 in age, wealth, and population. 
 
 The condition of the county infirmaries in the State of 
 Ohio, and of the poor-houses in the State of New York 
 (except in the large cities), as made known by the reports of 
 their Boards of Public Charities, give us no hope of improve- 
 ment by age, unless we can claim a better class of people than 
 theirs, — a proposition that will hardly be maintained when it 
 is considered that a large proportion of our population is 
 composed of emigrants from those States, and that our insti- 
 tutions are very similar to their own. The reports above 
 referred to are full of sickening and disgusting details of the 
 condition of the paupers in very many of the county institu- 
 tions of those States ; some of the very worst ones being in 
 the oldest and most populous counties. 
 
 The want of proper classification and care is not the fault 
 of those who have these matters in charge, but in the system. 
 The number in each county poor-house is usually so small, 
 that classification is impracticable. In all small institutions of 
 this kind, the care of paupers is almost universally custodial. 
 It is only by congregating large numbers, as in the institutions 
 for the poor in large cities, and in the State alms-houses of 
 New England, that anything like classification or improve- 
 ment in the moral or mental condition of the inmates can be 
 undertaken successfully. We believe that a wise economy 
 
REFORMATORY INSTITUTIONS. 
 
 67 
 
 requires that classification should be attempted at no distant 
 day in this State, so that the different classes may be subjected 
 to management adapted to their various conditions ; and 
 to provide for such classification we deem just and prudent 
 legislation desirable. 
 
 The following classes of paupers in this State may very w r ell 
 be made, and their treatment considered separately : 
 
 1st. The Insane. 
 
 2d. Idiots and the Feeble Minded. 
 
 3d. Children under sixteen years of age. 
 
 4th. Dissolute Paupers. 
 
 5th. The Old, the Infirm, and the Diseased. 
 
 1st. The Insane. 
 
 There were in the county poor-houses, at the time of our 
 examination of the same, during the year 1869, 215 insane 
 paupers, exclusive of nine of the smaller counties which were 
 not visited. As may be seen from the statements heretofore 
 made in this report, the present system of providing for this 
 class of unfortunates is bad in every particular, and such as 
 should not be encouraged by any philanthropist or statesman. 
 This class, like the pauper idiots and the children who through 
 misfortune are subjects of public charity, as we have already 
 suggested, should be the wards of the State. 
 
 Being alike helpless, the State should see that those laboring- 
 under mental disease or imbecility should have careful and 
 skillful treatment to restore their minds, if possible, to a 
 healthful condition ; and the helpless children should be so 
 educated and trained as to give them a fair chance to become 
 useful citizens, instead of growing up under the contaminating 
 influence of life in the county poor-house. 
 
 All insane persons, whose condition is such as requires their 
 being kept in custody, should be under the care and supervis- 
 ion of competent medical men, who understand from training 
 and experience, the proper management of this class of persons. 
 
68 
 
 REPORT ON PENAL AND 
 
 After a careful examination of the condition of the pauper 
 insane, as found in the county institutions in this and other 
 States, the members of this Commission wish to express, in the 
 strongest terms , their condemnation of the whole system of 
 county custody of this class. In the State of New York, 
 where this system has been long in operation, the result has 
 been such as to call for its condemnation by all persons and 
 commissions who have investigated the matter. Miss Dix, 
 twenty-five years ago, presented the terrible condition of the 
 insane and other paupers in the county poor houses, in a 
 memorial to the Legislature of that State. A select commit- 
 tee appointed by the Senate in 1857, composed of Mark 
 Spencer, George Bradford, and M. Bindley Lee, to visit chari- 
 table institutions and city and county poor-houses, in their 
 report condemn, m the strongest terms, the abuses of the 
 insane in the county poor-houses and small county asylums. 
 
 Again, in 1865, Sylvester D. Willard, M. D., having been 
 appointed by the Assembly of that State to investigate the 
 condition of the insane poor in the various county asylums 
 and poor-houses in the State, makes use of the following 
 language: “They” (the poor-houses) “have become filled 
 to an excess of human misery, degradation, and wretchedness, 
 that wrings a cry of distress from the heart of every philan- 
 thropist. These evils have become so great and so glaring that 
 they are a stigma upon the class of our charitable institutions 
 where insane poor are confined, upon our communities, and 
 upon the fair name of our State. The facts elicited by this 
 investigation are too appalling to be forgotten, and too impor- 
 tant to be thrown aside.” 
 
 Again, in the report of the Board of Public Charities for 
 1869, after giving the details as they existed in the various 
 counties, of the care and treatment of the pauper insane, they 
 sum up as follows: “'The result of these details is that in 
 Borne one or more of the counties there are these forms of 
 abuse. The buildings are meagre, or greatly out of repair, 
 
REFORMATORY INSTITUTIONS. 
 
 69 
 
 with bioken walls or floors, and badly arranged as to conven- 
 ience of light and ventilation. There are cells for the confine- 
 ment of the insane, sometimes in prison style, with heavy, 
 grated doors; again, in the basement, with imperfect light; 
 again, in the form of dungeons, wholly dark and without any 
 furniture. The air of the rooms is close, and the stench intol- 
 erable. The cells are dirty, the beds torn in pieces, and the 
 floor littered with straw and bits of clothing. Eats at times 
 perform the duties of scavengers. 
 
 “ Into these pest-houses the insane are crowded, associating 
 with idiots, and paupers of sound mind— adults as well as 
 children. I he excitable and noisy may be confined in cells in 
 chains, close neighbors to the inoffensive and quiet. Two of 
 them may be locked up in a single cell. Among them may be 
 those who are filthy in their habits, others are partially or 
 entirely nude,— females as well as males,— and continuing in 
 this condition for months and even years. Here are chronic 
 cases of thirty-five years’ standing ; here are also recent cases, 
 without any special medical treatment, or any official effort 
 made to secure their admission to the State Asylum. The 
 insane receive no other care than that awarded to paupers; 
 not unfrequently incompetent paupers are the keepers and 
 attendants, and at times they are treated rudely and severely. 
 They suffer from medicine administered without the knowledge 
 of a physician. The county authorities are sometimes parsi- 
 monious, and furnish no chairs, or muffs, to control excitable 
 patients. Is it a wonder that many are in a state of constant 
 irritation, or the dreary record is so often found, that of large 
 numbers discharged from the State asylums and found in the 
 county poor-houses, few if any have materially improved? 
 Will the people of the State of Hew York, when they compre- 
 hend the inhuman treatment the insane poor sometimes 
 receive, leave a system in unchecked operation which admits 
 of such enormities? Though we have spoken emphatically 
 concerning the mismanagement of poor-houses, our views are 
 
70 
 
 REPORT OX PENAL AND 
 
 not without the most respectable support in the examination 
 and conclusion of others. The evils deplored are chronic , and 
 again and again have thoughtful men held them up to notice/' 
 
 We have quoted thus freely from these reports to show 
 where certainly we in this State are drifting, in the care and 
 treatment of the pauper insane. Our population, as we have 
 said, is composed, to a great extent, of emigrants from the 
 State of New York, and their descendants. Our poor-laws 
 are copied very nearly from those of that State, and we cannot 
 reasonably expect that they will be better administered. As 
 has been already shown, the condition of the insane in many 
 of our pooiyhouses is in some instances quite as bad as it is 
 there. Already the houses are filling up with insane persons, 
 many of them recent cases, who have never had, and we fear 
 never will have, under the present system, any proper medical 
 treatment for their cure, on account of the parsimoniousness 
 of the authorities having the matter in charge, and from want 
 of sufficient accommodations in the State Asylum. 
 
 Shall we, too, drift along in the ruts of our ancestors, and 
 for want of proper foresight and just legislation, suffer so 
 many of our fellow-beings, deprived of that greatest gift of 
 God to man, — reason, — to eke out a miserable existence amid 
 all the sickening and disgusting scenes so vividly portrayed in 
 the reports from which we have quoted ? 
 
 We recommend to the State to take the matter into its own 
 control, and make provision for the proper care and treatment 
 of the insane paupers. On grounds of humanity, they should 
 be treated as wards of the State. Not only should the State 
 provide for the care and treatment of the paupers of this class, 
 but suitable provision should also be made to enable residents 
 of this State who have insane friends or relatives whom they 
 wish to put into an asylum, and for whose care and treatment 
 they are able to pay, to do so. 
 
 There is an urgent necessity that the State should provide 
 immediately increased accommodations for the insane, whether 
 
REFORMATORY INSTITUTIONS. 
 
 71 
 
 it assumes the control of the whole of that class who are sup- 
 ported by the public or not. 
 
 According to the estimate of competent authorities, we 
 must now have, unprovided for, from six hundred to eight 
 hundred insane persons in this State, who should be under the 
 control and management of competent medical men. There 
 is scarcely a neighborhood that is not afflicted or annoyed with 
 one or more unsafe and disorderly insane persons, and no tax 
 would be more cheerfully met than that which will provide 
 for their custody and treatment. 
 
 The average cost for the buildings alone of thirteen of the 
 leading Insane Asylums in the United States has been $1,248 
 for each patient, and the most of these were erected before the 
 great advance in prices which occurred during the war. The 
 expense of establishing our own State Asylum at Kalamazoo, 
 including land and all other expenses, as we understand, 
 exceeds $1,600 per patient. 
 
 We are aware that if the State shall provide for all the 
 insane who should be in asylums, it will be attended with a 
 very considerable outlay of money. Following the example 
 of older States, Michigan has been very generous in expendi- 
 tures for the erection of the institutions already established ; 
 We are satisfied, however, that the opinion of many of the best 
 informed men on these subjects (in which opinion we fully 
 concur) is that the construction account of similar institutions 
 to be hereafter erected may be materially lessened without 
 detriment to the objects to be attained. 
 
 We would not advise cheapness or parsimoniousness in the 
 care of the insane, but would respectfully submit whether it 
 would not be w r ise, in view of the great magnitude of the 
 work, and the amount of money which must necessarily be 
 expended in providing for all of those in the State who need 
 treatment, to take into careful consideration the question of 
 expenditures, and seek whether any improvement in the system 
 of management can be judiciously instituted ; and in the con- 
 
REPORT Qtt PENAL AND 
 
 Btruction of buildings, while we would secure everything that 
 the most scientific treatment may demand, we would recom- 
 mend utility and permanency without expensive ornamentation 
 and display. 
 
 Whenever it is deemed advisable to establish any institution^ 
 it would be much more economical, after careful estimates of 
 the cost of construction, to appropriate the whole amount 
 required at once, or as rapidly as the money may be needed. 
 
 The cost of our present asylum has, we believe, been con- 
 siderably increased by the irregularity of the work, for the 
 want of timely appropriation of funds. 
 
 An addition of tw'o buildings to our present asylum, capable 
 of accommodating one hundred each, one for males, and the 
 other for females, could be economically accomplished, and 
 afford increased facilities for classification of the inmates of 
 the whole institution. An urgent and immediate demand 
 exists for additional provision, and either the enlargement 
 should be made, or a new institution established at some other 
 point at the earliest possible time. 
 
 Only two objections occur to this Commission against the 
 enlargement of the present asylum. One is that the number 
 of inmates would then perhaps be too large to be successfully 
 and profitably treated by one man, who, we conceive, should 
 have close supervision of alt the affairs of the institution in 
 order to insure the most beneficial results financially and 
 otherwise. If thus enlarged, the number of patients would 
 exceed considerably that of most institutions of the kind in 
 the country. 
 
 The present very able superintendent is of the opinion that 
 an asylum containing five hundred inmates can be successfully 
 managed financially, and the patients treated with the greatest 
 degree of success obtainable under the present system, by one 
 man with well trained subordinates. With an asylum of the 
 size of ours at present, the State should rather err in not 
 increasing its capacity than in getting it too large. 
 
REFORMATORY INSTITUTIONS. 
 
 The second objection which would favor the establishment 
 of a new asylum, is the well ascertained fact, that communities 
 remote from such institutions are not as likely to avail them- 
 selves of their advantages as those who are near, and it is 
 deemed important that the early and prompt application of 
 treatment in insanity should be encouraged. 
 
 If the Legislature shall decide that all insane paupers shall 
 be under the control of the State, we would recommend the 
 establishment of another asylum immediately, to be fully equal 
 in all respects to the best of the kind in the country, so far as 
 curative agencies are concerned. No change of system should 
 be adopted with the sole view of cheapness of maintenance, 
 but if industrial employments should be introduced as a part of 
 the regime, it should be because they improve the physical and 
 mental condition of the inmates, and the profits arising there- 
 from should be incidental and not the end sought. 
 
 We are opposed to the establishment of any institution of 
 this class solely for supposed incurables, and which shall be 
 only custodial in its character. 
 
 It would be well for the State to pursue that course on this 
 most difficult and embarrassing subject, which will be compre- 
 hensive in its results, and will give to all the insane that care 
 and treatment which justice and humanity demand. A few 
 thousand dollars expended now in settling upon some definite 
 plan, which would require more time than this Commission 
 with its manifold duties is able to give, may save hundreds of 
 thousands of dollars in the future, and ensure thorough and 
 scientific treatment or proper custody to all insane persons in 
 the State. We can point with pride to our noble institution 
 for the insane, which is a credit to the State in its architecture 
 and imposing appearance, and stands as evidence of our mate- 
 rial prosperity, and of the enlarged views and noble hearts 
 of our legislators. Its management, under the present able 
 superintendent, is spoken of as a model of excellence at home 
 and abroad, but we must remember that eighty per cent of 
 10 
 
n 
 
 REPORT O^T PEKAL AND 
 
 its incurable inmates are remanded to miserable homes, or 
 to the county poor-houses, such as we have shown them to be, 
 and that the change from an abode in this costly and spacious 
 edifice, with all its comforts, to the sickening and disgusting 
 scenes of many of the pauper homes, is truly appalling. We 
 must remember, too, the large numbers in our State, who, for 
 want of sufficient accommodations, can have no treatment ; 
 that our present asylum is filled to its utmost capacity, and 
 that oyer one hundred have been turned away within the past 
 year for want of room. 
 
 2d. Idiots and the Feeble-Minded. 
 
 The same reasons may be assigned with greater force for the 
 State to assume the control of this unfortunate class of pau- 
 pers, that have been given for the care of the insane. Their 
 condition as we have found them in the county poor-houses, is 
 in many instances deplorable in the extreme. Language 
 would fail to convey an idea of their forlorn and utterly hope- 
 less condition. 
 
 The readiness of the people of this State to adopt all reason- 
 able measures for the elevation of those who should be under 
 its care and protection will not permit them to be long without 
 an institution for the education and improvement of this 
 class, which, as Dr. Samuel G. Howe remarks, “is far, far more 
 deplorably afflicted than the deaf-mutes, the blind, or insane, 
 for whom the State, to a great extent, has provided.” 
 
 We have now in the county poor-houses about 75 idiots or 
 feeble-minded persons. There are in the whole State, accord- 
 ing to estimates of competent authorities, about one thousand 
 idiots. 
 
 The corner-stone of the first public institution built expressly 
 for the education of idiots in this country, w T as laid at Syracuse, 
 Hew York, on the 8th day of September, 1854. An experi- 
 mental school for idiots had been established in Boston, in 
 1846, under the auspices of the State of Massachusetts, and a 
 private institution for the same purpose was established by Dr. 
 
REFORMATORY INSTITUTIONS. 
 
 YO 
 
 H. B. Wilbur, at Barre, Mass., the same year. In 1852 a private 
 school had been founded in Germantown, which soon became 
 the Pennsylvania Training School for Idiots at Media. The 
 States of Connecticut and Ohio, in 1855 and 1857, Kentucky 
 in 1860, and Illinois in 1865, established similar schools. We 
 have thus eight schools in the United States devoted to this 
 purpose, in which about one thousand pupils are constantly 
 receiving training and education. 
 
 The result of the experiments to develop the minds of this 
 unfortunate class is found, after careful analysis, to be, that of 
 idiots not affected with epilepsy, who are brought under 
 instruction in childhood, from one-third to one-fourth may be 
 made to perform the ordinary duties of life with tolerable ability. 
 They may learn to read and write, to understand the elemen- 
 tary facts of geography, arithmetic, and history, to labor in 
 the mechanical arts, under proper supervision, and to attain 
 sufficient knowledge of government and morals to fulfill many 
 of the duties of a citizen. 
 
 A larger class, probably one-half of the whole, will become 
 cleanly, quiet, able, perhaps, to read and write imperfectly, and 
 to perform, under the direction of others, many kinds of labor 
 requiring little thought. The remainder will make little or 
 no improvement. 
 
 Dr. Edward Seguin, an eminent French physician and phi- 
 lanthropist, who may be considered the originator of the 
 present system of education for idiots and feeble-minded 
 persons, and who is considered the highest authority on this 
 subject, says: “Not one in a thousand has been entirely 
 refractory to treatment ; not one in a hundred who has not 
 been more happy and healthy; more than thirty per cent have 
 been taught to conform to social and moral laws, and rendered 
 capable of order, of good feeling, and working like one-third 
 of a man ; more than forty per cent have become capable of 
 the ordinary transactions of life under friendly control, of 
 understanding moral and social abstractions, of working like 
 two-thirds of a man ; and twenty-five to thirty per cent come 
 
76 
 
 REPORT OK PEKAL AND 
 
 nearer and nearer to the standard of manhood, till some of 
 them will defy the scrutiny of good judges, wdien compared 
 with ordinary young me*n and women/’ 
 
 When we look at the helpless and hopeless condition of the 
 idiots and feeble-minded persons in our county poor-houses, 
 and reflect on the large number of that class in the State, 
 many of them certain to be led into evil habits and crime, 
 when we know r that by proper care and training a large pro- 
 portion of them may be made useful citizens, and others raised 
 from their condition of utter helplessness to take proper care 
 of their own persons, wn feel like urging upon the State the 
 early establishment of an institution for their training, educa- 
 tion, and care. Such an institution should provide for the 
 custody of all the pauper idiot and feeble-minded children of 
 the State, and give instruction to those who can be benefited 
 by it, and at the same time, if deemed advisable, it could be 
 made sufficiently extensive to offer its benefits to those citizens 
 of the State who may have any of that class whom they wish 
 to enjoy its advantages, and who are able to pay for such 
 privileges. 
 
 So far as the pauper class is concerned, the expense of main- 
 taining them under State control in one large institution 
 would not materially difier from that of the present system of 
 county custody, while it offers the advantage of giving them 
 the benefit of the chance of being educated to become pro- 
 ducing citizens, instead of remaining as they are, and always 
 will be under the present system, non-producers, and often 
 very loathsome ones. 
 
 Pauper Children . 
 
 Very much stronger reasons can be given for the removal 
 of the pauper children from the county poor-houses than can 
 be given for the removal of the insane and idiots. They have 
 all their faculties, and are to grow up to fill places in the State 
 for weal or for woe. Who can doubt for a moment, when they 
 know the influences by which such young persons are sur- 
 
REFORMATORY INSTITUTIONS. 
 
 77 
 
 rounded, that very many will be lost to themselves, and many 
 more will become criminals, and inmates of our penal and 
 correctional institutions. There is no doubt that this class, 
 unlike the insane and idiots, can all be trained and educated. 
 
 The condition of the children in county poor-houses has 
 been the subject of serious thought, and has called forth great 
 commiseration from committees, boards of public charities, 
 and philanthropists in many of the States, yet they are left, in 
 most cases, to remain amid those baneful influences, and legis- 
 lators, unmindful, as we think, of the true interests of the 
 commonwealth, still suffer them to grow up to become perma- 
 nent charges upon the State, as large numbers of them, unless 
 otherwise provided for, must inevitably become fixtures in our 
 charitable, reformatory, or penal institutions. This great 
 stream of evil should be turned aside at its source, where small 
 means and slight influences will accomplish it, and not suf- 
 fered to become the mighty torrent, carrying devastation before 
 it The number of children in almshouses in the States of 
 New York and Ohio have become so great that the authorities 
 are perplexed to know what do do with them. The number in 
 the county poor-houses in New York, in 1869, was 1,222, and 
 their Board of Public Charities, in their report for that year, 
 say : “ The existence of this large number excites the most 
 painful feelings. Many of them are born in the county-house, 
 and pass there the early days of childhood. When we remem- 
 ber how r their earliest experience of life is public dependence 
 under its most unfavorable aspect, in the company of the 
 wretched and depraved, when we recall their education to 
 vicious and filthy habits, we cannot be surprised that they 
 either fill our prisons or furnish a perpetual supply of occu- 
 pants of our alms-houses. Shall we not, in this manner, fasten 
 upon ourselves a class of hereditary paupers ?” 
 
 The Board of Public Charities for the State of Ohio, in 
 their report for 1869, say : “ Heretofore, the Board have felt 
 constrained to urge the care of the infirmary children upon 
 the State. The statistics for the past year are such as to 
 
78 
 
 REPORT OK PEKAL AND 
 
 bewilder judgment as to what is best, as promising needful 
 relief to this class of dependents, and as to meeting the social 
 and moral obligations of the State. There is an aggregate of 
 947 children in the several infirmaries in the counties. These 
 figures suggest a problem to the solution of which the State 
 may well devote its utmost wisdom. Nearly one thousand 
 children in the poor-houses of Ohio ! What is to be done 
 with them ? Think of their surroundings. The raving of 
 the maniac, the frightful contortions of the epileptic, the 
 driveling and senseless sputtering of the idiot, the garrulous 
 temper of the decrepid, neglected old age, the peevishness of 
 the infirm, the accumulated filth of all these ; then add the 
 moral degeneracy of such as, from idleness or dissipation, 
 seek a refuge from honest toil in the tithed industry of the 
 county, and you have a faint outline of the surroundings of 
 these little hoys and girls. This is home to them. Here 
 their first and most enduring impressions of life are formed. 
 If it be sad to think of a thousand little boys and girls, all 
 more or less intelligent, many of them bright and beautiful, 
 in such homes as these, how deeply must every human sym- 
 pathy be touched with the reflection, that to these little chil- 
 dren the poor-house is 4 all the world.’” 
 
 We have now r in the county poor-houses in this State, 212 
 children under sixteen years of age, — not including nine of the 
 smaller counties which w r ere not visited. It is the earnest 
 conviction of all the members of this Commission, that these 
 children should be taken from the county poor-houses and 
 made the w r ards of the State, and that they should be inden- 
 tured out in families, or placed in orphan asylums, or in a 
 school provided by the State, like the State primary school at 
 Munson, Mass. 
 
 It w r ould be v ise for the State to encourage the establishment 
 of private orphan asylums, by placing therein as many of these 
 children as the officers of such institutions are willing to 
 receive, and allowing them an amount for their maintenance 
 which w r ould be equal to the expense of keeping them in the 
 
REFORMATORY INSTITUTIONS. 
 
 79 
 
 alms-houses or primary school. In this way they would he 
 reared and trained in virtuous ways, and at the proper age 
 placed in private families, and thus very likely become good 
 and useful members of society. 
 
 But if our poor-houses can not be relieved of their children 
 by a regular system of placing them in families, or by their 
 admission into orphan asylums, we would advise the estab- 
 lishment of a State primary school, where the children, until 
 they could be indentured or adopted in families, could be edu- 
 cated morally and mentally, and also taught habits of 
 industry. 
 
 But we would express our conviction that institutional life 
 should he avoided as much as possible, as we consider the rear- 
 ing and training in families as more natural and far superior 
 in all respects, while we would also strongly urge the necessity 
 of supervision of indentured or adopted children by some com- 
 petent officer, wdio shall frequently visit them, and ascertain 
 if the child is well cared for and the conditions of the inden- 
 ture are being fulfilled. 
 
 With some such arrangement we are fully satisfied that 
 judicious and humane persons would generally concur, and we 
 firmly believe that thereby many children, who would other- 
 wise become confirmed paupers and criminals, and permanent 
 fixtures in alms-houses and prisons, would grow up to be useful 
 citizens and an honor to the State. 
 
 There is a class of children in all communities, who are not 
 paupers or criminals, but who should be protected and trained 
 by the State. These are the children of parents who neglect 
 their offspring, either because they are vicious or indifferent, — 
 children who swarm the streets, prowl about docks and 
 wharves, and are almost sure to take up crime as a trade, 
 orphans who have no one to provide or care for them, and all 
 vagrant and abandoned children. All such should be gathered 
 into schools, where they would receive that mental, moral, and 
 industrial training, which their own homes or circumstances 
 
80 
 
 REPORT ON PENAL AND 
 
 would never afford them, and from which they might at length 
 be sent out to good situations in the country or elsewhere, 
 where they would grow into virtuous and useful citizens, add- 
 ing to, instead of preying upon the productive industry of the 
 State. 
 
 The schools established for pauper children could also be 
 used for this class of children, as their treatment should be 
 substantially the same. 
 
 Dissolute Paupers. 
 
 All persons reduced to pauperism by drunkenness, prostitu- 
 tion, idleness, or any vicious habit, and all common beggars 
 and vagrants are entitled to no indulgence, and should be 
 treated as offenders against the well-being of society. They 
 are the worst class of paupers with which the authorities have 
 to deal. For them, labor is the proper remedy. If all such 
 persons were sent to a w r ork-house, where, under the discipline of 
 hard labor and other reformatory agencies, they could be made 
 to earn their living, the State w r ould soon get rid of the expense 
 of supporting large numbers of this class, and our alms- 
 houses would be relieved of a great nuisance. It is w T ell known 
 that many of our poor-houses, especially those near the large 
 towns and cities, have a considerable population of these dis- 
 solute paupers, particularly prostitutes and licentious persons, 
 who have become diseased and flock to the alms-houses to get 
 cured and recruit. The Wayne county poor-house was at one 
 time, we understand, quite noted for being a very good venereal 
 hospital. 
 
 The experiment of the State of Massachusetts in treating 
 all this class of State paupers as criminals, and sentencing 
 them from six months to three years to the work-house at 
 Bridgewater, has been attended with very beneficial results. 
 This course has lessened their numbers very materially during 
 the short time it has been in operation. The Board of State 
 Charities for that State say in their report: “Much of the 
 good wrought by the w r ork -house is due to the long sentences of 
 
REFORMATORY INSTITUTIONS. 
 
 81 
 
 a majority of the inmates. In this respect the institution is 
 most strongly contrasted with the jails and houses of correc- 
 tion, which in other points it resembles. This adds to its 
 power as a deterrent from vicious practices, and is indispen- 
 sable to the task of breaking up idle and dissolute habits of 
 life.” 
 
 The master of this work-house says: “The object of con- 
 tinuing them” (the convicts) “here is not only to protect the 
 community against their criminal inclinations, but to restore 
 them , if possible , to respectability. * * * Con- 
 
 stant employment is given to all that are able to labor, which 
 is the lever by which we expect to raise them from the slough 
 into which their former idle and vicious habits have cast them ; 
 hence the necessity of the course pursued by the committing 
 magistrate in awarding to some of them longer sentences than 
 is practiced in the criminal courts of the commonwealth.” 
 
 There would be no injustice to this class of paupers by thus 
 treating them, for if properly managed in work-houses, they 
 would all have an opportunity for reformation, and in many 
 cases their bad habits would be cured, and their evil propen- 
 sities controlled, if they were “ sent up ” on sufficiently long 
 sentences. Indeed, the work-house should be a reformatory ; 
 and hard labor , with education, moral and mental, should be 
 the great means of reformation. At the same time this system 
 would be better than the presept one, on economical grounds, 
 for now r they are generally kept in idleness, and they are grow- 
 ing constantly more depraved, and this does not lessen, but 
 increases the numbers who are living upon the tithed industry 
 of the country ; whereas, by the adoption of this system, they 
 would be compelled to earn a portion of their maintenance, 
 perhaps the whole, and their numbers would be constantly 
 diminishing through the reformatory influences of the work- 
 house,. and the deterring effect upon all that class of idle and 
 vicious persons. 
 
 The amount earned by pauper labor in the poor-houses 
 11 
 
82 
 
 KEPOKT ON PENAL AND 
 
 and on county farms, is very small. IS'o thorough or system- 
 atic effort is made in that direction. The keepers are not- 
 always the most efficient men ; and from the uncertainty of 
 the time they may hold their positions, they are too often 
 inclined to get along without much effort at improvement in 
 the discipline or management of the institution. 
 
 The amount of salary paid, — which is generally from $400 
 to $700 a year for a man and his wife, — pre-supposes no very 
 efficient executive ability or superior talent. If all the class 
 of paupers now under consideration (which would comprise 
 the largest number in our alms-houses who are able to labor), 
 were congregated in institutions containing from three to five 
 hundred each, it could then be afforded to place over them 
 efficient and competent officers, who would make their labor 
 available and profitable. In every view of the case, it would 
 seem much better that this class should be under separate 
 control, and subjected to rigid treatment. They should not 
 associate with other paupers, on account of their vile conduct 
 and evil influences. They should be made to labor and earn 
 their own living, they should be under reformatory influences, 
 and all persons should be made to know that if they too 
 squander their means through idleness, drunkenness, or vicious 
 courses, and become reduced to pauperism thereb^q they will 
 have to pay the penalty by hard labor and deprivation of their 
 liberty. 
 
 We have sot forth good reasons, we think, which could bo 
 supported by eminent authority, why a large number of the 
 inmates of the county poor-house should be under different 
 control and management. The difficulties in the way of 
 successful management under the present system have been 
 pointed out, all arising from want of proper classification and 
 judicious treatment of the different classes. 
 
 The small number in each of the county poor-houses makes 
 it impracticable that such classification should be made, and 
 induces the employment of incompetent officers on small x 
 
REFORMATORY INSTITUTIONS, 
 
 83 
 
 salaries. We have aimed to show that the insane, the idiots, 
 the children, and the disolute paupers can only be treated 
 scientifically, humanely, and economically, by congregating 
 much larger numbers of each class together than can be found 
 even in our largest counties, and that this can only be done, 
 and any attempt at classification be made, by the State assum- 
 ing their control and treating them in State or district 
 institutions. 
 
 If the State shall assume the care of these four classes, then 
 there will remain in the care of the counties, 
 
 The Aged , the Infirm , and the Diseased. 
 
 This class requires kind and humane treatment, under the 
 direction of a competent medical officer. The medical care 
 and treatment of diseased paupers, as we have before stated, 
 is, generally, notoriously bad, and we fear that it always will be 
 under the present system. If the State would assume the 
 control of this class, and place them in two or three district 
 hospitals, or more when the numbers become sufficiently 
 large, they could be kindly and humanely cared for, and have 
 thorough and scientific treatment, with as little or less expense 
 than that which attends their present management. In this 
 way homes could be given to the aged and infirm in distinct 
 wards of the hospital. The epileptics could be placed in a 
 separate ward or hospital, and other diseased persons could bo 
 classified, and their wants judiciously attended to, as well as 
 humanely and economically. 
 
 Whenever such hospital could be located near some medical 
 college, satisfactory arrangements, no doubt, could be made 
 with such institution for the medical care and treatment of the 
 inmates. 
 
 Let the State take this whole subject of congregating 
 pauperism under its own control, and establish State or 
 district institutions for the care and treatment of the different 
 classes of paupers, and we are fully satisfied that, with a 
 
84 
 
 REPORT ON PENAL AND 
 
 system judiciously arranged, pauperism would be reduced, the 
 different classes would be more humanely and properly treated, 
 and the whole matter would be more wisely and economically 
 administered. Let this be done, and then the insane would be 
 scientifically treated, the idiots would be educated aud taught 
 to labor, the children would be brought up in wisdom and 
 virtue, the idlers, vagrants, beggars, drunkards, prostitutes, 
 and the whole class of dissolute paupers would be taught by a 
 terrible Necessity, that industry and orderly conduct are better 
 for them and for society, and the aged and infirm, and unfor- 
 tunate but worthy poor, would find a home undisturbed by the 
 raving of the maniac, the drivelings of the idiot, or the lewd, 
 blasphemous talk of the drunkard and prostitute. 
 
 The amount now invested or to be invested in the different 
 county farms and county poor-houses would probably be suffi- 
 cient to establish the different State or District institutions. 
 The aggregate amount paid to physicians and keepers would, if 
 applied to the less number of officers required under such 
 proposed system, go largely toward paying the salaries of edu- 
 cated and competent men, who should be placed at the head 
 of these institutions, as well as the salaries of subordinates. It 
 would seem very clear that from three hundred to five hun- 
 dred of any class so managed as to make their labor profitable, 
 and having their supplies of food and clothing judiciously pur- 
 chased in large quantities, could be more economically kept 
 than when the number is small. One thing is certain in regard 
 to all public institutions, namely: that very small ones are usu- 
 ally badly managed, and are not economical, and the same may 
 be said of very large ones. From three hundred to five hundred 
 is the number that, in the opinion of the members of this 
 Commission, would be most likely to be wisely managed and 
 economically administered; and that number should be of one 
 class or kind, as near as practicable. 
 
 An objection may be raised against the State or District 
 system for the care of paupers, that it would be expensive and 
 
REFORMATORY INSTITUTIONS. 
 
 85 
 
 inconvenient to transfer them from different parts ; but we 
 should remember that our State is now extensively traversed 
 by railroads, and will soon be more so, and that the present 
 system was established when it was more expensive and trouble- 
 some to travel across a county, than it now is to travel half 
 across the State. Then, too, as the State increases in popula- 
 tion, and more of these institution shall be required and 
 erected in different localities, there will be no serious difficulty 
 from the want of proximity of any part of the State to such 
 an institution. 
 
 We deem it very important, and believe it is strongly urged 
 by all who have made the subject of pauperism a study, and 
 by all practical men who have had large experience in the care 
 and management of paupers, that only 'permanent paupers, or 
 such as will be likely to be a public charge for a long time, 
 should be placed in institutions. 
 
 Our own laws recognize this principle, in saying that the 
 superintendent of the poor shall commit to the poor-house 
 permanent paupers, but there is a great diversity in the admin- 
 istration of this statute. Some superintendents of the poor 
 try to get all they can into the poor-house, while others, more 
 wisely we think, try i o keep out all they can, and, if possible, 
 relieve the wants of the needy at their own homes. 
 
 We consider the question, who should be put in, and who 
 kept out of the alms-houses, a very important one. Its cor- 
 rect understanding lies at the foundation of a successful 
 administration and management of pauperism. We say, 
 emphatically, keep as many out of our penal, reformatory, and 
 charitable institutions as it is possible in conformity with the 
 ends of justice and humanity. These institutions are the 
 excretion of a diseased body politic, and abnormal humanity. 
 They exist only as a necessity, arising from the evils of our 
 social organism and the moral depravity of iddividuals. If 
 we can correct the errors of our laws, the evils of society, and 
 the depravity of man, we shall have no need of them. 
 
86 
 
 REPORT ON PENAL AND 
 
 Man exists in his most natural and normal condition in the 
 family, hence, when it is possible, we should keep him there. 
 In all the administration of public affairs, the family relation 
 should be kept intact, when consistent with the ends of justice 
 and humanity ; and both justice and humanity should be far- 
 reaching in their application to society, and to the persons who 
 oome under the power and control of the government. 
 Temporary benefits to the State should be lost sight of, and 
 only that course should be pursued that will accomplish the 
 greatest permanent good to society. “All institutional life is 
 unnatural,” and hence its tendency is not in the highest degree 
 purifying and elevating to the individual. If the poor can be 
 relieved at home, or in families, without a great burden to the 
 State, it should always be done, for whatever elevates individ- 
 uals is better for the mass. 
 
 The best system for accomplishing a successful application 
 of out-door relief in our State can best be determined by the 
 wisdom of the Legislature. If the State shall assume the con- 
 control of all the alms-houses, the present system of county 
 superintendents of - the poor, or something equal to it, must 
 still be continued, as each county will probably be required to 
 bear its burden of the support of its own paupers, whether 
 under county or State control, and these officers will be just as 
 necessary under the one system as the other. If temporary or 
 out-door relief be increased, and made more general in its 
 application, perhaps these officers would be as competent to 
 accomplish that result as any others. 
 
 Any system that favors out-door relief should be encour- 
 aged, and the fact that the system of State or District institu- 
 tions would have a tendency in that direction, is a very strong 
 circumstance in its favor. 
 
 The first admission to an alms-house generally destroys self- 
 respect and ambition. Once there, the inmate soon learns to 
 be a pauper. It is a notorious fact, that very many paupers 
 leave the alms-houses in the spring and roam about the coun- 
 
REFORMATORY INSTITUTIONS. 
 
 87 
 
 try during the warm "weather, getting their living in various 
 ways, to return, when frosts and cold weather make them 
 uncomfortable, to their home — the poor-house. Others return 
 to their accustomed employments when discharged from the 
 alms-house, but having learned no wisdom from their life of 
 dependence, but having lost their pride and ambition and 
 become depraved bv evil associations, they spend their earnings 
 foolishly, knowing that when their means are gone they can 
 return to their home — the poor-house. 
 
 A small weekly allowance made to many of those needing 
 aid, with a little encouragement kindly given, would carry 
 them over the difficult place, and be much better for them 
 than consignment to the poor-house, and more economical in 
 the end to the State. Especially is this true of the sick. 
 Gen. Isaac Bell, who is an active and efficient member of the 
 Board of Commissioners of Public Charities and Correction 
 of the city of New York, says: “By all means possible keep 
 your paupers out of the alms-houses. I would rather give ten 
 dollars to a needy person out of, than to give one dollar to a 
 pauper in the alms-house .” 
 
 This principle governs, we understand, the administration 
 of the pauper system in that city, and no better success that 
 we know of is obtained anywhere. 
 
 We may take the institutions of this class in the city of New 
 York, with the population nearly equal to that of Michigan, as 
 an example of what can be done by judicious classification 
 and the treatment of large numbers of each class in separate 
 institutions, and by a well-managed system of out-door relief. 
 On the islands in East River they have their asylums for the 
 blind, the insane, the idiots and inebriates, separate hospitals 
 for small-pox, fever, paralysis, epilepsy, incurables, and for 
 infants, work-house and penitentiary, etc. All these institu- 
 tions are kept in the most scrupulously neat and orderly 
 manner. All that, science, skill, and care can do for the 
 diseased is there done, while justice is meted out in the work- 
 
88 
 
 REPORT OK PENAL AND 
 
 house to idlers, vagrants, drunkards, and all that class of 
 offenders. 
 
 They have also there a House of Refuge for juvenile 
 delinquents, which is a model of excellence in all respects. 
 Their system of out-door relief is efficient and comprehensive. 
 In this department during the last year 17,050 patients have 
 been treated, and 70,653 prescriptions administered, and fuel, 
 food, and other necessaries have also been furnished them. 
 And this in the corrupt city ! 
 
 It would be just as easy for a State to treat its paupers 
 under this system of classification as it is for a city, if it were 
 not for the difficulty of transportation. Steam has nearly 
 annihilated distance, and, as heretofore stated, the country is 
 fast becoming a net-work of railroads, so that the cost and 
 trouble of collecting the different classes together would be 
 overbalanced by the great advantages obtained. We look 
 forward with hope to the time when this great work shall be 
 accomplished. For the present we consider our groat need to 
 be one State asylum for our pauper insane, where they shall 
 be humanely cared for and scientifically treated; one institu- 
 tion for the training and education of idiots, where learning 
 to work shall form an important part of such education ; one 
 school for the education of pauper, truant, and vagrant 
 children, where learning to be useful, and not paupers and 
 criminals, will be the certain result. When these are estab- 
 lished we hope there will soon follow two or three district 
 work-houses, where the idlers, vagrants, drunkards, prostitutes, 
 licentious persons, etc., who become paupers through such 
 courses, may be sentenced for long terms, until they can pay 
 the State for their care and maintenance, and where they can 
 be subjected to reformatory influences, and two or three 
 district hospitals where the aged and infirm, and unfortunate 
 but worthy poor can receive that kindness, care, and medical 
 treatment that the present system cannot give, and to which 
 all such persons are fairly entitled under good and humane 
 
REFORMATORY INSTITUTIONS. 
 
 89 
 
 government. These institutions should be under State con- 
 trol, with a well organized system of out-door relief in every 
 ward and township, and the whole system of charitable, 
 reformatory, and penal administration should be under the 
 supervision and control of a board of officers. 
 
 CENTRAL SUPERVISION. 
 
 Whether the present prison and pauper system be continued, 
 or whether they be changed in accordance with the foregoing 
 recommendations, or otherwise, we deem it a matter of the 
 utmost importance that the administration of these systems 
 be more perfectly supervised than they now are. The local 
 supervision of both alms-houses and prisons has utterly failed 
 to secure a good administration of these institutions, or to 
 protect them from great abuses, or to expose such abuses 
 where they exist. The character of the class of persons usu- 
 ally found in such institutions subjects them both to neglect 
 and abuse. They are for the most part unworthy and uninter- 
 esting, and are deemed to have very slender claims upon our 
 sympathy or support beyond that of protecting them from 
 starvation and great cruelty. While most of us get readily 
 interested in individual cases of suffering from poverty, and 
 even of suffering resulting from crime, ive very naturally 
 shrink with disgust and dislike both from paupers and crimi- 
 mals as classes, and sometimes we forget that they are our 
 brethren, and are to be pitied and cared for, to be punished 
 only when necessary, and to be saved if possible ; and those 
 who have the care of these classes are not usually chosen with 
 reference to their peculiar fitness for the position, but with 
 reference to economical or political considerations, and they 
 very naturally become somewhat indifferent to the welfare of 
 those under their charge, and are apt to perform their duties 
 toward them in a perfunctory manner. 
 
 There is great need of a careful, constant, and intelligent 
 supervision by some persons or board possessed of sufficient 
 12 
 
90 
 
 REPORT OK PEKAL AKD 
 
 authority to make that supervision effectual for good; a super- 
 vision that shall extend to all institutions of the same class in 
 the State, so that the entire system shall be a uniform and 
 harmonious whole. 
 
 We have come to this clear and strong conviction, not 
 merely as the result of our own examination, observation, and 
 reflection, but after carefully ascertaining, by personal inter- 
 course, by correspondence, and by extensive reading, the views 
 of the leading men of the country, both practical and theoret- 
 ical, who have made this subject one of study and experience. 
 
 This central supervision, especially of prisons, has received 
 the fullest consideration from the highest authority, and we 
 take the liberty of quoting fully some of the views which have 
 been expressed upon it. 
 
 No higher authority can be quoted than the Prison Associa- 
 tion of New York. It classes among its active officers some 
 of the very ablest and best men of the State, and its Corre- 
 sponding Secretary, Rev. Dr. Wines, has gained a world-wide 
 reputation by his intelligent and successful labors in the cause 
 of prison discipline. In their Twenty-fourth Annual Report, 
 in reference to the prison system it is said: “In any compre- 
 hensive re-organization of this service in our State, we consider 
 a central authority, having at least general powers of super- 
 vision, absolutely essential. At present, the fundamental prin- 
 ciple of all government, a responsible but supreme authority, 
 is wanting in relation to our prisons; hundreds of persons, if 
 we include county boards of supervisors, having a direct power 
 in their administration. The single fact affords an ample 
 explanation of the slow progress which has been made in general 
 improvement. The select committee of 1850, on prison disci- 
 pline, in the British Parliament, took no wiser action than 
 that of adopting a resolution with a view to securing uniform- 
 ity in prison construction and management, to the effect that 
 it is desirable that the Legislature should intrust increased 
 power to some central authority.” Without some such author- 
 
REFORMATORY INSTITUTIONS. 
 
 91 
 
 ity, ready at all times for deliberation and action, there can be 
 no consistent and homogeneous system of administration, no 
 well-directed experiments, no careful deductions, no establish- 
 ment of broad principles of prison discipline, nor any skillfully 
 devised plan for carrying such principles into effect. But if 
 the construction arid management of all our prisons were en- 
 trusted to a central board or bureau, improvements of every 
 kind could readily be introduced, and that, too, in the safest 
 manner, by first trying the plan proposed on a small scale and 
 under the best circumstances for insuring trustworthy results, 
 and then, if successful, gradually, under the guidance of expe- 
 rience, extending the sphere of its operations. It is material 
 to remark, though the observation would naturally occur to 
 'reflecting minds, that a supreme authority, like that here pro- 
 posed, is quite compatible with local boards acting under its 
 direction. 
 
 But with or without local boards, a general board properly 
 constituted and empowered could find little difficulty in man- 
 aging efficiently and superintending the whole system. We 
 ardently hope to see all the departments of our preventive,, 
 reformatory and punitive institutions moulded into one har- 
 monious and effective system, its parts mutually answering to, 
 and sustaining each other ; the whole animated by the same 
 spirit, aiming at the same objects, and subject to the same con- 
 trol, yet without the less of the advantages of voluntary aid 
 and effort when they are attainable. 
 
 The excellent results of such a system are attested by expe- 
 rience. A central board of prison managers was created in 
 Canada some eight cr ten years ago, and the good effects are 
 seen in every department of the administration. Prison archi- 
 tecture and prison discipline have gained immensely criminal 
 statistics of the highest value are annually collected and pub- 
 lished to the world, and the cost of the county prisons has 
 been reduced to an extent which would hardly be credited. 
 To give a single instance of this reduction, the annual cost of 
 rations for each prisoner in the common jails has been brought 
 
92 
 
 REPORT OK PEKAL AND 
 
 down from $89 25 to $32 85, a saving iu this item of nearly 
 two-thirds. 
 
 The experience in France is equally decisive. In 1856, the 
 state took charge of all the prisons of the country. The 
 result has been the correction of the grossest abuses in every 
 department of the administration, the introduction of excel- 
 lent and cheap supplies into the prisons, reduction of expenses 
 by at least one-third, and an almost incredible augmentation 
 of the product of prison labor. 
 
 The annual product of such labor increased in eight years 
 (so says the Philade’phia Journal of Prison Discipline and 
 Philanthropy) in all the Departments, wiih the exception of 
 that of Paris, from 14,446 francs to 900,000 francs, an increase 
 of more than 6,000 per cent. 
 
 In the twenty-fifth report they re-affirm the same views, 
 and say: “As the principle that crowns all, and is essential to 
 all, it is now commonly felt and acknowledged, that no prison 
 system for a State or country can be perfect, can even be suc- 
 cessful to the broadest and most desirable extent, without some 
 central authority that sits at the helm, guiding, controlling, 
 harmonizing, unifying, vitalizing the whole.” 
 
 The Board of State Charities for Massachusetts for 1868 
 say : “ The most important matter connected with our prisons 
 is to have the whole of them, from lock-up to State Prison, 
 brought under the inspection and supervision of a Central 
 Board, with one Inspector General. By discontinuing the 
 salaries of local inspectors, enough would be saved to pay the 
 salary of a competent officer, who should give his whole time 
 to the work.” 
 
 They renew the recommendation the following year, and 
 say : “ The experience of another year shows still more strongly 
 the necessity of inspection and supervision, and of an efficient 
 Inspector General, and the Board renews its recommendation 
 of last year, that such an office be established.” 
 
 Some progress has already been made in carrying these views 
 into effect through boards formed in different States, although 
 
REFORMATORY INSTITUTIONS. 
 
 93 
 
 Legislatures have been slow in clothing these boards with the 
 requisite power to enable them to accomplish all the good that 
 might be accomplished. 
 
 In Massachusetts a Board of State Charities was established 
 in 1863, under an act of the Legislature of that year. 
 
 II consists of five persons appointed by the Governor and 
 Council, who receive no compensation except for expenses, and 
 a secretary and agent, who both receive salaries. One of the 
 five members of the board is appointed each year. 
 
 The duties of the board are “ to investigate and supervise 
 the whole system of the public charitable and correctional 
 institutions of the commonwealth,” and to recommend such 
 improvements as they deem necessary. They can remove 
 paupers and lunatics from one institution to another. The 
 agent is to transact the “ out-door business” of the board, and 
 to perform various duties with reference to paupers, lunatics, 
 emigrants, etc. 
 
 The secretary, besides keeping the records, is* to collect sta- 
 tistics and to “ prepare a series of interrogatories to the several 
 institutions of charity, reform, and correction, supported 
 wholly or in part by the Commonwealth, or the several coun- 
 ties thereof, with a view to illustrate, in his annual report, the 
 causes and best treatment of pauperism, crime, disease, and 
 insanity. He shall also arrange and publish in his report all 
 desirable information concerning the industrial and material 
 interests of the Commonwealth bearing upon these subjects.” 
 
 The board have rooms in the State House, hold meetings at 
 least monthly, and are to make annual reports to the Legisla- 
 ture. The salaries of the agent and secretary were at first 
 fixed at two thousand dollars each, but have been increased to 
 three thousand dollars, and these offices have been filled by 
 men of marked ability. The reports of the board are of 
 exceeding value, as illustrating the causes and best treatmont 
 of pauperism, crime, disease, and insanity, “and the exposure 
 and reform of existing abuses and defects in the management 
 of charitable and correctional institutions.” 
 
04 
 
 HEPOUT OX PEXAL AXD 
 
 Ohio in 1867 established a Board of State Charities, consist- 
 ing of five persons appointed by the Governor, and who receive 
 no compensation other than actual traveling expenses. Their 
 powers are very similar to those of the Massachusetts board, 
 except that until the present year they have had no salaried 
 officers to aid them. This want, of course, greatly crippled 
 their power for good, but this defect has now been remedied, 
 and the reports already made have thrown great light upon 
 the condition of charitable and penal institutions in that 
 State, and their labors have been most beneficial. 
 
 The constitution of New York formed in 1867, but which 
 w r as not adopted, contained a clause which provided for a 
 Board of Managers of Prisons to be appointed by the Gov- 
 ernor, with the consent of the Senate, to hold office for ten 
 years, one to go out every two years. They were to have the 
 charge of State Prisons, and to perform such duties in respect 
 to other prisons as should be provided by law. They were to 
 have no compensation other than expenses, and were to appoint 
 a secretary whose salary was to be fixed by laiv ; and also to 
 appoint the warden, clerk, physician, and chaplain of each 
 State Prison, and to remove the same for cause only, and after 
 an opportunity to be heard. The warden was to appoint and 
 remove at pleasure all other officers. Such a system can be 
 established in New York only by an amendment to the con- 
 stitution. The Prison Association, in urging the last Legisla- 
 ture to submit such an amendment to the people, give as a 
 reason, that “ the article incorporated into the rejected consti- 
 tution was prepared by an experienced committee after long 
 and earnest deliberation ; that it 'was unanimously approved 
 by the executive committee when submitted to them ; that it 
 was not made a party question by the convention that adopted 
 it, but received the hearty support of both parties ; that it has 
 the sanction of the present Chief Magistrate, who took an 
 active part in framing it; that it was approved and recom- 
 mended by the Board of State Prison Inspectors in their last 
 
REFORMATORY INSTITUTIONS. 
 
 05 
 
 annual report; that it has the prestige of the votes of a pre- 
 ponderating majority of one of the most enlightened bodies 
 ever assembled in this State; that it promises the best results 
 for prison discipline in case it should become a part of the 
 fundamental law” 
 
 The State of Rhode Island, in 1867, provided for the organ- 
 ization of the Board of State Charities and Corrections, con- 
 sisting of six persons appointed by the Governor, with the 
 advice and consent of the Senate, and of a secretary appointed 
 by the board. The secretary alone receives a compensation. 
 They are to appoint a Superintendent of State Charities and 
 Corrections. The Board “have the entire charge and control 
 of said work-houses, asylums for the incurable insane, house 
 of correction, and alms-houses, and may appoint such assist- 
 ants in the management thereof as they may deem necessary, 
 and shall fix their compensation; also the compensation of 
 the secretary and superintendent, and may make all rules and 
 regulations for the government of all of said institutions, 
 including ail contracts for the labor of said institutions.” 
 
 They have also other powers, and are required to make a 
 report annually. 
 
 The State of Illinois, in the Siirne year, provided for a 
 “Board of State Commissioners of Public Charities,” con- 
 sisting of five persons appointed by the Governor, one going 
 out each year. They are to visit all charitable or correctional 
 institutions, “excepting prisons receiving aid from the State, 
 to examine institutions, the conduct of trustees, the condition 
 of buildings, and to ascertain: 1st. Whether moneys have 
 been economically and judiciously expended. 2d. Whether 
 the objects designed are accomplished. 3d. Whether the laws 
 have been complied with. 4th. Whether all parts of the State 
 are equally benefited, and to report in writing to the Gov- 
 ernor, and to make recommendations.” They are also to inves- 
 tigate abuses when directed by the Governor, and to examine 
 poor-houses at least once in each year. They are to appoint 
 
96 
 
 REPORT OK PEKAL AND 
 
 a clerk, who is to act as an accountant, but the members of 
 the Board receive no compensation. The Board have 
 appointed as secretary, Rev. F. 0. Wines, a gentleman pre-emi- 
 nently qualified for the position, and who is already making 
 his influence felt for good. He is paid, we understand, a salary 
 of three thousand dollars per annum. 
 
 A bill was introduced into the last Legislature of Indiana 
 providing for a “Board of Managers of Prisons,” which we are 
 assured was received with great favor, and would, doubtless, 
 have become a law, except for the fact that the session came to 
 a sudden and unexpected termination by the withdrawal of a 
 portion of the members. The bill was evidently drawn with 
 great and intelligent care, and as it possesses some peculiar 
 features that may be suggestive, we give an abstract of some 
 of its provisions: 
 
 The Board was to consist of five persons appointed by the 
 Governor, with the advice and consent of the Senate, one to 
 go out every two years, subject to removal by the Governor for 
 malfeasance or misfeasance in office. They were to receive two 
 hundred dollars a year for traveling expenses, and no other 
 compensation. They were to have the charge and superintend- 
 ence of all State Prisons, appoint and fix the salaries of the 
 warden, clerk, physician, and chaplain, and have the power of 
 removal, — other officers being appointed by the warden, but to 
 be satisfactory to the Board. 
 
 They were to appoint a superintendent of prisons, who was 
 to be their secretary and executive officer, and, with the con- 
 sent of the Governor, fix his salary. They were to conduct all 
 prisons on the principles of reformation and not of vindictive 
 justice, and prescribe such methods of discipline and govern- 
 ment as will, as far as possible, reform the characters and pre- 
 serve the health of the inmates, and secure them fixed habits 
 of industry, morality, and religion. 
 
 There were to be no officers who did not sustain a good 
 moral character and abstain from the use of intoxicating 
 liquors and profane language. 
 
REFORMATORY INSTITUTIONS. 
 
 97 
 
 Governor Haight, of California, in his annual message* 
 warmly recommends the appointment of a Board of Commis- 
 sioners to have the supervision of the State Prison, and to 
 appoint the warden, the Board to consist of five in number, 
 one to go out every two years. 
 
 There are, doubtless, other States that have some like system 
 of central supervision, but we are not familiar with them. 
 
 It is very apparent that the tendency, both of opinion 
 and legislation, is in the direction of some such central author- 
 ity. Of its need in this State we entertain no doubt, and we 
 therefore recommend that a “ Board of State Charities and 
 Corrections” be formed, to consist of five persons to be 
 appointed by the Governor, with the advice and consent of the 
 Senate, to hold office for the term of ten years, but so arranged 
 that the term of one of said board shall expire every two years, 
 and that they be authorized to appoint a secretary, who shall be 
 the executive officer of the Board. We recommend farther, that 
 this Board have the charge and supervision of all the prisons and 
 correctional institutions, alms-houses, and work-houses under 
 the control of the State, and that it be made their duty to exam- 
 ine the condition of all jails, prisons, correctional institutions, 
 almshouses, and work-houses in the State, and report thereon, 
 and that they be further charged with the duty of collecting facts 
 and statistics, as well as the opinions of men eminent for their 
 acquaintance "with social science, w r ith a view to illustrate in 
 their annual report the causes and the best treatment of crime, 
 pauperism, disease, imbecility, and insanity. We recommend 
 that they receive no compensation other than their actual 
 expenses incurred in the discharge of the duties of their office, 
 but that they be authorized, with the consent of the Governor, 
 to fix the salary of their secretary, so that they may secure the 
 services of some one especially Competent to fill the duties of 
 the office. This officer -would be the executive officer of the 
 board in the general supervision of the institutions under their 
 charge, and upon him would devolve the duty of collecting 
 13 
 
08 
 
 REPORT ON PENAL AND 
 
 facts and preparing statistics on the subjects of pauperism and 
 crime in our own State and elsewhere, so far as they would 
 throw any light upon the subject of what legislation or action 
 is required here. He would need to he familiar, and to keep 
 himself constantly familiar, with the improvements and experi- 
 ments, whether legislative or practical, going on in other 
 States and countries in the treatment of pauperism and crime 
 and the actual workings thereof, so that we can gain wisdom 
 from the experience of others, rather than from rash and 
 expensive experiments of our own. 
 
 It is obvious to all thoughtful men, that it is not easy to 
 find a man just adapted to such a position, and that any man 
 who could fill it would command a liberal remuneration for 
 his time in other departments of business, and the power of 
 the Board to accomplish their own work well would measur- 
 ably depend upon their being at liberty to employ and retain 
 for their only officer, a man fully qualified for the place, in 
 whose capacity and executive ability they could implicitly 
 confide. 
 
 APPOINTMENT OF OFFICERS. 
 
 Should any such system as we have recommended be 
 adopted by the Legislature, or any material modifications of 
 our present system he made, a question of very great impor- 
 tance will have to he determined, viz., where shall be placed 
 the power of appointing the superintendents, wardens, or 
 other chief officers of these institutions for the treatment of 
 pauperism and crime ? 
 
 The success of any system of treating these great subjects 
 must depend very largely on the ability, skill, and fidelity with 
 which it is carried out. A good system will fail in incompetent 
 hands, ancl a poor system will measurably succeed in thor- 
 oughly competent ones. The peculiar qualities required to 
 fill the position of chief officer of such institutions are far 
 more rare than those required to fill many higher and more 
 responsible ones, aud this arises from the combination of vari- 
 ous qualities essential to success in such a position. 
 
REFORMATORY INSTITUTIONS. 
 
 99 
 
 Sucli an officer should be familliar with the various methods, 
 good, bad, and indifferent, of managing such institutions, and 
 of the actual workings of the various methods and their prac- 
 tical results, and have the sound judgment to select the best, 
 and if possible, to improve upon them. He should be an 
 accurate, skillful, energetic business man, with a large execu- 
 tive capacity, that will enable him to carry out his own plans 
 successfully through the agency of others. He should unite 
 firmness of purpose with kindness of heart, and possess the 
 rare power of knowing how to deal wisely with the perverted 
 moral and intellectual forces, and lastly, he should heartily 
 love the work which he undertakes, and devote himself in the 
 spirit of the great Master to the highest welfare of those under 
 his charge, and be astute, ingenious, and assiduous in devising 
 modes to educate and save them. 
 
 Whoever has the appointing power should be so interested 
 in the workings of these institutions, so familliar with their 
 wants, as to know just what qualities are demanded in a chief 
 officer, and should be left at liberty, uncontrolled and uninflu- 
 enced by party, political, or personal considerations, to select 
 the right man wherever he may be found, and to retain him as 
 long as the interest he had in charge demanded it. 
 
 It is the uniform testimony of all men connected with, or 
 interested in the management of prisons in other States, that 
 one of the greatest evils connected with such management is 
 the influence of party politics. In the State of New York the 
 Inspectors of State Prisons are elected by the people, and are 
 consequently politicians ; and the wardens of the State Pris- 
 ons are appointed and dismissed upon the same principle that 
 other offices in the gift of the prevailing party for the time 
 being are filled and vacated. It is difficult to exagerate the 
 evils that have resulted from this course. These evils have 
 been set forth very fully and powerfully in reports of the Prison 
 Association, and good men of all parties are recommending a 
 change. In many other States, the evils if not equally great 
 are still very manifest. 
 
100 
 
 REPORT ON' PENAL AND 
 
 Wisconsin recently lost a most capable and valuable officer 
 because he could not refute the only charge brought against 
 him, that he had held the office six years, and he was forced 
 to give way to a new man in obedience to the doctrine of 
 “ rotation in office.” 
 
 In this State the evils resulting from this cause have not as 
 yet bean seriously felt. The paltry salary paid to the Agent of 
 our State Prison has not produced a very lively competition 
 for the place. But that such evils will creep in, as our system 
 enlarges to meet the growing necessities of our State, there can 
 be no doubt. No Governor, whatever might be his personal 
 views, would feel himself at liberty to appoint a person of 
 opposing politics to such an office, or even to retain one 
 therein. The doctrine that “ to the victors belong the spoils,” 
 is practically adopted by all the political parties, and no one 
 filling a political office having an appointing power feels at 
 liberty to disregard it. He is, in that respect, the representa- 
 tive of the party electing him, and must carry out their wishes. 
 Not only must the appointee be of the same political faith, 
 but, in general, appointments must be made in consideration 
 either of past or future services to the party in power. This 
 would, as a rule, exclude the appointing power, not only from 
 going outside of the dominant political party, and of the State, 
 but from going outside of active politicians to select a man. 
 This may be very well so far as officers wielding a political 
 powder are concerned, but the same rule ought not to be applied 
 to such offices as those which we are considering. They are 
 not offices of political trust or power, but they are offices 
 requiring peculiar and rare qualities to fill them successfully. 
 Important pecuniary, sanitary, moral, and social results depend 
 upon the manner in which they are administered, and whoever 
 has the appointing power should have all parties and all States 
 from which to make the selection. Many of the most suc- 
 cessful prison officers have been invited to come from other 
 States to those desiring their services. Gen. Pillsburv, whose 
 reputation is national, was drawn to New York from Connec- 
 
REFORMATORY INSTITUTIONS. 
 
 101 
 
 ticut, Mr. Brockway, of the Detroit House of Correction, was 
 drawn from New' York, Mr. Cordier w r as drawn from Wiscon- 
 sin to the charge of the Western Penitentiary of Pennsylvania, 
 at Pittsburg. 
 
 These are but a few of many instances where one State lias, 
 to its great advantage, availed itself of the experience and 
 ability found in another. 
 
 The Central Board already spoken of will doubtless be 
 selected without reference to party politics. The place is one 
 of duties only, and not of honor or profit, and there is no 
 obligation to fill such places with political friends merely. 
 This Board w'ould have charge of the institutions referred to, 
 would know their distinctive "wants, and have an especial 
 interest in the appointment of men as chief officers wffio are 
 adapted to the position. They would be in a position to act 
 with entire independence in the selection of such officers, and 
 so to exercise their best judgment. 
 
 We therefore respectfully yet earnestly recommend that the 
 power of appointing the chief officers of the several State 
 institutions for the treatment of paupers and criminals, be 
 placed in such Board ; such power of appointment to extend 
 to the superintendent or warden, the clerk, the physician, 
 and the chaplain where there is one. The subordinate officers 
 w r e think, should be appointed by the chief officer of each 
 institution and be under his control. 
 
 For much the same reasons, we recommend that the Board, 
 together with the Governor, fix the salaries of such officers. 
 With most of these institutions, whether they are to be sup- 
 ported at a great expense to the State or at a slight expense, 
 or whether some of them shall be self-supporting, will depend 
 very largely upon the business skill with which they are con- 
 ducted. Business skill, equal to conducting institutions of 
 such magnitude economically and successfully, is in demand 
 and has a high market value, and as a rule cannot be obtained 
 for a small salary; and true economy unquestionably demands 
 that a skill and capacity equal to the duties be employed, 
 
102 
 
 REPORT OX PENAL AND 
 
 rather than inferior skill and capacity although at a much 
 cheaper rate. Had the Detroit House of Correction been con- 
 ducted by any man who could have been obtained at a small 
 salary, its surplus earnings would not, we apprehend, as now, 
 exceed an average of over $13,500 per annum. 
 
 We think the Board should be at liberty to do just as men 
 doing a large business of their own would do, — go into open 
 market and select the best men that they can find for the 
 several places, at such salaries as they find themselves com- 
 pelled to pay, in order to obtain thoroughly competent men. 
 
 We are aware that there is a natural reluctance to pay sub- 
 ordinate officers salaries larger than those received by our 
 highest State officers and our Judges ; and it will be said that 
 these salaries secure competent men for Superintendents of 
 State Prisons, etc. 
 
 We apprehend, however, that there is no analogy to be 
 drawn between the different offices. Our State and judicial 
 offices are places of high honor, and political and judicial trust 
 and power. They indicate, if they do not demonstrate, that 
 the incumbents hold a high place in the confidence and affec- 
 tions of the people, and they are often the stepping-stones to 
 still higher honors. History has shown, that in all ages 
 offices of this character have been sought after by able and 
 ambitious men without respect to the salary. And in this 
 State these offices are sought or accepted not for the small 
 salaries attached to them, but despite the smallness of the 
 salaries. Indeed, the salaries paid our State officers are less 
 than those received by thousands of clerks, book-keepers, 
 salesmen, and agents of all sorts, through the State; while 
 the income of many a fifth -rate lawyer far exceeds the salaries 
 of our Judges. 
 
 The offices in question are not offices of honor, or political 
 trust or power. The duties belonging to them are most labor- 
 ious, and are anything but inviting in their character. Their 
 performance, as we have seeu, requires rare and peculiar 
 capacity. The capacity that would enable one to perform these 
 
REFORMATORY INSTITUTIONS. 
 
 103 
 
 duties, could not fail to command liberal compensation in other 
 and more inviting departments of labor, and as a rule, liberal 
 compensation alone can secure it for the benefit of the State. 
 The Board could safely be trusted to pay no larger salaries 
 than the interests of the State demand. 
 
 Another reason why this power of appointment should rest 
 with the Board is, that it would give some assurance that the 
 appointments would be permanent in their character, unless a 
 cause for removal exists. Where an appointment is for a short 
 term, and a re-appointment, however unexceptionable the con- 
 duct of the officer, is uncertain, and depends upon whether 
 there is, or is not, a change in the administration of the State 
 government, personal or political, or upon the doctrine of 
 “ rotation in office,” it will be difficult, if not impossible, to 
 secure the services of thoroughly competent men for such 
 positions. 
 
 Such men can do better than to take a place, the permanency 
 of which is dependent upon such contingencies. Then, too, 
 all experience demonstrates, that the proper administration of 
 such institutions depends very largely upon the stability of 
 the management. Every change in the management intro- 
 duces, to some extent, new theories, new plans and practices, 
 and often rash experiments ; while frequent changes destroy 
 all system, and bring confusion, if not utter chaos. The 
 most successful institutions are marked by the stability of 
 their management. Mr. Jones, of the New York House of 
 Kefuge (the most successful of all institutions of that class), 
 has been there nearly twenty years. Gen. Pillsbury, of the 
 xllbany Penitentiary, has been at its head from its opening — 
 a quarter of a century since. Mr. Haynes, of Massachusetts 
 State Prison, has been at its head, as warden, for nearly thir- 
 teen years, while fifteen of the subordinate officers have been 
 there, upon an average, nearly sixteen years. In New York, 
 evils of a most serious character have sprung up in the State 
 Prisons from the frequent changes of wardens and other officers. 
 
104 
 
 REPORT OK PEKAL AND 
 
 CONCLUSION. 
 
 W e are conscious that the recommendations made by us in 
 the foregoing report involve some radical changes in the admin- 
 istration of ©ur system for the care and custody of our paupers 
 and criminals. We have, however, endeavored to avoid recom- 
 mendations which involve rash and untried experiments, and 
 to confine ourselves to those which experience has shown to be 
 practicable, and which are demanded by the highest interests 
 of society and the State. If they are adopted they will doubt- 
 less involve a very considerable present expense, but we are 
 firmly convinced that the expenditure will be in the interests 
 of the strictest economy. Every wise, effective measure for the 
 prevention and the cure of pauperism and crime will save far 
 more than its cost. Nor is it expected that these changes if 
 approved can be all made at once. This must be the work of 
 time, but the sooner a broad, wise system is adopted the better 
 for every interest concerned. It seems to us that the first step 
 in the direction of reform is the establishment of a Central 
 Board, which shall have the supervision of all State institu- 
 tions of a penal character, or for the relief of paupers, and 
 ample power to inspect all alms-houses, jails, and correctional 
 institutions, whether supported and controlled by town, city, or 
 county. It should be their duty to report to the Legislature the 
 condition of all such institutions, and also to examine and 
 report upon the best mode of preventing and dealing with 
 pauperism and crime. Such a Board properly constituted, 
 with an efficient secretary or executive ^officer, after giving the 
 subject a careful study, would be enabled intelligently to recom- 
 mend just what further steps are necessary to be taken, and 
 when and how far the other recommendations of this Commis- 
 sion should be adopted ; and could most efficiently aid in carry- 
 ing into effect any measures which the Legislature should 
 authorize. 
 
 The next most urgent need is an immediate provision for 
 
REFORMATORY INSTITUTIONS. 
 
 105 
 
 the insane and idiotic poor and the children of poverty and 
 want found in the alms-house or elsewhere,, and the removal of 
 all these classes from the county alms-houses. 
 
 The classification of the other paupers and the establish- 
 ment of hospitals for one class and work-houses for another is 
 not as urgent, but its early accomplishment is demanded by 
 the gravest considerations. And especially is this the case as 
 to many classes of the sick poor, who require competent 
 nursing and good medical or surgical treatment. These classes, 
 we suggest, could best be provided for in a hospital established 
 near the Medical Department of the State University. 
 Nowhere else could they receive skillful treatment so economi- 
 cally, while the establishment of a hospital at that point 
 •would greatly increase the facilities for medical and surgical 
 education. 
 
 As the State Prison needs thorough repairs and improve- 
 ments which require a large expenditure, it seems most desir- 
 able that, before this is done, the Legislature should adopt a 
 permanent prison system for the State, so that these expendi- 
 tures shall be made with reference to such system, and the 
 position which the present State Prison shall hold therein. 
 
 In the meantime all persons convicted of such offenses as 
 authorize their confinement in county jails, could be sent to 
 the Detroit House of Correction, and the jails only be used as 
 places of detention, and their very name abolished. The 
 system of indeterminate confinement until the prisoner had 
 earned his conditional or absolute discharge by furnishing 
 evidence of his fitness to again go into society, could also be 
 tried under the most favorable circumstances in the Detroit 
 House of Correction. 
 
 These recommendations are made in the discharge of a duty 
 imposed upon us by the act of the Legislature, under which 
 we have received our appointment from your Excellency, and 
 as the result of a laborious examination, careful study, and full 
 consideration ; and as such w'e respectfully submit them and 
 14 
 
106 
 
 PENAL AND REFORMATORY INSTITUTIONS. 
 
 the report generally, to your Excellency, and through you to 
 the Legislature. 
 
 We desire to express our obligations to you personally for 
 the deep interest which you have taken in our duties, and 
 the efficient aid which you have rendered us in the perfor- 
 mance of those duties. 
 
 S. S. CUTTER, 
 
 C. I. WALKER, 
 
 F. H. RANK IK, 
 
 Commissioners. 
 
APPENDIX. 
 
APPENDIX 
 
 SCHEDULE A. 
 
 Statement showing the condition of poor-house buildings , and 
 
 values of county farms , in the severed counties of the State. 
 
 Alcona — No report. 
 
 Allegan — Wood building, in very fair condition ; men lodge 
 in an old dilapidated building outside, with an addition made 
 of boards, like a barn, for the insane: farm, 160 acres; value, 
 $10,000. 
 
 Alpena — No poor-house. 
 
 Antrim — No poor-house. 
 
 Barry — House in good condition, barn old ; farm, 120 acres : 
 value, about $6,000. 
 
 Bay — House built of wood and needs repairs; farm, 120 
 acres; value, $5,000. 
 
 Benzie — No poor-house. 
 
 Berrien — New brick house, two stories and basement, with 
 28 rooms and a separate department for the insane ; also com- 
 modious barns and out-liouses ; cost 15,000, which, with the 
 farm of 160 acres, is valued at $25,000. 
 
 Branch — Two story brick building with attic and cellar : 
 large and roomy, in good condition, well managed; also two 
 large barns and one horse-barn ; farm, 140 acres ; value, $17,000. 
 
 Calhoun — Large wooden building, part of it 17 years old, 
 remainder only 10 years; good barn, farm, 145 acres, value 
 $14,500. Insane persons in a wretched condition, for want of 
 proper places of custody, and experience in the care of them. 
 
110 
 
 REPORT OK PEKAL AKD 
 
 Cass — Brick house, with frame addition ; rooms small ; a 
 new addition of brick is being built ; kept in good order — neat 
 and cleanly ; farm, 280 acres ; value, $25,000. 
 
 Charlevoix — No poor-house. 
 
 Cheboygan — No poor-house. 
 
 Chippeiva — No report. 
 
 Clinton — Frame building, two stories, and also a small build- 
 ing, separate, in good condition ; also, a log house ; farm, 77 
 acres; value, $6,000. 
 
 Delta — No report. 
 
 Eaton — Brick house, in which are cells for insane persons ; 
 also a frame building; farm, 160 acres; value, $6,000. 
 
 Emmet — No poor-house. 
 
 Genesee — Large brick building, two and one-half stories, in 
 good preservation, but needing some repairs ; farm, 112-j acres ; 
 value, $8,000. 
 
 Grand Traverse — No poor-house. 
 
 Gratiot — Small house, in goi)d, comfortable condition ; farm, 
 80 acres; value, $3,500. 
 
 Hillsdale — Two frame buildings, one of them large, the 
 other small ; both are neat and comfortable ; the farm and 
 grounds are homelike and pleasant ; farm, 200 acres ; value, 
 $12,000. 
 
 Houghton — No report. 
 
 Huron — No poor-house. 
 
 Ingham — Building good ; nearly new ; farm 200 acres ; value, 
 $8,000. 
 
 Ionia — Poor log house, good frame barn ; farm, 120 acres ; 
 value, $6,000. 
 
 Iosco — No poor-house. 
 
 Isabella — Log house with frame addition ; good barn ; farm, 
 160 acres; value, $4,000. 
 
 Jackson — Large old building, out of repair and inconvenient ; 
 distinction between town and county poor still kept up ; farm 
 1 60 acres : value, $9,000. 
 
REFORMATORY INSTITUTIONS. 
 
 Ill 
 
 Kalamazoo — Old wood building, in a dilapidated condition, 
 not very neat; farm, 170 acres; value, $17,000. 
 
 Kent — Old wood building in a bad condition ; rooms small ; 
 an out building used for idiots and diseased persons, cold, 
 filthy, and uncomfortable; farm, 104 acres; value, $7,000. 
 
 Keweenaw — No report. 
 
 Lapeer — Frame house ; condition not reported ; farm, 80 
 acres; value, $6,500. 
 
 Leelanaw — No poor-house. 
 
 Lenawee — New brick house, with two wings ; three stories ; in 
 good condition ; separate department for the insane ; farm, 
 147 acres ; value, $35,000. 
 
 Livingston — No poor-house or farm ; the keeping of the 
 poor is let to the lowest bidder. A committee of the board of 
 supervisors say that “ the poor are kept in one room, 18x22 
 feet ; males and females occupying it as sleeping, sitting, and 
 dining room ; in a frame house boarded and battened, without 
 plaster.” 
 
 MacJcinac — No report. 
 
 Macomb — Brick house, three stories, with basement ; also a 
 separate hospital building of brick ; also two frame buildings, 
 one for insane and idiots, the other for washing and bathing; 
 good barn and other out-buildings; farm, 134 acres; value, 
 $18,000. 
 
 Mi mistee — N o report. 
 
 Manitou — No report. 
 
 Marquette — No report. 
 
 Mason — No report. 
 
 Mecosta — Small frame house and barn ; farm, 80 acres ; 
 value, $3,000. 
 
 Menominee — No report. 
 
 Midland — House needs repairs ; barn in poor condition ; 
 farm, 120 acres ; value, $3,000. 
 
 Monroe — Large building, very inconvenient, and in a dilapi- 
 dated condition ; farm, 154 acres ; value, $13,000. 
 
112 
 
 REPORT ON PENAL AND 
 
 Montcalm — A good, substantial frame building, large enough 
 for present use, and a good, new, large barn ; farm, 120 acres ; 
 value, 14,000. 
 
 Muskegon — Frame house, boarded with 2-inch plank and 
 sided, but not plastered ; farm, 80 acres ; value, $4,000. 
 
 Newaygo — No poor-house. 
 
 Oakland — Large brick house, three stories, with comfortable 
 rooms, except the cells for the insane, no provision having 
 been made for warming them in cold weather ; farm, 137 acres ; 
 value, about $20,000. 
 
 Oceana — No poor-house. 
 
 Ontonagon — Frame dwelling-house and barn, not used for 
 the poor, who are kept cheaper elsewhere : farm, 140 acres ; 
 value, $2,000. 
 
 Osceola — No report. 
 
 Ottawa — Wood building, two stories, with a wing and an 
 addition for wood-house and cells, in good repair and kept 
 clean ; farm, 200 acres ; value, $14,000. 
 
 Saginaw — Wood building, large and roomy, in good condi- 
 tion ; three insane persons confined in miserable cells. The 
 overseer thinks “they might be benefited or restored under 
 proper treatment, which the county does not afford.” Farm, 
 80 acres ; value, $7,700. 
 
 Sanilac — New brick building with stone basement ; sexes 
 kept in separate rooms ; farm, 120 acres ; value without build- 
 ings, $4,000 ; value of buildings not stated. 
 
 Shiawassee — Frame building, two stories with basement, 40 
 by 70 feet ; rooms small ; farm, 80 acres ; value, $5,000. 
 
 St. Clair — Has no poor-house; the poor are kept by the 
 week, the county providing furniture, bedding, clothing, etc.; 
 farm, about 200 acres ; value, $7,000. 
 
 St. Joseph — Frame building; large and in fair condition; 
 well managed; farm, 210 acres; value, $8,400. 
 
 Tuscola — No report. 
 
IlEFORMA TO R Y INSTITUTIONS. 
 
 113 
 
 Van Buren . — Large house, in good condition, and satisfac- 
 torily conducted ; farm, 170 acres ; value, $10,200. 
 
 Washtenaw — Old wooden building, with a new brick apart- 
 ment for the insane; farm, 120 acres; value, $9, GOO. 
 
 Wayne — Extensive brick buildings, with a separate depart- 
 ment for the insane, with cells, damp, in an unwarmed base- 
 ment, and no ventilation ; poor-house not very well cared for ; 
 very little classification of inmates; farm, 280 acres; value, 
 $47,600. 
 
 Wexford — No poor-house. 
 
 Total value of farms, $407,000. 
 
 In one instance, the value of the buildings is omitted, and 
 from some counties there is no report. Probably the total 
 value of investments in the State, including stock, agricultural 
 implements, furniture, and household goods, will exceed 
 $600,000. 
 
 A few of the poor-houses are well ventilated, but the greater 
 portion of them have no means of ventilation, except by the 
 doers and windows. Only a very few of them have any bathing 
 facilities, and in hut a few of them is there any proper classi- 
 fication of the inmates, and no effort made for their moral or 
 mental improvement. The condition of the poor in some of 
 them is wretched and miserable, particularly that unfortunate 
 class who are insane, some of them being kept in uncomfort- 
 able rooms, without fire in the coldest weather, in a very filthy 
 condition, or confined in miserable cells, without ventilation, 
 and with scarcely any of the comforts of life ; a disgrace to a 
 civilized and Christian community. 
 
 15 
 
114 
 
 REPORT OX PEXAL A XI) 
 
 SCHEDULE B. 
 
 Table showing the Cost of Support of the Poor, in the several Counties of the 
 State, over and above the Products of County Farms , for the year 1869. 
 
 COUNTIES. 
 
 Poor tlouse. 
 
 Out tloor Relief. 
 
 Total. 
 
 Alcona (no report)-- 
 
 
 
 
 Allegan . _ . _ 
 
 $1,538 00 
 
 $3,710 00 
 1,222 16 
 
 $5,248 00 
 1,222 16 
 400 00 
 
 Alpena 
 
 Antrim . . - 
 
 
 400 00 
 
 Barry 
 
 Bay 
 
 Benzie (no poor to provide for) 
 
 Berrien 
 
 Branch 
 
 3,000 00 
 1,759 95 
 
 1,465 28 
 2,384 29 
 
 4,465 28 
 4,144 24 
 
 2,500 00 
 1,170 25 
 2,910 00 
 1,199 61 
 
 5,500 00 
 1,203 00 
 4,000 00 
 
 8,000 00 
 2,373 25 
 
 Calhoun 
 
 6,910 00 
 3,115 03 
 
 Cass - 
 
 1,915 42 
 
 Charlevoix (no poor to prov. for) 
 Cheboygan 
 
 
 250 00 
 
 250 00 
 
 Chippewa 
 
 
 578 66 
 
 578 66 
 
 Clinton. 
 
 1,793 25 
 
 1,028 88 
 
 2,822 13 
 
 Delta (not returned) 
 
 Emmet (no poor to provide for) 
 Eaton 
 
 
 
 
 3,029 70 
 4,175 70 
 
 500 00 
 
 3,529 70 
 9,762 10 
 1,866 71 
 
 Genesee 
 
 Grand Traverse 
 
 5,586 40 
 1,866 71 
 71 50 
 
 Gratiot 
 
 1,500 00 
 1,000 00 
 
 1,571 50 
 2,500 00 
 12,283 58 
 242 07 
 
 Hillsdale 
 
 1,500 00 
 
 Houghton.. 
 
 12,283 58 
 242 07 
 
 Huron 
 
 
 Ingham . -- 
 
 5,554 46 
 3,050 24 
 
 1,573 19 
 
 7,127 65 
 
 Ionia 
 
 3,050 24 
 1,400 00 
 1,100 00 
 0,700 00 
 4,713 00 
 5,000 00 
 
 Iosco 
 
 1,400 00 
 600 00 
 
 Isabella 
 
 500 00 
 
 Jackson 
 
 6,000 00 
 1,635 00 
 
 700 00 
 
 Kalamazoo 
 
 3,078 00 
 1,342 00 
 5,759 00 
 
 Kent 
 
 3,658 00 
 
 Keweenaw 
 
 5,759 00 
 
 Lapeer 
 
 3,000 00 
 
 3,500 00 
 
 6,500 00 
 
 Leelanaw _ . 
 
 884 00 
 
 884 00 
 
 Lenawee 
 
 2,833 61 
 575 75 
 4,433 80 
 
 5,983 74 
 
 8,817 35 
 1,158 47 
 7,401 64 
 
 Livingston 
 
 Macomb , 
 
 582 72 
 2,967 84 
 
 Mackinac (no report) 
 
 Manistee 
 
 
 5,813 84 
 
 5,813 84 
 
 Manitmi (no rppnrt) 
 
 
 
 Marquette _ _ 
 
 i 
 
 6,201 06 
 1,599 64 
 2,126 04 
 
 6,201 06 
 1,599 64 
 2,646 04 
 
 Mason 
 
 
 Mecosta _. 
 
 520 00 
 
 Menominee 
 
 757 01 
 
 757 01 
 
REFORMATORY INSTITUTIONS. 
 
 115 
 
 SCHEDULE B. — Continued. 
 
 COUNTIES. 
 
 Poor House. 
 
 Out door Relief. 
 
 Total. 
 
 Midland 
 
 $1,500 00 
 3,066 00 
 3,989 92 
 5,417 44 
 
 $1,142 30 
 1,880 40 
 977 22 
 
 Monroe 
 
 Montcalm 
 
 Muskegon - 
 
 Newave-o 
 
 1,619 13 
 5,000 00 
 1,967 79 
 4,435 95 
 970 00 
 4,320 75 
 1,759 98 
 
 Oakland. 
 
 4,300 00 
 
 Oceana 
 
 Ontonagon. 
 
 
 Ottawa 
 
 2,571 00 
 4,585 84 
 1,000 00 
 4,459 00 
 
 Saginaw 
 
 Sanilac _ _ ... . . - 
 
 Shiawassee 
 
 St. Clair. 
 
 13,687 67 
 1,226 16 
 1,123 62 
 2,625 00 
 6,130,69 
 9,000,00 
 169 00 
 
 St. Joseph. .. _ 
 
 3,714 34 
 
 Tuscola. 
 
 Van Buren 
 
 Washtenaw 
 
 Wayne 
 
 Wexford 
 
 1,126 00 
 6,178 10 
 18,270 63 
 
 $2,642 80 
 4,946 40 
 
 4.967 14 
 5,417 44 
 1,619 13 
 9,300 00 
 
 1.967 79 
 4,435 95 
 3,541 00 
 8,906 59 
 2,759 98 
 4,459 00 
 
 13,687 67 
 4,940 50 
 1,123 62 
 3,751 00 
 12,308 79 
 27,270 63 
 169 00 
 
 Total 
 
 $117,515 59 
 
 $148,611 69 
 
 $266,127 28 
 
 In the above schedule, the statement of expenses for the 
 support of the poor, in the counties of Chippewa, Houghton, 
 Huron, Keweenawq Marquette, Mason, Menominee, St. Clair, 
 and Tuscola, are taken from the reports of the Superintendents 
 of the Poor to the Secretary of State, for the year 1869 ; the 
 Commissioners not having received statements from those 
 counties of such expenses, and not being able to distinguish 
 what proportion of such expense was for support of paupers 
 in the poor-house, or for out-door relief, the several amounts 
 are placed in the second column. We are aware that the fore- 
 going schedule shows some discrepancies, when compared with 
 the annual reports made to the Secretary of State by the 
 County Superintendents, for which we are unable to account, 
 except on the supposition that the statements made to us do 
 not make the year close at the same time, some of them having 
 been made several months since, while others are of a more 
 recent date. 
 
116 
 
 REPORT OST PEA T AL AXI) 
 
 We have before us two statements of the expenses in Wayne 
 county, one made January 12, 1870, and one August 22, 1870,. 
 which differ from each other, and neither of them agree with 
 the amount reported to the Secretary of State. We mention 
 this as one instance by way of illustration, and with a view off 
 recommending that a new form for these reports be adopted, 
 containing more full and complete returns from the County 
 Superintendents of the Poor, and that they he required by law 
 to make such returns on or before a certain time, and that a 
 penalty be incurred for neglect to comply with such require- 
 ment. 
 
 We herewith submit for consideration in Schedule “ F,” the 
 items to be embraced in such report, and the Secretary of State 
 should be directed to make the blanks in proper form, and 
 distribute the same to the several counties. 
 
REFORMATORY INSTITUTIONS. 
 
 117 
 
 SCHEDULE C. 
 
 Table showing the number of Insane , Idiots y Blind , and Mute in the several 
 Poor-Houses. 
 
 COUNTIES. 
 
 Allegan 
 
 a? 
 
 00 
 
 £ 
 
 O 
 
 REMARKS. 
 
 Alpena.. 
 Antrim . 
 Barry. .. 
 
 Bay 
 
 Benzie.. 
 Berrien . 
 Branch . 
 Calhoun 
 
 One returned from Insane 
 [Asylum as incurable. 
 
 Cass 
 
 Charlevoix. 
 
 Cheboygan 
 
 Clinton 
 
 Emmet 
 
 Eaton 
 
 Genesee 
 
 1 
 
 1 
 
 2 
 
 4 
 
 Grand Traverse. 
 
 Gratiot. — 
 
 Hillsdale 
 
 Houghton 
 
 Huron 
 
 Ingham 
 
 Ionia 
 
 Iosco 
 
 Isabella 
 
 Jackson 
 
 Kalamazoo 
 
 Kent 
 
 Keweenaw 
 
 Lapeer 
 
 Leelanaw 
 
 Lenawee 
 
 Livingston 
 
 Macomb . . 
 
 Manistee 
 
 Marquette 
 
 Mason 
 
 Mecosta 
 
 Midland 
 
 Monroe 
 
 Montcalm 
 
 Muskegon 
 
 Newaygo 
 
 Oakland 
 
 Oceana 
 
 1 
 
 6 
 
 1 
 
 1 
 
 ry 
 
 21 
 
 7 
 
 15 
 
 1 
 
 9 
 
 5 
 
 1 
 
 kept in private fam. and 
 [1 at Detroit Asylum. 
 
 3 
 
 ! Number not stated. 
 
118 
 
 REPORT 017 PE17AL AND 
 
 S CHED TILE C. — Continued. 
 
 COUNTIES. 
 
 Ontonagon . 
 
 Ottawa 
 
 Saginaw 
 
 Sanilac 
 
 Shiawassee. 
 
 St. Clair 
 
 St. Joseph.. 
 
 Tuscola 
 
 Yan Buren. 
 Washtenaw. 
 
 W ayne 
 
 W exforcl 
 
 19 
 
 67 
 
 215 
 
 62 
 
 REMARKS. 
 
 30 
 
 15 
 
 Total. 
 
REFO RM ATO R Y INSTITUTION S. 
 
 119 
 
 SCHEDULE D. 
 
 Table showing the largest number of inmates in the several County Door 
 
 Houses at one time during the year 1869 ; 
 
 also the number under 16 
 
 years of age. 
 
 
 
 
 
 6 c5 
 
 O 
 
 Jh . 
 
 0) n, 
 
 
 COUNTIES. 
 
 « 
 
 a> q 
 
 & O 
 
 W)*, 
 
 W 53 
 
 'g £ 
 
 REMARKS. 
 
 
 6 
 
 & 
 
 
 Allfio’fl.n 
 
 19 
 
 2 
 
 
 Mpena _ - -- 
 
 
 No Poor House. 
 
 
 
 
 No Poor House. 
 
 Harry 
 
 19 
 
 
 Bay 
 
 20 
 
 5 
 
 
 Benzie 
 
 
 No Poor House. 
 
 Berrien 
 
 34 
 
 3 
 
 Branch _ 
 
 25 
 
 4 
 
 
 Calhoun 
 
 36 
 
 12 
 
 
 Cass 
 
 35 
 
 6 
 
 
 Charlevoix - 
 
 No Poor House. 
 
 Cheboygan 
 
 
 
 No Poor House. 
 
 Clinton - 
 
 32 
 
 6 
 
 Eaton 
 
 25 
 
 1 
 
 
 Emmet 
 
 
 No Poor House. 
 
 Genesee - 
 
 42 
 
 10 
 
 Grand Traverse 
 
 No Poor House. 
 
 Gratiot 
 
 9 
 
 3 
 
 Hillsdale 
 
 43 
 
 4 
 
 
 Houghton 
 
 
 No Report. 
 
 No Poor House. 
 
 Huron 
 
 
 
 Ingham - 
 
 29 
 
 ie” 
 
 Ionia 
 
 27 
 
 6 
 
 
 Iosco . 
 
 No Poor House. 
 
 Isabella - 
 
 11 
 
 
 Jackson 
 
 37 
 
 4 
 
 
 Kalamazoo 
 
 47 
 
 10 
 
 
 Kent 
 
 41 
 
 9 
 
 
 Keweenaw 
 
 
 No Report. 
 
 Lapeer 
 
 23 
 
 4 
 
 Leelanaw _ _ _ _ 
 
 
 No Poor House. 
 
 Lenawee 
 
 60 
 
 17 
 
 Livingston 
 
 14 
 
 
 Macomb 
 
 54 
 
 10 
 
 
 Manistee 
 
 No Report. 
 
 No Report. 
 
 No Report. 
 
 Marquette 
 
 
 
 Mason 
 
 
 
 Mecosta 
 
 3 
 
 1 
 
 Midland - 
 
 12 
 
 3 
 
 
 Monroe 
 
 49 
 
 8 
 
 
 Montcalm 
 
 6 
 
 1 
 
 • 
 
 Muskegon 
 
 19 
 
 o 
 
 
120 
 
 REPORT ON PENAL AND 
 
 S G II ED JJLE D. — Continued. 
 
 COUNTIES. 
 
 Highest N o. 1 
 
 at one time. 1 
 
 O 
 
 5 8 
 gg 
 
 6 
 & 
 
 REMARKS. 
 
 
 
 
 No Poor House. 
 
 Oakland .. 
 
 49 
 
 5 
 
 Oceana 
 
 
 No Poor House. 
 
 Ontonagon 
 
 
 
 No poor kept in Poor H ’se. 
 
 Ottawa. 
 
 20 
 
 9 
 
 Saginaw 
 
 33 
 
 4 
 
 
 Sanilac 
 
 10 
 
 1 
 
 
 Shiawassee 
 
 24 
 
 No rec’d k’pt tk’se un ’dr 16 
 
 St. Clair 
 
 34 
 
 3 
 
 St. Joseph 
 
 44 
 
 6 
 
 
 Tuscola 
 
 No Report. 
 
 Van Buren 
 
 20 
 
 1 
 
 Washtenaw 
 
 103 
 
 6 
 
 
 Wayne 
 
 370 
 
 30 
 
 
 W exford 
 
 No Poor House. 
 
 
 
 
 Total 
 
 l478~ 
 
 212 
 
 
II EFOBMATORY INSTITUTIONS. 
 
 121 
 
 SC II ED ULE E. 
 
 Statement showing the cost to Counties for maintenance of Indigent and 
 Pauper Patients , at Michigan Asylum for the Insane, for 12 months end- 
 ing 31st of July, 1870. 
 
 COUNTIES. 
 
 No. of Weeks. 
 
 Board. 
 
 Clothing, 
 
 Exp. 
 
 Home, 
 
 Und’tak’r 
 
 Damages. 
 
 1 
 
 Postage. 
 
 Total. 
 
 M 
 
 o 
 
 o 
 
 £ 
 
 s 
 
 p. 
 
 Allegan . 
 
 509 2 
 
 $1,782 50 
 
 $204 26 
 
 $6 10 
 
 $1 02 
 
 $1,993 88 
 
 $3 91 
 
 
 29 5 
 
 104 00 
 
 28 31 
 
 
 33 
 
 132 64 
 
 4 46 
 
 Barry 
 
 109 4 
 
 383 50 
 
 104 09 
 
 40 
 
 45 
 
 488 44 
 
 4 46 
 
 Bay 
 
 92 
 
 322 00 
 
 38 43 
 
 
 12 
 
 860 55 
 
 3 92 
 
 Berrien 
 
 389 1 
 
 1,862 00 
 
 186 83 
 
 5 75 
 
 87 
 
 1,555 45 
 
 8 99 
 
 Branch 
 
 600 4 
 
 2,102 00 
 
 207 74 
 
 11 80 
 
 1 82 
 
 2,323 36 
 
 3 87 
 
 Calhoun 
 
 438 6 
 
 1,536 00 
 
 169 47 
 
 10 S8 
 
 92 
 
 1,717 27 
 
 3 91 
 
 Cass 
 
 276 2 
 
 967 00 
 
 60 19 
 
 73 
 
 57 
 
 1,028 49 
 
 3 72 
 
 Clinton 
 
 234 2 
 
 820 00 
 
 124 95 
 
 2 20 
 
 87 
 
 948 02 
 
 4 05 
 
 Delta 
 
 51 3 
 
 ISO 00 
 
 32 55 
 
 
 09 
 
 212 64 
 
 4 16 
 
 Eaton 
 
 66 5 
 
 233 50 
 
 29 96 
 
 51 
 
 * 
 
 264 90 
 
 3 97 
 
 Emmet 
 
 52 1 
 
 182 50 
 
 2 80 
 
 
 12 
 
 1S5 42 
 
 3 56 
 
 Genesee 
 
 386 3 
 
 1,352 50 
 
 197 48 
 
 2 40 
 
 99 
 
 1,553 S7 
 
 4 02 
 
 Hillsdale... 
 
 276 3 
 
 967 50 
 
 132 32 
 
 5 18 
 
 4S 
 
 1,105 48 
 
 4 00 
 
 Houghton 
 
 207 5 
 
 727 00 
 
 118 02 
 
 5 88 
 
 21 
 
 851 11 
 
 4 10 
 
 Huron 
 
 52 1 
 
 1S2 50 
 
 9 12 
 
 
 12 
 
 191 74 
 
 3 68 
 
 Ingham 
 
 181 6 
 
 636 50 
 
 59 81 
 
 90 
 
 24 
 
 697 45 
 
 8 83 
 
 Ionia 
 
 184 5 
 
 646 50 
 
 95 52 
 
 1 03 
 
 60 
 
 743 65 
 
 4 03 
 
 Iosco 
 
 18 6 
 
 66 00 
 
 19 15 
 
 13 
 
 
 85 28 
 
 4 52 
 
 Jackson 
 
 43o 5 
 
 1,525 00 
 
 169 64 
 
 6 80 
 
 1 08 
 
 1,702 02 
 
 8 91 
 
 Kalamazoo 
 
 914 
 
 8,199 00 
 
 412 32 
 
 4 85 
 
 93 
 
 8,616 60 
 
 8 96 
 
 Kent 
 
 398 3 
 
 1,394 50 
 
 222 46 
 
 10 21 
 
 1 35 
 
 1,628 52 
 
 4 09 
 
 Keweenaw 
 
 104 2 
 
 365 00 
 
 5 54 
 
 
 09 
 
 870 63 
 
 8 56 
 
 Lapeer 
 
 244 4 
 
 856 00 
 
 89 91 
 
 3 63 
 
 78 
 
 950 32 
 
 8 S9 
 
 Leelanaw 
 
 52 1 
 
 182 50 
 
 19 45 
 
 
 27 
 
 202 22 
 
 3 88 
 
 Lenawee 
 
 310 4 
 
 1,087 00 
 
 209 08 
 
 6 69 
 
 1 59 
 
 1,804 86 
 
 4 20 
 
 Livingston 
 
 119 3 
 
 418 00 
 
 15 65 
 
 1 16 
 
 09 
 
 484 90 
 
 3 64 
 
122 
 
 REPORT ON PENAL AND 
 
 SCHEDULE E.— Continued. 
 
 COUNTIES. 
 
 No. of Weeks. 
 
 Board. 
 
 Clothing, 
 
 Exp. 
 
 Home, 
 
 Und’tak’r 
 
 Damages. 
 
 Postage. 
 
 Total. 
 
 Av. per Week, j 
 
 Macomb 
 
 271 2 
 
 $949 50 
 
 $108 37 
 
 $4 18 
 
 $0 67 
 
 $1,062 72 
 
 $3 92 
 
 
 56 3 
 
 197 50 
 
 22 80 
 
 20 
 
 
 220 50 
 
 3 91 
 
 Mason 
 
 102 5 
 
 359 50 
 
 69 28 
 
 5 60 
 
 21 
 
 434 59 
 
 4 25 
 
 Mecosta - 
 
 48 2 
 
 169 00 
 
 26 91 
 
 8 61 
 
 06 
 
 199 58 
 
 4 14 
 
 Monroe 
 
 404 1 
 
 1,414 50 
 
 128 62 
 
 1 30 
 
 83 
 
 1,545 £> 
 
 3 S2 
 
 Montcalm 
 
 71 6 
 
 251 50 
 
 58 26 
 
 2 30 
 
 21 
 
 312 27 
 
 4 34 
 
 Muskegon 
 
 422 6 
 
 1,480 00 
 
 213 30 
 
 4 70 
 
 75 
 
 1,698 75 
 
 4 01 
 
 Newaygo .... 
 
 18 2 
 
 64 00 
 
 1 50 
 
 
 24 
 
 65 74 
 
 3 60 
 
 Oakland 
 
 597 6 
 
 2,092 50 
 
 241 90 
 
 12 16 
 
 1 32 
 
 2,347 88 
 
 3 92 
 
 Oceana 
 
 26 6 
 
 94 00 
 
 4 91 
 
 
 12 
 
 99 03 
 
 3 69 
 
 Ontonagon 
 
 52 1 
 
 182 50 
 
 29 15 
 
 
 09 
 
 211 74 
 
 4 06 
 
 Ottawa 
 
 303 
 
 1,060 50 
 
 128 36 
 
 S 91 
 
 1 35 
 
 1,199 12 
 
 3 95 
 
 Saginaw 
 
 353 4 
 
 1,237 50 
 
 226 31 
 
 7 63 
 
 1 28 
 
 1,472 72 
 
 4 16 
 
 Sanilac 
 
 104 2 
 
 365 00 1 
 
 24 29 
 
 2 80 
 
 09 
 
 392 18 
 
 3 76 
 
 Shiawassee 
 
 158 4 
 
 555 00 
 
 56 91 
 
 2 50 
 
 90 
 
 615 31 
 
 3 80' 
 
 St. Clair 
 
 376 4 
 
 1,31S 00 
 
 166 81 
 
 19 10 
 
 57 
 
 1,504 48 
 
 4 00 
 
 St. Joseph 
 
 312 5 
 
 1,094 50 
 
 170 62 
 
 7 38 
 
 1 20 
 
 1,273 70 
 
 4 08 
 
 Tuscola _ 
 
 61 3 
 
 215 00 
 
 13 80 
 
 2 80 
 
 30 
 
 231 90 
 
 3 78 
 
 Van Buren 
 
 210 2 
 
 736 00 
 
 115 62 
 
 12 96 
 
 27 
 
 864 85 
 
 4 11 
 
 Washtenaw 
 
 326 6 
 
 1,144 00 
 
 232 83 
 
 10 85 
 
 1 35 
 
 1,389 08 
 
 4 25 
 
 Wayne 
 
 766 1 
 
 2,681 50 
 
 421 60 
 
 3 38 
 
 4 15 
 
 3,110 63 
 
 4 00 
 
 Total 
 
 11,783 3 
 
 $41,242 00 
 
 $5,427 20 
 
 $198 59 
 
 $32 89 
 
 $46,900 68 
 
 $3 90 
 
REFORMATORY INSTITUTIONS. 
 
 m 
 
 SCHEDULE F. 
 
 Statement of the different items which it is desirable should be 
 embraced in the annual report of Superintendents of the 
 Poor , to the Secretary of State , to be made on the first day 
 of November in each year, or at such other time as shall be 
 deemed best. 
 
 1st — Whole number of Paupers in Poor-House during the 
 year. 
 
 2d — Average number during the year. 
 
 Sd — Number under 16 years of age. 
 
 4th — Number of Insane. 
 
 5th — Number of Idiots. 
 
 6th — Number of Blind. 
 
 7th — Number of Mutes. 
 
 8th — Cost of maintenance in Poor-House. 
 
 9th — Salary of Keeper of Poor-House. 
 
 10th — Amount paid for Medical Attendance. 
 
 11th — Amount earned by labor of Paupers. 
 
 12tli — Amount paid for transportation of Poor. 
 
 13th — Amount paid for repairs of buildings, stock, tools y 
 etc., including all items which are not any part of the actual 
 expenses of maintaining the Poor. 
 
 llfh — Amount paid to Superintendents of Poor. 
 
 15th — Amount paid to Supervisors and Justices. 
 
 16th — Number of persons who have received temporary 
 support or outdoor relief during the year. 
 
 17th — Amount paid for temporary support or outdoor relief 
 during the year. 
 
 18th — Value of county farms, including buildings, stock, 
 tools, furniture, and fixtures. 
 
 19th — Nationality or birthplace of paupers. 
 
 Remarlcs. — Under this head should be given a general 
 description of the condition of the farm-house and other build- 
 
124 
 
 KEPORT OK PEKAL AKD 
 
 ings ; the manner in which paupers are treated ; how they are 
 fed and clothed ; in what manner sick persons are cared for ; 
 how the insane and idiots are kept, and what are their treat- 
 ment and accommodations ; how the pauper children are edu- 
 cated ; facilities for bathing ; mode of ventilation ; in short, 
 all the information necessary to give the public a full and com- 
 plete account of the condition of the poor throughout the 
 entire State. 
 
 Were such a full and accurate report required to be made 
 every year, we are of opinion that there would be a very great 
 improvement made in the care and comfort of this unfortu- 
 nate class of our citizens. 
 
 SCHEDULE Gr. 
 
 Statement showing the condition of the County Jails , highest 
 number of Prisoners at one time, etc. ; also , estimated value 
 of buildings. 
 
 A Icona — N o statement. 
 
 Allegan — Brick building, 40x40 feet, two stories, used for 
 residence of sherilf, and jail; rooms neat; four cells 8x12 
 feet ; no provision for separation of sexes, except when con- 
 fined in cells ; no bathing facilities ; no secular or religious 
 instruction given ; no employment furnished ; no reading 
 matter; prisoners allowed free communication with each 
 other; privy in bad condition; highest number of inmates at 
 one time, 13 ; estimated value, $10,000. 
 
 Alpena — Frame building, two stories, used as dwelling and 
 jail ; eight cells, five of them 5x8 feet ; three of them 15 feet 
 square; sexes kept separate; no bathing facilities ; no instruc- 
 tion; Bibles furnished; no employment; prisoners allowed 
 free communication with each other; highest number of 
 inmates at one time, 8 ; estimated value, $5,000. 
 
 A ntrim — Frame building, occupied for court-house, dwelling 
 and jail ; three cells, eight feet square ; no bathing facilities ; 
 no instruction; sexes separated by cells only; no employ- 
 
REFORMATORY I INSTITUTIONS. 
 
 125 
 
 ment; prisoners not allowed free communication with each 
 other; highest number of inmates, 1; estimated value, $7,000. 
 
 Barry — Brick building, two stories, with frame addition, 
 used for dwelling and jail; in good condition; warmed by 
 furnace; six cells, five 8x9 feet and one 9x12 feet. Also, one 
 cell in basement for drunkards; sexes separated by cells only ; 
 110 instruction ; papers and periodicals furnished ; no bathing 
 facilities; no employment; communication free; highest 
 number of inmates, 5 ; estimated value, $5,000. 
 
 Bay — Frame building, one story, with dwelling-house at- 
 tached; eleven cells; ten 5x7 feet and one 8x12 feet ; sexes 
 kept separate; free communication in the daytime; religious 
 instruction is given by city missionary, and reading matter fur- 
 nished; no employment; no bathing facilities; highest num- 
 ber of inmates, 21 ; estimated value, $4,000. 
 
 Berrien — New brick jail and residence ; 2 tier of cells ; 15 
 of iron and stone below, and 8 of iron and wood above ; sexes 
 separated; good bathing facilities ; reading matter furnished, 
 but no instruction given ; free communication in day time, 
 except in special cases ; no employment ; highest number of 
 inmates, 13 ; estimated value, $30,000. 
 
 Benzie — No statement. 
 
 Branch — No jail except a temporary <£ lock-up;” prisoners 
 confined in St. Joseph county jail; the temporary building js 
 not fit for the purpose of a jail, and has been condemned by 
 the Circuit Court. 
 
 Calhoun — Brick building, 2 stories; second story used for 
 jail; 6 cells 8x10 feet ; separate room for women, but the sexes 
 can converse with each other; no bathing arrangements; no 
 instruction ; newspapers furnished ; no employment ; free com- 
 munication allowed; highest number of inmates, 17 ; estimated 
 value, $8,000. 
 
 Cass — Brick building, 30x40 feet, two stories; six cells — 
 four for men and two for women, each 9 feet square ; no bath- 
 ing facilities ; no instruction; reading matter furnished by 
 
126 
 
 REPORT OK PEKAL AND 
 
 sheriff; no employment; free communication allowed; cells 
 are lined with plank, and are badly infested with bed-bugs ; 
 highest number of inmates, 7 ; estimated value, $2,500. 
 
 Charlevoix — Has no jail ; prisoners are kept in the jail of 
 Antrim county. 
 
 Cheboygan — Frame building ; two cells, 10 feet square ; sexes 
 not separated ; no facilities for bathing ; no instruction ; no 
 employment ; free communication allowed ; highest number of 
 inmates, 2 ; estimated value, $1,000. 
 
 Chippewa — No statement. 
 
 Clinton — New building, 20x25 feet, built for a jail by pri- 
 vate party, and leased to the county ; five cells, 5x7 feet ; good 
 ventilation ; sexes not separated ; no bathing facilities ; no in- 
 struction ; no employment ; free communication allowed ; 
 highest number of inmates, 7 ; value or amount of rent not 
 stated. 
 
 Delta — No statement. 
 
 Eaton — Has no jail ; prisoners are kept in the jail of Jack- 
 son county. 
 
 Emmet — No statement, 
 
 Genesee — Building two stories ; exterior walls of brick ; the 
 entire interior of iron, new and in good condition, strong and 
 secure; sixteen cells, 5x8 feet; sexes separated; no bathing- 
 arrangements ; no instruction ; books and papers furnished ; 
 no employ ment ; free communication allowed ; highest num- 
 ber of inmates, 20 ; estimated value, $30,000. 
 
 Grand Traverse — Wood building, one story, with two cells, 
 10x16 feet ; no bathing facilities; no instruction ; no employ- 
 ment ; highest number of inmates, 1 ; estimated value, $1,200. 
 
 Gratiot — Has no jail ; prisoners are kept in the jail of Clin- 
 ton county. 
 
 Hillsdale — Stone building, 35x55 feet; two stories; six cells, 
 4x8 feet, and only 64 feet high in lower story; separate room 
 for females in second story, 16 feet square; no bathing facili- 
 ties, no instruction, and no employment; reading matter fur- 
 
REFORMATORY INSTITUTIONS. 
 
 127 
 
 nished by the sheriff; free communication allowed; the cells 
 in this jail are damp and unhealthy ; privy in bad condition ; 
 building is old and unsuitable for the purpose used ; highest 
 number of inmates, 12; estimated value not stated. 
 
 Houghton — No statement. 
 
 Huron — Frame building, two stories, about 30 feet square, 
 with wing ; used for dwelling and jail ; three cells, 8 feet square : 
 sexes not separated only by cells; no bathing facilities; no in- 
 struction ; no employment ; free communication in general ; 
 highest number of inmates, 2 ; estimated value, $1,000. 
 
 Ingham — No statement. 
 
 Ionia — Wood building 18x24 feet, two stories; attached to 
 sheriff’s residence; in poor condition; four cells, 9x12 feet; 
 sexes separated only by cells; no bathing facilities; no in- 
 struction; no employment; free communication; value not 
 stated; highest number of inmates, 11. 
 
 Iosco — Stone basement of the court-house is used for jail; 
 one room for men, 14x20 feet; one for women 14 feet square; 
 three cells, 7x11 feet; no facilities for bathing; no instruction ; 
 no employment; and generally free communication is allowed ; 
 highest number of inmates, 4; estimated value, $2,000. 
 
 Isabella — Has no jail ; prisoners are confined in the jail of 
 Midland county. 
 
 Jackson — Brick building; fourteen cells for men and three 
 for women, 5x7-J feet; sexes kept separate; no instruction 
 given; no bathing arrangements ; no stated employment; men 
 work some in the garden and barn, and special leave is given 
 to work out with ball and chain; women sew some; free com- 
 munication allowed ; water-closets very offensive; sick persons 
 are cared for in cells, which have no light or ventilation except 
 through grated doors from illy lighted and illy ventilated 
 corridors; highest number of inmates, 64; value not stated. 
 
 Kalamazoo — Brick building 40x100 feet ; used for dwelling 
 and jail; kept neat and tidy; tw r enty-eight cells, 5x7 feet, 8 
 feet high ; three large cells; sexes kept separate; no bathing 
 
128 
 
 REPORT OX PEXAL AXD 
 
 facilities; no instruction given; no employment; a Bible is 
 furnished each prisoner, and papers sent in by benevolent per- 
 sons; free communication not allowed; highest number of 
 inmates, 28 ; estimated value of building, $40,275. 
 
 Kent — Wood building, 2 stories; used for dwelling and jail; 
 dwelling comfortable; jail old and in bad condition; 9 cells in 
 lower story, 5xG feet, 9 feet high ; G cells in upper story, 6x8 
 feet, 7 feet high ; sexes separated ; no bathing arrangements ; 
 no instruction ; no employment ; prisoners allowed free com- 
 munication, two of whom are boys; highest number of in- 
 mates, 22 ; estimated value, $1,500. 
 
 Keweenaw — No statement. 
 
 Lapeer — No statement. 
 
 Leelanaw — Wood building, 16x22 feet; 1 large common 
 room; 2 cells, 7^x6 feet; no bathing facilities ; no instruction 
 given ; no employment ; highest number of inmates, 2 ; esti- 
 mated value, $500. 
 
 Lenawee — Old brick building in bad condition; fourteen 
 cells, 8 feet square, with four berths in each cell; sexes sepa- 
 rated; no bathing facilities; no instruction; no employment ; 
 no reading matter furnished ; free communication allowed in 
 the daytime ; highest number of inmates, 18 ; estimated value, 
 $5,000. 
 
 Livingston — Jail and residence of the sheriff on the lower 
 lloor of the court-house; eight cells; two of them 14 feet 
 square; five of them 5x10 feet, and one is 8x30 feet; only 
 common facilities for bathing; Bibles furnished, but no in- 
 struction given; prisoners not allowed free communication 
 with each other; highest number of inmates, 5: estimated 
 value, $10,000. 
 
 Mackinac — No statement. 
 
 Macomb — Stone building for jail, one story, attached to a 
 two-story brick building, used as a dwelling by sheriff; six 
 cells, four of them 8x12 feet; two 12 feet square; women kept 
 in a large cell; jail very much out of repair; walls damp; 
 
REFORMATORY INSTITUTIONS. 
 
 129 
 
 no bathing facilities ; no instruction ; newspapers furnished 
 for reading ; no employment ; free communication allowed in 
 the daytime ; highest number of inmates, 8 ; estimated value, 
 $6,000. 
 
 Manistee — No statement. 
 
 Manitou — No statement. 
 
 Marquette — No statement. 
 
 Mason — No statement. 
 
 Mecosta — Frame building, two stories, with lour cells, 6x8 
 feet ; sexes separated ; no bathing facilities ; Bibles furnished, 
 and Ministers of the Gospel call frequently ; no employment ; 
 free communication allowed ; highest number of inmates, 7 ; 
 estimated value, $3,500. 
 
 Menominee — No statement. 
 
 Midland — No statement. 
 
 Monroe — No statement. 
 
 Montcalm — Has no jail. 
 
 Muskegon — Wood building, two stories with wing; 3 cells in 
 lower story for men, 4x7 feet, and one above for w r omen, 12x16 
 feet; sexes separated; no facilities for bathing; no reading 
 furnished ; no instruction given ; no employment ; free com- 
 munication; building is rented by the county, belongs to 
 village of Muskegon ; highest number of inmates, 16. 
 
 Newaygo — Building of timber, covered with plank ; size, 
 20x24 feet; 14 years old, damp and rotten, and in a bad con- 
 dition ; two cells, 12 feet square ; sexes separated only by cells r 
 no bathing facilities ; no instruction given ; no reading matter,, 
 and no employment ; free communication allowed ; highest 
 number of inmates, 3 ; estimated value, $500. 
 
 Oakland — Small brick building, two stories; old, inconve- 
 nient, and unfit for a jail; 8 cells, only 1 of them for women,* - : 
 no separation of sexes, if more than one female is in jail at the 
 same time ; no facilities for bathing ; no instruction given 
 books and papers are furnished by sheriff ; free communication 
 allowed ; two, and sometimes three prisoners, confined in the 
 17 
 
130 
 
 REPORT OK PEKAL AXD 
 
 same cell ; arrangements in regard to water-closets bad ; highest 
 number of inmates, 15 ; value not stated. 
 
 Oceana — Building two stories; lower one used for jail; 
 upper one for court-room ; five cells about 8x12 feet ; sexes not 
 separated, only by being confined in different cells, or by the 
 hall between them ; no bathing arrangements ; no instruc- 
 tion given; some books furnished by individuals ; no employ- 
 ment ; free communication generally allowed ; highest numbe r 
 of inmates, 3 ; estimated value, $3,500. 
 
 Ontonagon — Good log building, 30x40 feet; well ventilated ; 
 four cells, 8 feet square; sexes separated by being kept in 
 different cells, but prisoners can communicate freely with each 
 other ; no bathing facilities ; no instruction ; no reading mat- 
 ter ; no employment ; number inmates during the year, none; 
 estimated value, $500. 
 
 Osceola — No statement. 
 
 Ottawa — Small wood building, 1-J stories ; upper part resi- 
 dence of sheriff ; lower part used for jail ; 2 cells, 7x9 feet ; 
 sexes kept separate ; 'women kept in a room in the upper story ; 
 no bathing facilities ; no instruction given ; no reading matter, 
 and no employment ; free communication allowed. This jail 
 is in a filthy condition, and is totally unfit for the purposes of 
 a jail, and is of no value ; highest number of inmates, 6. 
 
 Saginaw — New T brick building, two stories ; twenty-five cells ; 
 two of them 7x8 feet, and the others 6x7 feet, constructed of 
 iron ; heated by furnace ; good ventilation in the passages, but 
 none in the cells ; one cell for females ; wdien fully completed 
 there will be good facilities for washing and bathing; religious 
 instruction is given by members of Young Men’s Christian 
 Association once or twice a week ; books and papers are fur- 
 nished by them or by the sheriff ; no employment ; prisoners 
 generally allowed free communication with each other ; provi- 
 sion for separation of sexes not very good ; highest number of 
 inmates, 23 ; estimated value, $32,000. 
 
 Sanilac — Lower part of court-house used for jail; wood 
 
REFORMATORY INSTITUTIONS. 
 
 131 
 
 building; three cells; one is 10 feet square, one is 10x12 feet, 
 and one is 6x10 feet ; not in a very good condition ; sexes kept 
 separate; one tin wash-dish for washing and bathing purposes ; 
 no instruction given; no reading matter; no employment; 
 prisoners not allowed free communication ; highest number of 
 inmates, 5 ; estimated value of jail, $100. 
 
 Shiawassee — “A den at the back of the court-house, not fit 
 for the confinement of wild beasts ;” three cells of different 
 sizes ; sexes not separated ; no facilities for bathing ; no 
 instruction ; no reading matter ; no employment ; free com- 
 munication allowed; highest number of inmates, 12. 
 
 St. Clair — Brick building, 25x82 feet ; 3 cells for males ; 
 1 for females, 8x12 feet; free communication allowed; no 
 bathing facilities ; no instruction ; no employment ; highest 
 number of inmates, 9 ; estimated value, $4,000. 
 
 St. Joseph — Brick building, 2-J stories, 40x60 feet, in good 
 condition ; 8 cells, 6 of them 3^x6-J feet, 1 10 feet square, and 
 1 10x20 feet ; sexes kept separate ; washing facilities good ; 
 one special bath-room ; no instruction given ; reading matter 
 furnished by sheriff; men allowed free communication in the 
 daytime ; highest number of inmates, 9 ; estimated value, 
 $15,000. 
 
 Tuscola — Xo statement. 
 
 Van Baren — Wood building in poor condition; 4 cells 
 8x10 feet ; sexes kept separate ; a very insecure jail, and pris- 
 oners frequently escape; no bathing facilities ; no instruction; 
 no employment ; free communication allowed; highest num- 
 ber of inmates, 5 ; estimated value, $1,000. 
 
 Washtenaw — Brick building containing 22 cells for men, 
 and 4 for women, 4x8 feet and 7 feet high ; sexes kept sep- 
 arate ; religious services every Sunday ; some books are fur- 
 nished by Dr. Gillespie; no bathing facilities ; no employment; 
 free communication allowed ; privy arrangements are very bad, 
 offensive, and unwholesome ; building in bad condition, needs 
 repairs; highest number of inmates, 12; value not stated. 
 
132 
 
 REPORT ON - PENAL AND 
 
 Wayne — Stone building, three stories ; securely built, with 
 six distinct corridors, and cells opening therefrom ; eighty-four 
 cells, 4^x8 feet, 10 feet high, besides three rooms for prisoners ; 
 three cells for witnesses ; one common room used for women 
 only; there is running water in each corridor, but no bathing 
 facilities, nor any requirements thereto ; religious services 
 every Sabbath, under the care of the Young Men’s Christian 
 Association, and books and papers are furnished by them to 
 some extent ; prisoners in each corridor can hold free com- 
 munication with each other ; when visited in 1869, small boys 
 were confined in the same corridor with hardened criminals > 
 highest number of inmates, 50; value not ascertained. 
 
 Wexford — Has no jail, and it is said has had no use for one 
 as yet. 
 
 It is believed that the diet of prisoners in our jails is very 
 generally good and wholesome, and in sufficient quantity. 
 
 Probably the sick are as well cared for as they can be in such 
 places, and with such accommodations, none of the jails hav- 
 ing hospital rooms ; they are generally treated in cells, or in 
 rooms illy ventilated and poorly lighted. Nearly all the jails 
 in the State are without ventilation, except by means of the 
 doors and windows ; and, with a few exceptions, are so con- 
 structed as to be prejudicial to the health of persons who are 
 confined in them. Many of them are insecure, and in that 
 respect unfit for the use for which they are designed. 
 
 The total estimated value of buildings, as shoAvn by the fore- 
 going abstract, is the sum of $230,075, and several of them are 
 not estimated, some of which are of considerable value, and if 
 all were included would probably swell this amount to nearly 
 if not quite $300,000, and perhaps exceed that sum ; yet but 
 few of them are constructed in the manner that they ought to 
 be. It will be seen that the greatest number of prisoners at 
 any one time during the year, in the counties from w'hich state- 
 ments were received, or which were visited by the Commissioners, 
 amounts to 466 ; and w'ere all of the counties included, the 
 
REFORMATORY INSTITUTIONS. 
 
 133 
 
 number would probably exceed 500; and probably the total 
 number confined during the year would double or treble the 
 number above specified, perhaps more, nearly all of whom are 
 without any secular or religious instruction, with no employ- 
 ment, but very few of them supplied with reading matter, 
 with no facilities for cleanliness, and, while so confined; not 
 only having no opportunity for improvement, but in a con- 
 dition calculated to make them immoral and vicious. In fact, 
 most of our jails, as they are managed, may be considered 
 schools of vice and iniquity ; when they ought to be so con- 
 ducted as to promote good morals and tend to elevate and 
 enlighten the inmates in regard to their duties to themselves 
 and to society. 
 

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