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."' ."■!■■■ ; '3'-.V" 
 
 STATE OF NEW JERSEY 
 
 REPORT 
 
 OF THE 
 
 PRISON INQUIRY COMMISSION 
 
 DWIGHT W. MORROW. Chairman 
 SEYMOUR L. CROMWELL JOHN P. MURRAY 
 
 HENRY.F. HILFERS OGDEN H. HAMMOND 
 
 VOLUME I 
 
 TRENTON 
 
 NEW JERSEY 
 
 1917 
 
Cornell University 
 Library 
 
 The original of this book is in 
 the Cornell University Library. 
 
 There are no known copyright restrictions in 
 the United States on the use of the text. 
 
 http://archive.org/details/cu31924092594245 
 
STATE OFJMEW JERSEY 
 
 REPORT 
 
 OF THE 
 
 PRISON INQUIRY COMMISSION 
 
 TO 
 
 GOVERNOR WALTER E. EDGE 
 
 AND 
 
 THE SENATE AND GENERAL ASSEMBLY 
 OF THE STATE OF NEW JERSEY 
 TRENTON, N. J., JANUARY I, 1918 
 
 VOLUME I 
 
TABL*E OF CONTENTS. 
 
 Volume I. Report of Prison Inquiry Commission. 
 
 Appointment and Organization of Commission 3 
 
 Preliminary investigations and report 3 
 
 Duties of Commission defined 6 
 
 Improvements in State Prison 7 
 
 Scope and methods of further investigation 8 
 
 Report of results of investigation : 
 
 A. Policy of the State with reference to crime 12 
 
 B. Jurisdiction and Procedure of the Criminal Courts 20 
 
 C. Places of Detention not directly controlled by the State 25 
 
 D. State Correctional Institutions 28 
 
 • 1. The State Prison 30 
 
 2. State Home for Boys 41 
 
 3. State Home for Girls 44 
 
 4. State Reformatory for Men 46 
 
 5. State Reformatory for Women 50 
 
 E. The Labor Problem in the Correctional Institutions 53 
 
 F. Pardon and Parole 60 
 
 G. Administration of the Correctional System 65 
 
 H. Conclusions and Recommendations 72 
 
 Exhibit A. Preliminary Report of Commission 79 
 
 Exhibit B. Statistics of Jails and Workhouses 95 
 
 Exhibit C. Statistics of Correctional Institutions and of State Board of 
 
 Childrens' guardians 101 
 
 Exhibit D. Prison Labor and the State Use System 125 
 
 Volume II. A History of the Penal, Reformatory and Cor- 
 rectional Institutions of the State of New Jersey 
 by Harry E. Barnes. 
 
 Contents 3 
 
 Analytical % 11 
 
 Documentary 337 
 
State House, Trenton, N. J., 
 
 January I, 1918. 
 
 To His Excellency, Walter B. Edge, Governor, and to the 
 Honorable Senate and General Assembly of the State of 
 New Jersey: 
 
 The Commission was appointed on January 26, 19 17, pur- 
 suant to a joint resolution of the Senate and General 
 Assembly of the State of New Jersey which empowered 
 the Governor to appoint a Commission of five persons to 
 "investigate into the conditions of the penal, reformatory 
 and correctional institutions of this State, and also into what 
 is known as the 'State Use System' and the employment of 
 prisoners on roads, prison farms or in other capacities." 
 
 The Governor constituted the Commission so provided for 
 as follows: William B. Dickson, who became Chairman; 
 Seymour L. Cromwell, Henry F. Hilfers, Dwight W. Mor- 
 row and John P. Murray. Mr. Dickson having resigned from 
 the Commission on July 17, 1917, Mr. Ogden H. Hammond 
 was appointed to fill the vacancy so created and Mr. Morrow 
 was designated as Chairman. 
 
 On February 12, 1917, the Commission submitted to the 
 Governor and Legislature a preliminary report (attached hereto 
 as Exhibit A) reciting certain investigations which it had con- 
 ducted and submitting certain findings and recommenda- 
 tions at which it had arrived regarding the condition and 
 management of the State Prison at Trenton. 
 
 As appears more fully in the preliminary report the Com- 
 mission expressed its willingness to make a comprehensive 
 report on the penal and correctional institutions of the State 
 if the Senate and House of Assembly desired it to do so, and 
 for that purpose asked that its powers be continued to the first 
 day of January, 19 18. 
 
 The Legislature acted on this suggestion and on March 15th, 
 1917, passed an act confirming the Commission and continuing 
 
4 Report of Prison Inquiry Commission. 
 
 it for the period of a year from such date, directing it to report 
 to the session of the Legislature in 1918, the results of its 
 research and its recommendations thereon. It also appropriated 
 sums aggregating $44,000. for certain immediate improvements 
 in the State Prison, as recommended in the preliminary report. 
 
 On the day on which it was organized (January 27, 1917) 
 the Commission, with the Governor, made a personal inspec- 
 tion of the State Prison and interviewed the Keeper and other 
 officials. Subsequently, on January 31st and February 2nd the 
 Commission held public hearings at the State House, Trenton, 
 and on April 17th at the State Prison. The first two hearings 
 were for the most part concerned with a detailed inquiry as 
 to the management of the State Prison (including the farm at 
 Leesburg and the road camps) and of the Reformatory at 
 Rah way, the operation of the system of parole at those institu- 
 tions and the efforts of the Prison Labor Commission to put 
 into effect the law providing for the substitution of the State 
 Use System for the Contract System of prison labor in the 
 penal and correctional institutions. 
 
 The hearing of April 17th was devoted to an investigation 
 of the charges of mismanagement and cruel and inhuman 
 treatment of inmates of the State Prison. At this hearing 20 
 witnesses were examined — four officers and 16 inmates. Prior 
 to this public hearing a considerable number of inmates of the 
 Prison and of paroled and discharged prisoners had been inter- 
 viewed. As a result of these investigations the Commission, 
 after making allowance for the credibility of witnesses of the 
 character and type examined, became convinced that the system 
 of discipline in the State Prison was marred by the presence, 
 among the officials, of men who had, in the course of their 
 service, become so hardened in temper and routine as to be 
 practically unfitted to exercise authority over the men under 
 their charge. 
 
 On June 12, 1917, Mr. William B. Dickson, the Chairman of 
 the Commission, who had recently been appointed a member of 
 
Preliminary Investigations and Report. 5 
 
 the Board of Prison Inspectors, preferred charges in writing 
 to said Board against four of the deputy keepers implicated in 
 the transactions elicited by the investigation above referred to, 
 on the grounds of abuse of authority and unnecessary resort 
 to the use of extreme physical violence on inmates under their 
 authority, and recommended that they be discharged from the 
 service. The Board of Prison Inspectors declined to take action 
 on these charges and Mr. Dickson thereupon resigned from the 
 Board. 
 
 On June 9, 191 7, an inmate of the Prison, Frank Casale, died 
 at the State Hospital for the Insane, nine days after he had 
 been disciplined for misconduct at the Prison, in the course of 
 which he had been beaten by underkeepers with clubs and black- 
 jacks and seriously injured. This occurrence was formally 
 brought to the attention of the Commission in a communication 
 of the Citizens Union of New Jersey bearing date June 25, 19 17. 
 The Commission forthwith transmitted the same to the Gov- 
 ernor with the recommendation that this particular case, 
 coming so soon after the sensational charges previously investi- 
 gated by the Commission, should be investigated and dealt with 
 by the Public Prosecutor of Mercer County in which the alleged 
 criminal misconduct had been committed. The Governor, as 
 requested, transmitted the complaints to the Public Prosecutor, 
 who laid them before the Grand Jury of Mercer County. After 
 a prolonged investigation the Grand Jury, in a return made on 
 September 10, 1917, reported that no sufficient evidence had been 
 presented against any of the accused officials to warrant an 
 indictment. The substance of the Grand Jury's finding was that 
 the accused underkeepers had used no more force than was neces- 
 sary in self-defense. 
 
 That this action of the Grand Jury did not in any way affect 
 the duty or responsibility of this Commission was clearly indi- 
 cated by Governor Edge in a statement which he gave to the 
 press on the following day, in which he said : 
 
6 Report of Prison Inquiry Commission. 
 
 "I have read the findings of the Mercer County Grand 
 Jury, called at my request for the purpose of investigating 
 crimes alleged to have been committed in the Trenton 
 State Prison. That specific charges against certain 
 officials were not sustained does not indicate that our 
 prison system is not in need of reformation. The 
 Grand Jury distinctly finds the contrary, saying: 'We 
 recognize the fact that there is considerable room for 
 improvement in prison methods,' and it properly adds 
 that this is not a part of its duty, but is at present in the 
 hands of a Commission appointed by me under the 
 authority of the Legislature. It is this larger constructive 
 task that the Legislature had in mind when it created 
 the Prison Inquiry Commission." 
 
 In the principle laid down in the foregoing statement the Com- 
 mission heartily concurs. While the Commission felt that it 
 was its duty to investigate, and to hear in public, any charges 
 of cruel and inhuman treatment on the part of keepers of the 
 Prison, it was, nevertheless, of the opinion that the object of 
 such investigation was not to prosecute the accused officials, for 
 which it had neither the authority nor the requisite facilities, 
 but rather to ascertain whether such conditions as were alleged 
 did or did not exist in the Prison, and, if they did, to devise 
 and recommend measures for rendering them impossible in the 
 future. With this conception of its duty, the Commission, as 
 stated above, reported the facts disclosed by its investigations 
 to the proper authorities and proceeded with the constructive 
 task which had been committed to it. 
 
 From the outset the Commission considered that the specific 
 duties devolved upon it were: 
 
 ( i ) To seek by every means in its power to improve the 
 present condition of the State Prison, for which it was given 
 specific authority in the acts of the last Legislature making 
 certain appropriations for improvements in the Prison and 
 specifying that these should be expended only with the approval 
 of the chairman of the Commission; 
 
Duties of Commission Defined. 7 
 
 (2) To make a careful study of the penal system of the state 
 with the view of recommending to the Legislature such changes 
 in the laws as the Commission should deem necessary to effect 
 the desired constructive reform. 
 
 In pursuance of the first of these aims, the Commission, after 
 a further investigation of the State Prison, on August 2, 1917, 
 held a joint conference with the Governor, the Board of Prison 
 Inspectors and the Principal Keeper, and submitted certain 
 specific recommendations for immediate action. The most 
 important of these were (1) that the physical and mental 
 examination of the inmates of the prison, authorized by the 
 last Legislature, be instituted without delay and the work 
 entrusted to Dr. Harry A. Cotton, Director of the State Hospital 
 for the Insane at Trenton, and (2) that the Principal Keeper of 
 the State Prison proceed at once to lay out and submit to the 
 Inspectors a plan for a classification of the inmates as a basis 
 for a new system of discipline, in which good conduct should' be 
 stimulated by the offer of rewards and privileges and misconduct 
 punished by the loss of those benefits. These recommendations 
 were unanimously adopted by the Inspectors and Principal 
 Keeper. In order to aid the prison authorities in effecting these 
 reforms and for the purpose of supervising the expenditure of 
 the moneys appropriated by the last Legislature for making 
 immediate improvements, the Commission deputed Dr. George 
 W. Kirchwey, to visit the prison and, by his counsel and 
 interest, to stimulate the progress of the reform movement 
 within the prison. In these efforts Dr. Kirchwey had the cordial 
 co-operation of the prison authorities and it is safe to say that 
 the gratifying results reported in the part of this report which 
 deals with the management of the State Prison are entirely due 
 to this co-operation. 
 
 In addition to these investigations and other proceedings of 
 a public character, the Commission has conducted a series of 
 careful investigations into the history, organization and manage- 
 ment of the penal and correctional system of the State, the 
 
8 Report of Prison Inquiry Commission. 
 
 results of which will appear in the following pages of this report 
 and in the various exhibits attached hereto. The most im- 
 portant of these investigations were the following: 
 
 1. A history of the penal, reformatory and correctional 
 institutions of the State from the earliest period to the 
 present time, prepared by Harry E. Barnes of Columbia 
 University. 
 
 2. A detailed study of the five State institutions, their loca- 
 tion, physical equipment and management — to-wit: the 
 State Prison, with the State Farm at Leesburg and the 
 four road camps ; the State Reformatory at Rahway, with 
 the farm at Annandale; the Reformatory for Women at 
 Clinton ; the State Home for Boys at Jamesburg, and 
 the State Home for Girls at Trenton. In the course of 
 this investigation members of the Commission have per- 
 sonally visited all the institutions, and have conferred with 
 the administrative heads, with leading members of the 
 boards of control and with many of the inmates and 
 subordinate officials. In this inquiry the Commission has 
 been assisted by Dr. George W. Kirchwey of New York, 
 and by other experienced and qualified persons. 
 
 3. A study of the laws governing the several institutions and 
 of the penal and correctional system of the State in gen- 
 eral, as well as of the laws prescribing commitments to 
 the several institutions. This has been the work mainly 
 of Nelson B. Gaskill, Esq., the Counsel of the Commission. 
 
 4. An inquiry into the pardon and parole system of the State, 
 comprehending the laws governing the same and the oper- 
 ation of the system in practice, by the Bureau of Municipal 
 Research of New York, aided by Judge Harry V. Osborne 
 of Newark. 
 
 5. A study of the Juvenile Court System of the State and of 
 the practice of the judges in making commitments of 
 juvenile offenders to the States Homes for Boys and Girls, 
 
Report of Results of Investigation. g 
 
 and, collaterally thereto, an investigation of the powers 
 and practice of the State Board of Children's Guardians. 
 
 6. An investigation, by Mr. Paul Kennaday, of the problem 
 of prison labor in New Jersey, with special reference 
 to the present state and future operation of the State 
 Use System and of the employment of inmates in farm 
 and road work. 
 
 7. An investigation of the jails, workhouses and county 
 penitentiaries of the State by Mr. Philip Klein, Assistant 
 Secretary and special investigator of the Prison Asso- 
 ciation of New York. 
 
 8. A study of systems of administration of correctional 
 institutions in the United States based on official re- 
 ports and investigations of experts, including, among 
 others : 
 
 (a) Report of Frederick H. Wines to the State Charities 
 Aid Association of New Jersey, 1903. 
 
 (b) Report of Professor James W. Garner, of the Uni- 
 versity of Illinois, to the Efficiency and Economy 
 Commission of the State of Illinois, 1914. 
 
 (c) Report of the Economy and Efficiency Commis- 
 sion of the State of Massachusetts, 1914. 
 
 (d) Report of H. C. Wright of the State Charities Aid 
 Association of New York, 1913. 
 
 (e) Report of Timothy Nicholson of the Indiana Board 
 of State Charities, 1916. 
 
 9. A study of tendencies (a), in penal legislation and (b) 
 in prison administration in the United States, made by 
 the New York Prison Association. 
 
 10. A description of the prison system in the Philippines by 
 Hon. Newton W. Gilbert, former Lieutenant Governor 
 of the Philippine Islands. 
 
io Report of Prison Inquiry Commission. 
 
 These formal investigations have at all stages of the 
 inquiry been supplemented by frequent conferences with the 
 Governor and with other State officials, particularly with 
 representatives of the Prison Labor Commission and of the 
 State Board of Children's Guardians, with the Commissioner 
 of Charities and Corrections, with the Medical Director of 
 the State Hospital for the Insane at Trenton, with officers 
 and other representatives of the State Conference of Chari- 
 ties and Corrections, and of the State Charities Aid and 
 Prison Reform Association, as well as with many other per- 
 sons in this and other states whose knowledge and counsel 
 were sought by the Commission. 
 
 The penal, correctional and reformatory institutions of the 
 State are only a part of the system of criminal administra- 
 tion — the policy and methods of the warfare against crime — 
 which the State has developed. They cannot therefore be 
 studied nor can remedies for their defects wisely be pro- 
 posed without some consideration of the purposes which 
 they are intended to serve. The policy of the State with 
 reference to criminal wrong-doing as expressed in its penal 
 legislation must be reviewed and the soundness of that 
 policy, tested by the principles of modern penological 
 science, must be considered. 
 
 For these reasons it has seemed desirable to set forth, 
 not only the facts and conclusions derived from an investi- 
 gation of the State institutions to which offenders are com- 
 mitted for punishment, but also to call attention to the 
 things for which punishment is imposed, the legal machinery 
 by which it is determined that offenders shall be punished, 
 the disposition made of them while awaiting punishment, 
 the practice governing the courts in fixing the mode, the 
 term and the place of punishment, and, finally, the care or 
 supervision which the State exercises over the offender 
 after his punishment has been completed. 
 
Report of Results of Investigation. n 
 
 Moreover, as a very large proportion of those convicted of 
 criminal wrong-doing are punished by being committed to 
 institutions which are solely under the jurisdiction of the 
 counties of the State, the Commission has felt that its investiga- 
 tion of penal conditions would not be complete without some 
 consideration of the jails, workhouses and county penitentiaries. 
 
 The present is only the latest of a long series of investiga- 
 tions to which the penal system of the State has been subjected 
 by legislative authority, A reading of the reports of previous 
 investigating commissions gives the impression that none of these 
 investigating bodies laid any stress on the fact that almost the 
 identical conditions investigated by them had been officially 
 studied and reported upon by a prior investigating body. It 
 is from a sense of the importance of past experience as an 
 indispensable aid to the interpretation of present conditions, 
 and also in obedience to the mandate of the Legislature to 
 report the results of its research, that the Commission has 
 thought it well to lay before the Governor and Legislature a 
 detailed history of the penal system of the State, covering not 
 only the actual experience of the Legislature, the courts and 
 the correctional administration in dealing with the problem 
 of crime, but also the efforts that have been made from time 
 to time, officially and otherwise, to reform the admitted defects 
 of the system. This history appears as volume two of this 
 report. 
 
 With the foregoing considerations in mind, the Commission 
 has divided its report into the following headings : 
 A — Policy of the State with Reference to Crime; 
 B — Jurisdiction and Procedure of the Criminal Courts; 
 C — Places of Detention not Directly Controlled by the State; 
 D — State Correctional Institutions; 
 
 E — The Labor Problem in the Correctional Institutions; 
 F — Pardon and Parole; 
 
 G — Administration of the Correctional System; 
 H — Conclusions and Recommendations. 
 
12 Report of Prison Inquiry Commission. 
 
 A. Policy of the State with Reference to Crime. 
 
 The earlier penal codes of New Jersey reflected the crude 
 and harsh conceptions of the time regarding crime and its 
 punishment. Except during the brief period of Quaker ascend- 
 ancy in West Jersey (1675-1703) and for a shorter time in 
 East Jersey, when a milder and more enlightened system was 
 put into effect, crimes were many and punishments drastic. 
 Twelve offenses, ranging from murder to witchcraft and con- 
 spiracy, were punishable by death. Branding on the hand or 
 forehead was the penalty for burglary or robbery, and corporal 
 punishment, banishment, the stocks and heavy fines were the 
 punishments prescribed for most other offenses. Malefactors 
 being thus summarily dealt with, there was no need of prisons 
 except for debtors and as places of detention for those awaiting 
 trial. It is to the Quaker influence that we owe the relatively 
 humane method of punishment of offenders by imprisonment at 
 hard labor. They took over the workhouse, employed in Europe 
 for the repression of beggars and vagrants, and made it the basis 
 of their penal system, substituting imprisonment for most of the 
 more cruel punishments provided by the Puritan codes of the 
 time. 
 
 By 1796, when the first criminal code of the State of New 
 Jersey was enacted, imprisonment at hard labor had become 
 the usual method of punishment, the terms prescribed rang- 
 ing from. 21 years for the crime of sodomy to six months 
 for "personating Jesus Christ", though the death penalty 
 was still exacted for treason, murder and petit treason and 
 for the second offense of manslaughter, sodomy, rape, arson, 
 burglary, robbery and forgery. It was this general substi- 
 tution of imprisonment for other and more summary 
 methods of punishment that called for the building of a 
 State Prison (i797"i799)> one of the first to be erected in 
 the United States. It required another half century to 
 eliminate from the penal code of the State the practice of 
 inflicting the death penalty on offenders guilty of a second 
 
Policy of the State with Reference to Crime. 13 
 
 offense of crimes ordinarily punishable by imprisonment. 
 By the revised Code of 1846, the death penalty for a second 
 conviction of any of the major crimes, which had been pre- 
 scribed in the Codes of 1796 and 1829, was commuted to a 
 sentence of imprisonment for not to exceed double the 
 period of imprisonment exacted for the first offense. When, 
 in 1916, the death penalty was left to be applied only to the 
 rare case of high treason and to those exceptional cases of 
 murder in the first degree where the trial jury deemed 
 the alternative penalty of life-imprisonment an inadequate 
 punishment for a peculiarly atrocious crime of this sort, the 
 process of substituting imprisonment for the severer penal- 
 ties of an earlier day was practically complete. 
 
 As thus outlined, the penal history of the State has fol- 
 lowed the traditional lines. It was only when the notion that 
 criminals were not all equally incorrigible, but that some of 
 them might be converted from the error of their ways, found 
 its way into the criminal law that a new era of penal reform 
 was inaugurated. It is to this new conception, which is still 
 imperfectly apprehended, that we owe such provisions as 
 the statutory distinction between first and second offenders 
 and the more modern provisions of the suspended sentence, 
 the placing of certain first offenders on probation, the in- 
 determinate sentence and the reduction of sentences by 
 good conduct in confinement. 
 
 As early as 1833 the Joint Committee of the Legislature 
 on the erection of a new State Prison insisted upon the 
 urgent necessity of providing a better system of prison dis- 
 cipline and expressed the conviction that the real object of 
 punishment was the prevention of crime and that this was 
 to be achieved by deterrence and reformation rather than 
 by cruel punishment. The plan recommended to secure 
 these ends was the adoption of the so-called "Pennsylvania 
 System" of solitary confinement, and the reformatory pur- 
 pose of the new system, which was put into effect by an 
 act passed February 13, 1833, was clearly set forth in a con- 
 
14 Report of Prison Inquiry Commission. 
 
 g'ratulatory paragraph of Governor Vroom's message of 
 October 29, 1834, as follows: 
 
 "The plan of solitary confinement, with labor, adopted 
 by the State, is gaining friends among those who have 
 devoted much attention to the subject. It is peculiarly 
 fitted for that profitable meditation which tends to reform 
 the unfortunate convict, reclaim him from vice and 
 finally restore him to the bosom of society. This is the 
 blessed end we have principally in view; and if it shall 
 be attained in any good degree, our best hopes will be 
 realized." 
 
 As the History appended to this Report, clearly shows, 
 the experiment on which such transcendent hopes were based 
 proved a tragic failure, but the new emphasis on reformation 
 of the criminal as an important object of the punishment 
 imposed on him did not grow less. In 1852 the recently organ- 
 ized New Jersey Prison Reform Association, of which Daniel 
 Haines was President and ex-Governor Vroom, Vice-President, 
 memorialized the Legislature on the great need for a House 
 of Refuge for juvenile offenders in order that these might be 
 removed from the unsuitable environment and improper asso- 
 ciations of the State Prison and be provided with special 
 opportunities for reformation. At the same time the Board of 
 Prison Inspectors then, as now, the governing body of the 
 institution, in its reports of 1852 and 1853, urged that minors 
 and first termers should no longer be committed to the State 
 Prison, which had no adequate provision for their reformation 
 and education, but should rather be confined in the county jails 
 and workhouses. These efforts bore no fruit until 1864, when 
 they enlisted the vigorous support of Governor Joel Parker, 
 who secured the passage of the act of April 6, 1865, to "Estab- 
 lish and Organize the State Reform School for Juvenile 
 Offenders," now known as the State Home for Boys at James- 
 burg. A similar institution for girls, was created under the 
 name of the "State Industrial School for Girls," now known as 
 the State Home for Girls, at Trenton, pursuant to an act of 
 the Legislature passed April 4, 1871. 
 
Policy of the State with Reference to Crime. 15 
 
 It required 24 years more of agitation to bring about the 
 further differentiation in the treatment of offenders which was 
 involved in the establishment of the State Reformatory at 
 Rahway, authorized by the act of March 28, 1895, and not 
 until 19 10 was this phase of development completed by the 
 institution of the Reformatory for Women at Clinton Farms. 
 
 That the newer conception of the reformatory purpose of 
 punishment, even as regards the average prison population, was 
 making its way in official circles is significantly shown by the 
 enactment by the Legislature of a series of remedial statutes, 
 beginning with the act of April 14, 1868, providing for the 
 commutation of sentence by good behavior and faithful dis- 
 charge of duty. This act made it possible for the convict to 
 reduce his period of imprisonment by five days in each month. 
 On May 13, 1889, a more sweeping measure of clemency was 
 enacted as a part of the first parole law of the State. This pro- 
 vided that all first termers, except those convicted of one of the 
 seven major crimes — murder, manslaughter, sodomy, rape, arson, 
 burglary and robbery — should become eligible to parole, on the 
 recommendation of the Prison authorities, after serving half the 
 terms for which they had been sentenced. The Attorney Gen- 
 eral, however, questioned the constitutionality of this act, and 
 accordingly, April 16, 1891, another act was passed, vesting in 
 the Court of Pardons — then, as now, composed of the Governor, 
 the Chancellor and the lay judges of the Court of Appeals, and 
 which had theretofore been confined to the exercise of the 
 pardoning power only — the authority to set any qualified con- 
 victs at large under such conditions as the Court might see fit 
 to impose. This act created a new parol authority in addition 
 to that claimed and exercised since 1898 by the Prison 
 authorities. 
 
 The parole power was enlarged by an act of April 12, 19 12, 
 which provided that any inmate of the Prison who had not 
 previously been convicted of felony should become eligible to 
 parole after serving two-thirds of the term for which he had 
 been sentenced. Prisoners held under a life sentence were given 
 
1 6 Report of Prison Inquiry Commission. 
 
 the benefit of the act by a clause making 25 years the computed 
 one-half of such a sentence. A later enactment, approved April 
 15, 19 14, extended this clemency to convicts who had served 
 one-third of the fixed sentence imposed and, in the case of per- 
 sons confined under a life-sentence, after serving 15 years. 
 
 The revision of the Penal Code of the State in 1898 pro- 
 vided for the reduction of all crimes, except treason, murder, 
 manslaughter and arson, to the two fundamental categories of 
 misdemeanors and high misdemeanors, and prescribed penalties 
 which, in many cases, were substantially less than those pre- 
 viously exacted. The limit prescribed for a misdemeanor was 
 a fine of $1,000., or three years' imprisonment, or both; for a 
 high misdemeanor, with a few exceptions, a fine of $2,000., or 
 seven years' imprisonment, or both. 
 
 The opposition excited by the traditional mode of inflicting 
 the death penalty by hanging, led in 1906 to the enactment of 
 a law substituting the method of electrocution, which had pre- 
 viously been adopted in New York and several other States on 
 the presumed ground that it was more humane and less 
 obnoxious to public sentiment. The same bill, enacted April 4, 
 1906, transferred the authority and duty of inflicting the death 
 penalty from the sheriffs of the several counties to the Principal 
 Keeper of the State Prison. 
 
 Probation and the suspended sentence made their first 
 appearance in New Jersey, April 2, 1906, when three acts 
 were passed authorizing courts and magistrates before 
 whom any person should be convicted of a criminal offense, 
 instead of imposing the penalty provided by law for such 
 crime, to suspend sentence on the person so convicted and 
 order him to be released on probation for such time and 
 under such conditions as the court or magistrate should 
 determine, and authorizing the judge of the Court of 
 Quarter Sessions in each county to appoint a probation 
 officer to exercise supervision over the convicts in such 
 county who should be so released. 
 
Policy of the State with Reference to Crime. 17 
 
 After many years of agitation for the indeterminate sen- 
 tence, which had long been urged by prison reformers in 
 this and other states as affording a means for detaining con- 
 victs in confinement until, and only until, such time as they 
 should have demonstrated their fitness to be returned to 
 society, the Legislature, on April 21, 191 1, enacted the form 
 of such law that has generally been adopted in this country, 
 providing for a maximum and minimum term to be imposed 
 on all persons sentenced ito confinement in the State Prison. 
 The act provided that the maximum should be the limit 
 of imprisonment provided by the act of 1898, previously 
 referred to, and the minimum not less than a year nor more 
 than one-half of the maximum term, the minimum of a life- 
 sentence being fixed at 25 years; and it was further pro- 
 vided that, if deemed worthy to be set at large, prisoners 
 who had served their minimum term should be released on 
 parole by the Board of Inspectors. A subsequent act, 
 approved April. 15, 1914, enlarged the range of judicial dis- 
 cretion by fixing the minimum in general at from one year 
 to two-thirds of the maximum term, but, in the case of per- 
 sons whose sentence of death had been commuted to life 
 imprisonment, reduced the minimum from 25 to 15 years. 
 While the halting and imperfect application of the inde- 
 terminate sentence, which this legislation embodies, has 
 proved disappointing to the ardent advocates of the prin- 
 ciple, it is fairly abreast of the legislation of other progressive 
 states as applied to convicts sentenced to an institution 
 which is primarily penal, rather than reformatory, in char- 
 acter. But here, as elsewhere, the principle has been more 
 liberally applied to persons committed to more purely 
 reformatory institutions. The law governing commitments 
 to the State Home for Boys at Jamesburg (March 22, 1900) 
 prescribes no term of imprisonment, providing, merely, that 
 the trustees of the institution may hold the boy committed 
 until he attains the age of 21 or may, in their discretion, at 
 any time discharge him as reformed or parole him. A 
 
1 8 Report of Prison Inquiry Commission. 
 
 similar rule governs commitments to the State Home for 
 Girls at Trenton (March 23, 1900). Commitments to the 
 State Reformatory at Rahway and to the State Reformatory 
 for Women at Clinton Farms are for an indeterminate 
 period extending to the maximum limit prescribed by law 
 for the crime of which the offender was convicted. The 
 governing boards of both institutions may in their discretion 
 parole an inmate at any time prior to the expiration of such 
 maximum period. 
 
 There is no surer index of the progress of a community 
 in civilization than the treatment which it accords to its 
 dependent and delinquent children. In her dealings with 
 the former class New Jersey holds an honorable place, due 
 mainly to the institution and management of her admirable 
 State Board of Children's Guardians, created by act of the 
 Legislature, March 24, 1899. But, notwithstanding recent 
 remedial legislation of a praiseworthy character, the delinquent 
 children of the State are still criminals, triable by criminal 
 process, and subject to punishment by imprisonment, with 
 adult criminals, in the ordinary penal institutions. It is true 
 that special institutions have been provided (the State Home 
 for Boys, at Jamesburg, and the State Home for Girls, at Tren- 
 ton) to which child offenders between the ages of 8 and 16, in 
 the case of boys, or of 9 and 18, in the case of girls, may be 
 committed, but they may, if guilty of crime, in the discretion of 
 the court, be sentenced to imprisonment in a jail, penitentiary 
 or the State Prison; and, if convicted of murder or man- 
 slaughter, the punishment of a child over the age of seven takes 
 the same course as that of an adult guilty of a similar offense. 
 
 As far back as 1845, a public-spirited woman, Dorothea L,. 
 Dix, stirred the public conscience by her appalling disclosures as 
 to the size and the deplorable state of the insane and idiotic 
 population of the State, and secured the passage of the act of 
 1848 providing for the establishment of the State Hospital for 
 the Insane, at Trenton, and for the transfer to that institution of 
 the insane inmates of the State Prison and of the county jails and 
 
Policy of the State with Reference to Crime. 19 
 
 workhouses. But here the movement halted and many years were 
 to elapse before the next inevitable step was taken. It was not 
 until March 29, 19 10, that the act of 1848 was made really effec- 
 tive by a law providing, by a somewhat cumbrous procedure, for 
 the continuous transfer of insane inmates to the State Asylum. 
 Similar provisions have been enacted for the transfer to the 
 Asylum of insane inmates of the State Reformatory at Rahway 
 and of the State Reformatory for Women at Clinton Farms. 
 A sweeping measure of April 20, 1914, providing for the transfer 
 of epileptics from various institutions to the State Village for 
 Epileptics, and of the insane to a county asylum or to either of 
 the State Hospitals for the Insane, was drawn so as to include 
 the inmates of the State Home for Boys and the State Home for 
 Girls, and the latter were also included in a provision for the 
 transfer of feeble-minded inmates to the Home for Feeble- 
 minded Women at Vineland, but none of the provisions of this 
 law were made applicable to the State Prison or to either of the 
 Reformatories. Accordingly, as the law now stands, insane 
 inmates of any of the State penal and correctional institutions 
 may, though with considerable difficulty, be transferred to the 
 State Hospital for the Insane or, in some cases, to a county 
 asylum ; epileptics in the Jamesburg and Trenton Homes may be 
 transferred to the State Village for Epileptics, and feeble- 
 minded girls in the Trenton Home may be put under suitable 
 care at Vineland; but feeble-minded boys must still add to the 
 weakness and degeneracy of the Home at Jamesburg, and 
 epileptics and feeble-minded alike must seek, however vainly, to 
 adjust themselves to the exacting conditions of the discipline of 
 the State Prison and the two Reformatories. 
 
 This summary of the penal legislation of the State would not 
 be complete without some reference to the present state of our 
 knowledge regarding crime, its causation and treatment. Recent 
 studies in the personal and social history and the mental and 
 physical condition of the inmates of prisons and reformatories 
 have furnished a new basis for the understanding and 
 classification of the criminal elements of our population. As 
 
20 Report of Prison Inquiry Commission. 
 
 an illustration of new facts so disclosed, the conclusions 
 announced by Dr. Bernard Glueck, the eminent psychiatrist of 
 Sing Sing Prison in the State of New York, as the result of 
 his study of the population of that institution, may be cited; 
 namely, that nearly 6'o per cent, of the men committed to the 
 prison are clearly abnormal — 29.1 per cent, being imbecile, 18.9 
 per cent, psychopathic and 12 per cent, insane. It can hardly 
 be denied — as is asserted by the experts to whom we owe these 
 conclusions — that such a defective element is harmed rather 
 than benefited by much of the discipline that the ordinary prison 
 or reformatory can supply, and that its members require a spe- 
 cialized treatment adapted to their several needs, such as can 
 be furnished only in hospitals for the insane and homes for the 
 epileptic and feeble-minded. New Jersey is well equipped with 
 such institutions. What remains is to make them available for 
 that part of our defective population that is classed as criminal 
 or delinquent. 
 
 B. Jurisdiction and Procedure of the Criminal Courts. 
 
 The ordinary criminal court system of New Jersey, compre- 
 hending the Supreme Court, the Court of Oyer and Terminer, 
 the Court of Quarter Sessions, the Court of Special Sessions and 
 the Courts for the trial of Juvenile Offenders, can best be 
 understood when it is realized that most of these courts are 
 merely different functions of two independent but interlocking 
 tribunals and that they are all administered by judges drawn 
 from these two groups, acting separately or in combination. 
 The two tribunals which exercise these varied functions are the 
 Supreme Court of Judicature, commonly known simply as the 
 Supreme Court, which consists of a chief justice and eight asso- 
 ciate justices, and which exercises jurisdiction throughout the 
 State, and the Court of Common Pleas, consisting of a judge in 
 and for each of the counties of the State. Both these courts 
 have a wide, general jurisdiction, civil as well as criminal, but 
 it is only in the exercise of the latter that they assume the 
 
Jurisdiction and Proceedings of the Criminal Courts. 21 
 
 various forms which find expression in the criminal courts 
 above enumerated. 
 
 Sitting alone, the Supreme Court exercises only an appellate 
 jurisdiction in criminal cases, except in the rare case of treason 
 against the State of New Jersey, in which it exercises original 
 jurisdiction. But it is the justices of the Supreme Court, alone or 
 in conjunction with the judges of the Court of Common Pleas, or 
 the Common Pleas judges alone, who constitute and hold all the 
 courts having a general criminal jurisdiction. Thus the Court 
 of Oyer and Terminer is regularly held by a justice of the 
 Supreme Court, with or without the assistance, as may be more 
 convenient, of the judge of the Court of Common Pleas of the 
 country in which there is criminal business to be done, though, in 
 counties having 300,000 inhabitants, the judge of the Court of 
 Common Pleas may, in the absence of the justice of the Supreme 
 Court, hold such Court of Oyer and Terminer alone. The Court 
 of Quarter Sessions is held by a Common Pleas judge sitting 
 alone, but with a jury to try the facts. The Court of Special 
 Sessions is similarly held by a Common Pleas judge, sitting 
 without a jury. The Juvenile Courts are, except in counties of 
 the first class (Hudson and Essex), also held by the resident 
 judges of the Court of Common Pleas. 
 
 The jurisdiction of all these courts is the same, i. e., extends 
 to the same class of cases, except that only the Supreme Court 
 and the Court of Oyer and Terminer can try cases of treason 
 or murder, and that cases of manslaughter cannot be tried 
 in the Juvenile Courts. In practice, to avoid duplication 
 of jurisdiction, the Supreme Court tries no criminal cases 
 but treason and the Court of Oyer and Terminer none except- 
 ing murder, leaving all other indictable crimes to be dis- 
 posed of by the Courts of Sessions, with or without a jury, 
 and by the Juvenile Courts. In Hudson and Essex counties 
 special Juvenile Courts, held by specially appointed judges, have 
 been instituted. The jurisdiction of all Juvenile Courts, or- 
 dinary and special, is peculiar in this respect that, while nearly 
 co-extensive with that of the Courts of Sessions, it reaches down 
 
22 Report of Prison Inquiry Commission. 
 
 into the jurisdiction of the inferior courts, like those held by 
 justices of the peace, police magistrates and recorders of certain 
 cities, which deal with petty offenses, such as disorderly conduct, 
 vagrancy and the like. 
 
 All of these courts, with the exception of the Juvenile Courts, 
 go back to the beginnings of New Jersey history, the Supreme 
 Court having been instituted by an ordinance of Lord Corn- 
 bury, the first governor of the United Province of New Jersey, 
 in 1704, and the Court of Oyer and Terminer by an act of the 
 Council of West Jersey in 1693; while the Court of Quarter 
 Sessions (of which, as has been noted, the Court of Special 
 Sessions is really a part, rather than a distinct court) was 
 recognized as already in existence in the ordinance of Lord 
 Cornbury above referred to. 
 
 Moreover, the procedure of all these courts is substantially 
 identical, excepting that, where a juvenile offender, i. e., one 
 from 8 to 16 years of age, is charged with an offense less than 
 murder or manslaughter, a somewhat simplified procedure has 
 been adopted. In all of them, with the exception just noted, the 
 formal charge is submitted in the form of an indictment or pre- 
 sentment by the grand jury, following a preliminary hearing by 
 a police or other magistrate, and the trial of the charge is con- 
 ducted in open court, with the prosecuting attorney of the county 
 representing the State and a paid or assigned counsel representing 
 the accused. The verdict of guilty or not guilty is found by the 
 jury, unless the accused has elected to be tried without a jury 
 (in Special Sessions or, being a juvenile delinquent, in the 
 Juvenile Court), in which case the judge decides the question of 
 his guilt or innocence. In case a boy or girl over seven years 
 of age is accused of murder or manslaughter, the case takes the 
 usual course (indictment by the grand jury, trial in open court 
 by jury, etc.) just as though he or she had been an adult accused 
 of the same crime. 
 
 The range of judicial discretion in determining punish- 
 ments has been greatly enlarged in recent years. The judge may 
 now, after a verdict of guilty has been rendered, make any one 
 
Jurisdiction and Proceedings of the Criminal Courts. 23 
 
 of the following dispositions of the case: he may, in excep- 
 tional cases, suspend sentence and set the offender free to 
 resume his normal life, without let or hindrance, subject, 
 however, to be recalled at any time and given such sentence 
 as the judge may see fit to impose within the statutory 
 limits; or he may release the offender on probation, under 
 the supervision of the probation officer of the county; or 
 he may, within certain defined limits, sentence him to an inde- 
 terminate term of imprisonment in the State Prison, or, if he is 
 a first offender under 30 years of age, in the Reformatory, or, 
 if he is a juvenile delinquent, in the State Home. If committed 
 to any of these institutions, the actual term of the offender's 
 detention will be fixed by the board of managers of the institu- 
 tion or by the Court of Pardons, unless the judge who sentenced 
 him should, before he is otherwise released, exercise the 
 power to recall him and, by imposing a new and shorter 
 sentence, effect his release. 
 
 But the judicial discretion is not exhausted by the three 
 alternatives above set forth. Instead of sending the offender 
 to one of the State institutions, the judge may, in his dis- 
 cretion, if the proposed sentence does not exceed six months, 
 commit him to the county jail, or, if the sentence does not 
 exceed 18 months, to the county penitentiary or work- 
 house, where such institutions have been established; and 
 this is as true of youthful offenders who are eligible for the 
 Reformatory and delinquent children eligible for the State 
 Home as of older offenders whose only alternative is the 
 State Prison. Likewise the judge may, if he sees fit, com- 
 mit to the State Prison youthful offenders and delinquent 
 children convicted of prison offenses instead of to the insti- 
 tutions specially set apart for them. 
 
 Thus far the consideration of the criminal jurisdiction 
 has dealt only with what are sometimes called the superior 
 criminal courts. But there are, in addition to these, in all coun- 
 ties inferior courts — courts of justices of the peace, and, in many 
 municipalities, recorder's and police courts — which, besides their 
 
24 Report of Prison Inquiry Commission. 
 
 function of holding a preliminary examination of all charges of 
 crime, have also the power to try petty offenders and to commit 
 them, adults and children alike, for short terms of imprisonment 
 to the county jails and work-houses. 
 
 As has been stated above, the courts of Quarter Sessions and 
 Special Sessions may, after conviction, release the offender on 
 probation instead of imposing the penalty of imprisonment. 
 Release on probation depends entirely on the impression made 
 upon the mind of the judge, by the reputation of the offender 
 and his past record, and lies wholly within the discretion of the 
 judge. At the time of release on probation the court fixes the 
 probationary term, which may be just as long or as short as the 
 court sees fit to make it. The number of probation officers in 
 the several counties varies. In any county of the first class 
 there may be one probation officer and as many assistant 
 probation officers as may be needed, not exceeding five, in addi- 
 tion to those already authorized by law, two or more of whom 
 may be women. In any county of the second class there may 
 be one probation officer and not more than three assistants, one 
 of whom may be a woman; while in other counties there is 
 but one probation officer. The rules and regulations governing 
 probation are established by the Court of Quarter Sessions, 
 and in general they provide for periodic reports in person, some- 
 times by letter, and make certain requirements as to employ- 
 ment and for the payment of fines or costs. The probation 
 officers are supposed to supervise and observe the conduct of 
 the probationer and assist him in his reformation. For viola- 
 tion of the terms of probation or return to criminal practices, 
 the probationer may be rearrested, the probation revoked and 
 he be sentenced in the same manner and to the same extent as 
 though no order of probation had been made. In the case 
 of juvenile delinquents the court may, in its discretion, place 
 the youthful offender on probation in the custody of his parents 
 or guardian, and, where the home is a good one and the offender 
 is still controllable/ it is the practice of judges of the juvenile 
 courts to make this disposition. 
 
Places of Detention not Directly Controlled by the State. 25 
 
 The organization and procedure of the criminal courts of 
 New Jersey, while not entirely free from the inherited defects 
 characteristic of American criminal procedure in general, enjoy 
 an exceptional reputation as compared with those of her sister 
 commonwealths. "Jersey justice" has become a synonym for 
 a clean, impartial and speedy administration of criminal justice. 
 But with the advance of science and of humanitarian sentiment, 
 new conceptions of delinquency and of criminal responsibility 
 arise and these, from time to time, call for corresponding changes 
 in judicial organization and procedure. 
 
 The reformatory element in punishment, recognized by the 
 Legislature in the case of commitments of delinquents for 
 indefinite terms to the reformatories for men and women and 
 the State Homes for boys and girls — limited, in the case of the 
 reformatories, only by the maximum period of imprisonment 
 prescribed by law, and, in the case of the State Homes, to the 
 attainment by the inmates of the age of 21 years — still finds 
 inadequate expression in the fixed term imposed on persons 
 committed to the county penitentiaries and in the maximum and 
 minimum form of sentence under which convicts are committed 
 to the State Prison. It is the opinion of the Commission that 
 the form of indeterminate sentence employed in commitments to 
 the reformatories might well be extended to all adults convicted 
 of crime in the State of New Jersey, with the exception of those 
 convicted of murder. But the Commission does not believe that 
 a change of this importance, affecting the sentencing power of 
 the courts, should be proposed without full consultation with the 
 judges experienced in the administration of the criminal law, 
 and it refrains, therefore, from making any recommendation on 
 the subject. 
 
 C. Places op Detention Not Directly Controlled by 
 
 the State. 
 
 The county and municipal jails are an integral part of the 
 correctional system of the State. Not only are all persons, with 
 
26 Report of Prison Inquiry Commission. 
 
 insignificant exceptions, who ultimately find their way to the 
 State institutions, previously lodged in these local places of 
 detention, but more than one-half of the total number of persons 
 committed to imprisonment for crime in the State serve their 
 terms in the jails and other county institutions. 
 
 Our county jails are the oldest of our penal institutions. 
 Though instituted primarily for the purpose of keeping in 
 custody vagrants, debtors, and persons awaiting trial on execu- 
 tion, they were, almost from the first, also employed for the 
 punishment of "fellons" and other malefactors. 
 
 The first workhouse was provided for by an act of 1 748 which 
 authorized the county of Middlesex to erect such an institution, 
 but its purpose was rather to confine "disorderly or insubor- 
 dinate slaves or servants upon application of their masters," 
 than to inflict punishment upon criminals. The penal function 
 of the workhouse was not clearly established till Hudson 
 County erected its famous workhouse or penitentiary in 1869, 
 followed by Essex County in 1873, and Mercer County in 1892. 
 A municipal workhouse was provided by the city of Camden 
 in 1913-14, and in 1916 bonds were issued by Middlesex County 
 for the construction of a county workhouse. At the present 
 time the three workhouses in actual operation contain a total 
 delinquent population of nearly 700, about 100 of whom are 
 women and girls, and over half of whom are persons eligible 
 for commitment to the State Prison. The workhouses thus 
 established and authorized came into existence partly to relieve 
 the overcrowding of the jails and partly to satisfy the terms of 
 sentences to imprisonment at hard labor which the county jails 
 notoriously failed to supply. 
 
 But the jails were, and still continue to be, notorious for 
 many other defects than the failure to furnish adequate facili- 
 ties for the employment of their inmates. The demoralizing 
 idleness, injurious alike to health and character, the indiscrim- 
 inate intermingling of all classes of prisoners, the general 
 filthiness, the total lack of instruction in educational and re- 
 ligious matters, have been repeatedly called to the attention of the 
 
Places of Detention not Directly Controlled by the State 27 
 
 public and the Legislature from the report of the Prison Dis- 
 cipline Society in 1831 to the present time. That the county 
 jails throughout the United States are the worst part of our 
 penal system is asserted by all intelligent students. The record 
 of our own jails, as disclosed in the History appended to this 
 report, and in the statistics of the County Jails and Work- 
 houses of New Jersey prepared for the Commission (attached 
 hereto as Exhibit C), shows that New Jersey can claim no supe- 
 riority over her sister states in this respect. In many counties 
 the same conditions of idleness and overcrowding, of improper 
 living conditions, of lack of proper medical care or of intellect- 
 ual, moral, or religious instruction, of the indiscriminate inter- 
 mingling of all classes of prisoners — the young and the old, the 
 sane and the insane, the sound and the diseased, the decent and 
 the depraved, hardened criminals and those innocent of wrong- 
 doing — still persist. In October, 19 17, the jail population num- 
 bered 1,368, of whom 139 were women, and 35 children under six- 
 teen years of age. Of this number 555 were serving time for crim- 
 inal offenses, ranging from disorderly conduct to grand larceny 
 and other serious crimes, 682 were held as "court prisoners", to 
 await the determination of their cases, and 39 as witnesses. 
 During the year 19 16, several counties not reporting, the records 
 show that 15,546 persons were committed to the jails, of 
 whom 1,334 were women and 798 children under 16 years of 
 age. Of this number 7,711 were committed for sentence, 6,342 
 were "court prisoners" and 286 held as witnesses. At the 
 same time the three workhouses had 2,324 inmates, 290 of whom 
 were women. The law requires that debtors and criminals 
 shall not be confined together and that children under eighteen 
 years of age and persons detained as witnesses shall be kept 
 apart and separate from other prisoners. However, few of the 
 jails have proper facilities for the segregation of inmates, except 
 the elementary one of providing separate quarters for men and 
 women, and these humane and decent provisions are frequently 
 disregarded. 
 
28 Report of Prison Inquiry Commission. 
 
 It should be unnecessary to repeat the urgent recommenda- 
 tions of the official investigating commissions of 1869 and 1878, 
 reinforced year after year by the State Charities Aid Associa- 
 tion and by numberless private citizens in this and other states 
 (1) that all these county and municipal institutions should be 
 put under some form of effective state supervision; (2) that the 
 jails be entirely transformed into places of detention for the 
 accused and for witnesses, and no longer be used as penal insti- 
 tutions; and (3) that under no circumstances and on no pretext 
 should children under sixteen years of age ever be committed 
 to county or municipal institutions other than detention homes 
 especially provided for their temporary custody. 
 
 D. State Correctional Institutions. 
 
 The penal, reformatory and correctional institutions of the 
 State comprise the following: 
 
 (1) The State Prison, at Trenton; 
 
 (2) The State Home for Boys, at Jamesburg; 
 
 (3) The State Home for Girls, at Trenton; 
 
 (4 The State Reformatory (for men), at Rah way, and 
 (5) The State Reformatory for Women at Clinton. 
 
 As has been pointed out elsewhere in this Report, the State 
 Prison was erected in 1797-99, as a result of the general sub- 
 stitution of imprisonment for the more summary methods of 
 dealing with the criminal element in the community and the 
 demonstrated inadequacy of the jail and workhouse system, 
 which had developed through the Colonial period, to deal with 
 the problem. The four other institutions, less "penal" and more 
 "reformatory" in purpose and character, came into being much 
 later, under the influence, in large part, of growing humanitarian 
 sentiment and in part of the dawning conception of the reform- 
 ability of certain classes of youthful wrong-doers. 
 
 Considered as a whole, the penal and reformatory system 
 thus instituted, culminating in the establishment of the Clinton 
 
State Correctional Institutions. 29 
 
 Farms Reformatory, is fairly representative of current peno- 
 logical conceptions and will bear favorable comparison with 
 corresponding systems in other progressive states. But that it 
 is still inadequate as a solution of the problem of dealing 
 effectively with the wrong-doer is evident from the continued 
 importance of the county jail as a penal institution and from 
 the fact that it is necessary for the courts to make commitments 
 to private religious and charitable institutions which have been 
 established to take care of the delinquent wards of the state for 
 whom our correctional system has failed to make proper 
 provision. 
 
 The administrative organization of the five State institu- 
 tions under consideration has been of a uniform type, adopted 
 for the State Prison at its creation and extended to the others 
 as they were successively established, to-wit : a separate board of 
 control, which determines the policy and directs the manage- 
 ment of the institution. In all but the State Prison this board 
 chooses the executive officer, fixes his salary, appoints or con- 
 firms the appointment of all subordinate officials, and removes 
 the superintendent at will or "for cause". Such was also the 
 original basis of the administration of the State Prison, but it was 
 repeatedly changed, either from political motives or in the hope of 
 improving the management, until the revision of the constitution 
 in 1875, when it was provided that the keeper should be ap- 
 pointed by the Governor subject to confirmation by the Senate. 
 The Board of Control of the State Prison, known from the 
 first as the Board of Inspectors, has also suffered many fluctua- 
 tions of authority and in the mode of appointment, but it is 
 now, as at first, and like the boards controlling the other institu- 
 tions, appointed by the Governor with the advice and consent 
 of the Senate. 
 
30 Report of Prison Inquiry Commission. 
 
 i. The State Prison. 
 (a) System of Administration. 
 
 The administrative system of the State Prison, after long 
 years of divided authority, has by recent legislation been unified 
 and strengthened. The division of authority set in, in 1829, 
 when the inspectors, who had, since the foundation of the prison 
 in 1797, had the power of appointment and removal of the prin- 
 cipal keeper, were deprived of that power by an act of the 
 Legislature, vesting the appointment in the joint session of 
 the Legislature. In 1844 the keeper and inspectors alike became 
 constitutional officers, the new constitution of that year pro- 
 viding for their election by the Legislature in joint session. The 
 administrative difficulties were enhanced by the creation in 1869 
 of an independent supervisor of the State Prison, to be 
 appointed by a board consisting of the Governor, the Chan- 
 cellor, the Chief Justice and the Attorney General. The super- 
 visor thereafter for 45 years controlled the prison industries. 
 
 In 1875 the inspectors dropped out of the constitution but 
 the keeper was retained, with the provision that he was 
 thereafter to be appointed by the Governor, with the con- 
 sent of the Senate. By the same clause his term of office 
 was enlarged from one to five years. In the meantime the 
 powers of the inspectors, which had been complete in the 
 early history of the Prison, had waned, but were always 
 sufficient to embarrass the administration of the keeper, while 
 the executive authority was divided between the keeper and 
 the supervisor of industries. 
 
 In 1 9 14, for the first time in nearly a century, authority and 
 responsibility were combined, in a sweeping act which restored to 
 the inspectors the paramount authority which had been theirs in 
 the beginning and subjected the entire administration to their 
 control. The office of supervisor was abolished and a fiscal agent 
 provided for in his stead, who was also to act under the authority 
 of the inspectors. The inspectors were to be appointed by 
 
State Correctional Institutions. 31 
 
 the Governor for terms of six years and to receive a salary 
 of $500. each, and their expenses. In order to guard against 
 the intrusion of politics into the management of the Prison, 
 the device was adopted of dividing the inspectorships equally 
 between the two major political parties — an arrangement 
 which dates back to the stage of political development when 
 non-partisanship was understood to mean a fair division of 
 the spoils. This device was only one of a series of attempts made 
 by the Legislature to eliminate politics from the management of 
 the correctional institutions of the State. It was the fluctuations 
 of this policy that determined the shifting of the power of 
 appointment of the Keeper from the inspectors to the Legisla- 
 ture and then to the Governor ; of the supervisor from the Legis- 
 lature to a non-partisan board consisting of the Governor, the 
 Chancellor, the Chief Justice and the Attorney General, and then 
 finally to the Governor alone, and of the inspectors from the 
 Legislature to the Governor. 
 
 All the way along — not only in the reports of legislative com- 
 mittees and of investigating commissions like the present one but 
 also in the messages of Governors to the Legislature — political 
 influence was denounced as "the most dangerous and powerful 
 enemy of efficient prison administration." The words quoted are 
 from the message of Governor William A. Newell in i860, and 
 his condemnation of the prevailing system was vigorously 
 renewed by the inspectors of the prison in their report of 
 1865, by Governor Marcus M. Ward in his messages of 1868 
 and 1869, by the joint committee of the Legislature on the 
 management of the State Prison in the same years, and by 
 the Commission on Prison Discipline in 1869. The agita- 
 tion for the elimination of politics from the management of 
 the Prison has continued to the present day — how fruitlessly 
 is shown by the fact, of which evidence is given in the 
 history appended to this report, that every keeper of the 
 Prison from 1873 to the present time, and every supervisor 
 since 1885, with one doubtful exception, has been of the same 
 political party as the appointing power and generally active in 
 
2,2 Report of Prison Inquiry Commission. 
 
 party politics, immediately prior to his appointment. The fact 
 that a few of the incumbents of these offices have proved to be 
 competent officials can hardly be regarded as a justification of 
 the system, in view of the almost complete failure of the prison, 
 either from the financial, the disciplinary or the reformatory 
 points of view, to serve the ends for which it was established and 
 maintained. 
 
 (6) Condition of the Prison. 
 
 The State Prison still occupies the site selected for it in 1797, 
 when Jonathan Doan was commissioned by the Legislature to 
 purchase from Peter Hunt a tract of six and one-half acres of 
 land in the town of Lamberton as a site for a prison. Since that 
 date Lamberton has been absorbed by the city of Trenton and 
 the State Prison is bounded by four city streets and surrounded 
 by an urban population. The original prison structure still 
 stands and serves the State as an arsenal, the present prison, 
 authorized in 1833 and opened in 1836, having grown up in a 
 somewhat disjointed fashion beside it. The plan originally 
 adopted for the present prison was that of a central building with 
 radiating wings, to be added as they should be needed, and with 
 individual cells, in conformity with the requirements of the so- 
 called "Pennsylvania System" of solitary confinement which had 
 been adopted by the Legislature in place of the congregate system 
 of the old prison. New wings were, in fact, added from time to 
 time to the original structure, but these were always too late 
 and otherwise inadequate to keep pace with the growing popula- 
 tion. The result has been a chronic condition of overcrowding, 
 with the unavoidable results of the demoralization of discipline, 
 character and industry, which continued from 1845, on ly nine 
 years after the erection of the prison, when it had become 
 necessary to confine two or three inmates in narrow cells in- 
 tended for solitary confinement, until 1913, when the drafting 
 of inmates for road and farm work relieved the congestion 
 within the walls. Based, as it was, on the principle of solitary 
 
State Correctional Institutions. 33 
 
 confinement, the original plan of the prison made no provision 
 for congregate life, and this plan has been adhered to notwith- 
 standing the abandonment of the solitary system by the erection 
 of workshops in i860. Consequently there has been no provi- 
 sion of space for outdoor exercise and recreation, no common 
 mess-hall and no adequate chapel or assembly room. 
 
 In most other respects the prison plant is antiquated and in- 
 adequate and, on its present site, incapable of being materially 
 improved. Most of the cells — all that have been added since the 
 building of the original structure — are of the inside cell-block 
 type, which means that no sunlight can enter them. They 
 are much too small for decent living, as well as dark and 
 insanitary. The recent provision of water-closets in the con- 
 fined space of these cells, while a vast improvement over 
 the "bucket-system" which had prevailed from the origin of 
 the prison, can hardly be regarded as either a decent or 
 a sanitary solution of the problem. The cell-blocks and shops 
 that have been erected since i860 have so crowded the prison 
 yard that there is no room for further expansion nor for an 
 adequate provision of out-door work and recreation. In short, 
 the prison buildings and site, alike in their size and equipment, 
 are wholly unsuited to the present needs either of the inmates or 
 of the officers and are entirely inadequate for purposes of classi- 
 fication, segregation and education, such as any modern prison 
 should make provision for. 
 
 The modern tendency in all progressive communities is to 
 scrap the old prisons which date back to the early part of the 
 last century and erect a new type of prison on a wide acreage of 
 ground, with decent conditions of living and abundant oppor- 
 tunities for work and necessary recreation in the open air. The 
 neighboring states of New York, Pennsylvania and Connecticut 
 are among those that have recently committed themselves with- 
 out reserve to this policy. 
 
34 Report of Prison Inquiry Commission. 
 
 (c) Management of the Prison. 
 
 The methods of prison management are, like the old 
 building, for the most part an evil inheritance from the 
 past. That the present Prison administration is making a 
 determined effort to cope with the evils which the old system has 
 devolved upon them does not affect the indictment of the system 
 as a whole. Its characteristics have always been the same — in 
 the State Prison at Trenton, as well as elsewhere: — a general 
 attitude of severity toward all the inmates, without distinction as 
 to ability, character, previous record or physical or mental condi- 
 tion — all were convicts alike; a general indifference as to the 
 food supplied or the conditions under which it was served and 
 consumed, or as to the sanitary or other conditions under which 
 the business of living must be carried on. The only method of 
 dealing with insubordination or a breach of the rules, however 
 arbitrary and technical these might be, was violent repression, 
 with the dungeon or dark-cell at the end of the affray, with 
 occasional trials of keepers, who utilized, and generally with 
 success, the plea of self-defense. 
 
 The disastrous effects of this system and its ineffectiveness 
 to produce even the most elementary order and decency, with 
 its inhuman cruelties and the consequent brutalizing of inmates 
 and keepers alike, were repeatedly called to the attention of the 
 Legislature by committees of that body and by investigating 
 commissions, especially in the reports of the Committee of the 
 General Assembly in 1830 and of the investigating commission of 
 1869. The Commission of 1869 reported that, in their opinion, 
 many of the deaths in the State Prison, which had been attributed 
 to natural causes, had in reality resulted from the cruel punish- 
 ments inflicted. It is an interesting commentary on this type of 
 prison discipline, that both these bodies expressed the opinion 
 that it was the general system of prison management, rather than 
 individual depravity, either on the part of the officials or the con- 
 victs, which caused this resort to the cruel methods of punishment 
 which they described. 
 
State Correctional Institutions. 35 
 
 It is doubtless true that such instances of deliberately brutal 
 treatment were much more frequent a generation or two ago 
 than they are now; but the spirit of the older discipline, which 
 makes such occurrences possible and which excuses them as 
 necessary incidents of prison conditions, has upon the whole 
 remained unchanged. 
 
 It is gratifying to be able to report that much of the im- 
 provement in prison conditions during recent years has been 
 due to the humane and enlightened initiative of the prison 
 officials. Thus Keeper John H. Patterson, whose service 
 extended from 1886 to 1896, abolished the humiliating cus- 
 tom of sending out discharged convicts in coarse suits of 
 uniform design, which made the ex-convict easily recog- 
 nizable as such, while Keeper George O. Osborne (1902- 
 1912) did away with the prison stripes, the short hair-cut 
 and the lock-step. But it was reserved for the present 
 administration of the prison to take the first decisive steps 
 toward the abandonment of the system of harsh and repres- 
 sive discipline whose shocking results have been described 
 above. Since the submission by this Commission of its pre- 
 liminary report, Principal Keeper James H. Mulheron has 
 initiated a new classification of the inmates of the Prison, based 
 not on the doubtful test of past performance of the individual 
 inmates, but on the response of the inmate body as a whole to> 
 a new attitude of fair dealing, mutual understanding and cordial! 
 co-operation on the part of the officials. This involves the; 
 recognition of certain fundamental rights, as well as the; 
 grant of privileges to the inmates, the privileges, which in- 
 volve as large a measure of freedom as is feasible in the 
 present prison, to be forfeited for a longer or shorter time 
 by those who prove themselves unworthy of them, but to 
 be enlarged for those who show zeal and capacity in pro- 
 moting the general good. 
 
 As a step toward the realization of this aim, the inmates, 
 on the suggestion of the keeper, elected a standing com- 
 
36 Report of Prison Inquiry Commission. 
 
 mittee of ten of their number to present the grievances 
 and views of the inmate body to the administration and, on 
 the other hand, to act as a mediating body between the 
 prison administration and the inmates. As a result of this 
 co-operation the inmates have, since November 3, 1917, 
 enjoyed the freedom of the prison yard, practically with- 
 out official supervision, on Saturdays after working hours 
 and all day on Sundays and holidays, and entertainments 
 have been provided by the inmates for the prison officials as 
 well as for their fellows. The conduct and bearing of the 
 inmates under these novel and untried conditions has been 
 such as to win the admiration and confidence of the most 
 conservative members of the official body. It is only proper 
 to add that, in instituting this new and better order, the 
 Principal Keeper has had the cordial and intelligent support 
 of the Board of Inspectors and of the leading members of 
 his official staff. 
 
 Other improvements effected during the present administra- 
 tion of the Prison have, in general, followed the lines of the 
 Commission's recommendations contained in its preliminary 
 report, with certain other changes suggested by further study of 
 the situation. These may be briefly summarized : 
 
 1. Food conditions have not yet been substantially improved. 
 Further study of the problem has convinced the Commis- 
 sion that without the construction of the contemplated 
 dining hall, the appropriation for which did not become 
 available until November 1, the dietary could be greatly 
 improved and a reasonably satisfactory and nutritious diet 
 supplied to the inmates in their cells by the provision of a 
 competent institutional cook and of slight additions to the 
 kitchen equipment, and by improved methods of serving 
 the food. These changes are now under way and the 
 Principal Keeper has secured the services of a trained 
 dietician and food expert to direct the necessary improve- 
 ments. In view of these considerations and of its convic- 
 
State Correctional Institutions. 37 
 
 tion that the Prison should at the earliest possible time be 
 removed to a more suitable site, the Commission believes 
 that it would be unwise to expend the sum of $30,000, 
 appropriated by the last Legislature for the construc- 
 tion of a dining hall and assembly room in wing 3 of the 
 Prison. 
 
 2. The vacant ground adjoining the Principal Keeper's house 
 has been converted into a field for physical exercise in the 
 open air. The substitution of a substantial wire fence for 
 the contemplated concrete wall has reduced the estimated 
 expense of this improvement from $5,000 to $3,929.38, 
 leaving the sum of $1,070.62 to be returned to the State 
 treasury. 
 
 3. The physical and mental examination of the inmates of the 
 Prison authorized by the last Legislature was entrusted to 
 Dr. Henry A. Cotton of the State Hospital for the Insane 
 at Trenton. The work was inaugurated on August 3, 191 7, 
 and up to the close of the fiscal year of 1917, 172 inmates 
 were examined, of whom 9 were found to be insane and 
 were transferred to the State Hospital for the Insane at 
 Trenton. Owing to the fact that Dr. Cotton was called 
 into the national service soon after the work was started, 
 this investigation has not made the anticipated progress. As 
 a consequence of this, of the $5,000. appropriated by the last 
 Legislature for the purpose of such examination, only 
 $509.64 has been expended, leaving the sum of $4,490.36 to 
 be returned to the State treasury. A suitable sum should 
 be included in the next annual appropriation bill to carry on 
 this work. 
 
 4. The regulations of the Prison with reference to quarantin- 
 ing prisoners have been altered so as to provide for an 
 hour's exercise in the open air for all quarantined inmates. 
 
 5. The lack of school rooms (only the chapel being available 
 for the purpose) has delayed the institution of an ade- 
 
38 Report of Prison Inquiry Commission. 
 
 quate system of education. If it should be decided to 
 abandon permanently the plan of reconstructing wing 3 for 
 a mess-hall and assembly rooms, it is the intention of the 
 Prison administration to provide space for one or two addi- 
 tional school rooms. The State Board of Education has 
 been invited to aid in formulating a plan in accordance with 
 the previous recommendation of the Commission. In the 
 meantime the sum of $1,500. appropriated for improving 
 the school facilities is being judiciously expended for that 
 purpose and the enrollment of pupils for the night classes 
 has more than doubled since last year. 
 
 6. The number of men employed in road work and on the 
 Farm at Leesburg has been increased. In 1916 there 
 were in men in three road camps and 108 on the 
 farm. In 1917 a fourth road camp was established and 
 163 men were employed in this form of labor, while the 
 number on the farm had grown to 120. Additional equip- 
 ment for the road camps has also been provided out of the 
 sum of $1,500. appropriated by the last Legislature for that 
 purpose. 
 
 7. The dungeons have been bricked up as recommended by 
 the Commission, and the law as to the number of prisoners 
 in a cell is being strictly observed. 
 
 8. The work of the prison administration in classifying and 
 grading the inmates on the basis of their conduct, has been 
 described above. 
 
 9. The covered way, authorized by the last Legislature to be 
 built for the purpose of making the bath-house available for 
 use at all seasons of the year, is under construction. 
 
 In addition to the foregoing a large amount of much needed 
 improvement has been effected in the ventilation, cleaning and 
 painting of cells, in the reconstruction of the work-shops of the 
 prison and of certain of the industrial shops. This, as well as 
 
State Correctional Institutions. 39 
 
 the reconstruction work accomplished in wing 3 of the Prison, 
 has been done in a highly efficient way, entirely by prison labor 
 and without expense to the State. 
 
 (d) Labor conditions. 
 
 Labor conditions in the Prison are still far from satisfactory; 
 they would be intolerable but for the relief afforded by the road 
 camps and the Prison Farm. These, by drawing off an average 
 of 283 men, have made it possible to keep most of the inmates 
 within the walls usefully employed either in the shops or in 
 maintenance work and, what is almost as important, have made 
 it possible to discontinue some of the contracts on which 
 prisoners were employed at the beginning of the year. Pursuant 
 to the policy of the State expressed in the legislative enactments 
 of 1884, 191 1 and 1914, directing the abolition of the system of 
 contract labor in the penal and correctional institutions of the 
 State, and on the recommendation of the Commission, the 
 Governor by due notice abrogated three of the six con- 
 tracts under which inmates were still employed at the begin- 
 ning of the year 19 17. The first to go was the Trenton Whisk 
 Broom Co., which employed 52 men in the manufacture of 
 various types of brooms. This came to an end June 30, 1917. 
 On September 22, 1917, the two contracts of the Rancocas Mills, 
 one for the manufacture of mats, and the other for making 
 matting, together employing 80 men, were terminated in a similar 
 manner. The inmates who had been employed on this work 
 went to reinforce the three remaining contracts, which had been 
 somewhat handicapped by reductions in their working force due 
 to the reduced population of the prison and the drawing off of 
 inmates for the road gangs. The three remaining contractors 
 were allowed to continue for the time being, but without any 
 impairment of the right of the State to terminate their contracts 
 at any time. These are Oppenheim & Company, Incorporated, 
 manufacturing pants and now employing 161 men; W. S. 
 Rendell, making shoes and employing 109 men, and the Crescent 
 
40 Report of Prison Inquiry Commission. 
 
 Garment Company, manufacturing shirts and employing 124 
 men. 
 
 In view of the fact that all the foregoing contracts date back 
 to 1909 and that the contractors have therefore enjoyed the 
 benefit of the great increase in selling prices during the eight 
 years that have since elapsed, without in any way increasing the 
 contract price paid by them for the products of their manufac- 
 ture, it seemed to the Commission to be only proper that this 
 advantage should in some way be shared with the State. As, 
 under the law, it was not possible to make new contracts, 
 the remaining contractors were induced, through negotia- 
 tions carried on by the Governor and the Chairman of the 
 Commission, to enter into an arrangement to make additional 
 payments to the Principal Keeper, in excess of the amounts 
 accruing to the State under the contracts, such payments to 
 constitute a fund to be applied by the Principal Keeper and the 
 Governor for the benefit of the inmates. Under this arrange- 
 ment, Oppenheim & Co. are to pay a sum approximately equal to 
 75 per cent of the amount coming due under their contract and 
 the two other contractors — W. S. Rendell and the Crescent Gar- 
 ment Co. — 50 per cent and 33 1-3 per cent respectively of their 
 contract prices. Based on the production of the year 1916, it is 
 estimated that the total amount realized under this arrangement 
 will be approximately $200. a month, over and above the sums 
 paid to the State, as required by the contracts. 
 
 It is expected that the fund so obtained will be employed by 
 the Prison authorities to establish a rate of compensation for 
 faithful and efficient work on the part of the inmates, and thus 
 prove an important factor in the new system of cooperation 
 and good-will which the Keeper has recently established. 
 
 At the close of the fiscal year, October 31, 1917, the total 
 population of the prison was 1,086, distributed as follows: 286 
 were engaged in outside activities; 321 were employed in the 
 maintenance work of the institution, including the making and 
 repairing of clothing and shoes for the inmates ; 97 were incapac- 
 itated for serious labor or were undergoing punishment ; 24 were 
 
State Correctional Institutions. 4X 
 
 occupied in the State use knitting shop and 358 were still 
 employed in the contract industries. 
 
 The decline in the population of the prison during the period 
 of the war is significant. The figures given represent the num- 
 ber in confinement at the close of the fiscal year, as follows : 
 1913, 1,506; 1914, 1,412; 1915, 1,354; 1916, 1,226, and 1917, 
 1,086. Of these, 65 per cent, were registered as native born 
 and 35 per cent, as foreign born. 
 
 3. State Home for Boys. 
 
 The New Jersey State Home for Boys is located on a large 
 tract of agricultural land near the town of Jamesburg in Middle- 
 sex County. The site is, upon the whole, an excellent one, 
 having many natural advantages and being healthful and well- 
 adapted to its purpose. The institution has from the first been 
 constructed on the cottage plan and now consists of six single 
 cottages and three large double cottages with a capacity of 550 
 inmates. As the inmate population already numbers 557 and 
 is steadily increasing, it is apparent that another cottage is 
 needed. 
 
 The Home is managed by a Board of Trustees composed of 
 six members, appointed by the Governor, subject to confirma- 
 tion by the Senate. The Trustees appoint the Superintendent 
 and subordinate officers, fix their salaries, prescribe their duties 
 and remove them at will. 
 
 Commitments are limited to boys from eight to sixteen years 
 of age and the commitment operates till the jnmate attains the 
 age of 21, unless sooner paroled or indentured by the Board of 
 Trustees. According to the last annual report (1916) the popu- 
 lation at that time included 102 boys under 12 years of age, of 
 whom seven were only eight years old, 25 only nine and 27 only 
 ten. The remainder ranged from thirteen to fifteen, there being 
 only one boy over fifteen years of age. It is a significant fact 
 that, of the 366 boys in the institution last year, 286, or 78 per 
 cent, were "old" offenders, having previously done time or at 
 
42 Report of Prison Inquiry Commission. 
 
 least been "in trouble" with the police. How many of these had 
 previously been committed to the Jamesburg Home, the statistics 
 of the institution fail to show, but, from statements made by 
 some of the officers and inmates, it would appear that a con- 
 siderable number had previously experienced the Jamesburg 
 discipline. 
 
 With respect to what may be called the external, or 
 material, aspects of its administration, the Jamesburg Home 
 deserves little but commendation. The grounds and build- 
 ings are well kept up and there is a general air of order and 
 industry about the place. Reasonable care appears to be taken in 
 assigning the inmates to tasks suited to their physical 
 strength and capacity. But, as there is no adequate medical 
 examination and no mental examination whatever of the 
 inmates, many of them incur disgrace and punishment be- 
 cause of their inability to perform properly the tasks 
 assigned to them. 
 
 The dietary is fairly adequate, as such things go in cor- 
 rectional institutions, though there is no expert supervision 
 to determine its nutritive quality. 
 
 The Home has instituted an excellent system of elemen- 
 tary education, extending through the usual eight grades, 
 but the effect of this provision is largely vitiated by the 
 practice of the Board of Trustees of paroling inmates after 
 only a year of residence. Some attempt has been made to 
 furnish industrial training, but as the Home possesses 
 neither adequate equipment nor specially qualified instruc- 
 tors, little has been done in this direction. From this point 
 of view — that of efficient management — the medical service 
 is the most serious defect of the administration. There is 
 no resident physician and the character of the service ren- 
 dered by the local practitioner, who devotes only about one hour 
 a day to the medical needs of the inmates, appears to be wholly 
 inadequate. 
 
 From the wider point of view — that of creating some 
 approximation to a real family life for the inmates — the 
 
State Correctional Institutions. 43 
 
 Jamesburg "Home" belies its name. Apparently little care is 
 exercised in the selection of the suitable type of person to act as 
 house masters and matrons. The sympathy and personal interest 
 so essential in the upbringing of children is almost entirely lack- 
 ing. The vicious "rule of silence" is enforced in the common 
 mess hall. There are periods of recreation but no supervision or 
 direction of the recreation. Corporal punishment is occasionally 
 employed as a method of discipline. 
 
 The result of all this is that the children are miserable 
 and grow to hate the institution, and, what is much worse, 
 many of them develop vicious and degenerate habits, which 
 cannot fail to affect their whole after lives, and from which 
 they might be preserved if they had the personal care which 
 their immaturity and dependence require. 
 
 That the conditions here described are common to most institu- 
 tions of this kind and that at Jamesburg they are an inheritance 
 from a stern, military regime which preceded the present admin- 
 istration is no excuse for allowing them to continue. The recent 
 appointment of Superintendent Charles H. Edmond, a man of 
 long experience in dealing with the problems of juvenile delin- 
 quency, holds out the hope that a new order of things may soon 
 be introduced in the State Home for Boys. Obviously what 
 is needed is a radical change in the spirit of the administra- 
 tion, with a corresponding change in the personnel of those 
 who have supervision over the private life of the inmates. 
 For the younger children house-mothers rather than house- 
 masters should be provided — women of a high degree of intelli- 
 gence, sympathy and understanding, and the present practice of 
 assigning competent mechanics to this duty should be aban- 
 doned. 
 
 The Commission is further of the opinion that children 
 under twelve years of age should rarely or never be com- 
 mitted to an institution where they are thrown into 
 promiscuous association with delinquents older and more 
 depraved than themselves. Such children, it is believed, 
 
44 Report of Prison Inquiry Commission. 
 
 are more properly cases for the State Board of Children's 
 Guardians than for institutional care. 
 
 For a few of the older class of the Jamesburg inmates, a 
 unique and interesting attempt is being made by Mr. Arthur 
 D. Chandler, a member of the Board of Trustees, to supply 
 them after their parole with some of the opportunities for char- 
 acter-building which the Home had neglected to furnish. On his 
 farm at Allaire, Mr. Chandler has established what he calls the 
 "Boys' Co-operative Farm School," where from a dozen to 
 thirty boys paroled from the institution lead an independent 
 but carefully guarded life, paying their way with their labor, 
 sharing in the profits of the work, and receiving the per- 
 sonal interest and guidance of Mr. Chandler and his asso- 
 ciates. The experiment is a promising one and should as 
 time goes on be widely extended. 
 
 3. State Home for Girls. 
 
 The New Jersey State Home for Girls is advantageously lo- 
 cated on a tract of land of considerable extent on the outskirts 
 of the City of Trenton. The institution was planned and has 
 been largely developed on the cottage system, though the original 
 building has been so extended through additions as to give it a 
 distinctly "institutional" character. At the close of the year 
 1916 the Home contained 227 girls housed in four cottages and 
 the main building. The site includes a small farm, 46 acres of 
 which are under cultivation. The agricultural facilities of the 
 institution are thus far too limited. This circumstance and the 
 great increase in the value of the site, owing to the growth of 
 the City of Trenton, give ground for the opinion that it would 
 be wise to dispose of the plant and transfer the Home to a 
 larger area of land which could be more cheaply purchased. 
 
 The management of the institution is vested in five trustees, 
 three of whom must be women, appointed by the Governor with 
 the consent of the Senate. The trustees receive no compensa- 
 tion but their expenses, and have power to appoint the superin- 
 
State Correctional Institutions. 45 
 
 tendent, a resident woman physician and such other officers 
 as they may deem necessary, to fix their salaries, and to re- 
 move the superintendent for cause. 
 
 Any girl under the age of nineteen and over the age of nine, 
 who has been convicted of any offense except murder, may be 
 committed to the institution and the commitment operates, as 
 in the case of boys committed to the Jamesburg Home, until the 
 inmate attains the age of 21, unless sooner paroled or dis- 
 charged. Inmates may be paroled or indentured at the pleasure 
 of the Board of Trustees. 
 
 Generally considered the equipment and management of the 
 Trenton Home" are such as to give it a place among the best 
 institutions of the kind in the country. Though now over- 
 crowded and in need of additional cottages to house the inmates, 
 the place gives the impression of a smooth-running machine and 
 this impression extends to the life and spirit of the institution 
 as well as to its external affairs. The personnel of the adminis- 
 tration is of a relatively high order, combining an understanding 
 of the difficult problem of dealing with the delinquent girl, with 
 a creditable degree of efficiency in the management of the routine 
 affairs of the institution. 
 
 There is no evidence to-day of the crudities and barbarisms 
 in the system of discipline such as were condemned in the report 
 of the Dependency and Crimes Commission of 1908. In short, 
 the system of administration takes a middle line between the 
 somewhat rigid routine characteristic of Rahway and Jamesburg 
 and the flexible and semi-domestic system of personal relations 
 which prevails at Clinton Farms. In view of the youth of the 
 inmates, it would, perhaps, be well if the Home for Girls 
 had more of the spirit of the latter system. 
 
 The elementary education provided at the Home for Girls is, 
 in a general way, very satisfactory, but, as in the Home for Boys, 
 the provision for vocational training is crude and elementary. 
 
 No industrial work is attempted beyond the most common 
 domestic labor, such as dressmaking and the simpler tasks of 
 housekeeping, together with the work incidental to the manage- 
 
46 Report of Prison Inquiry Commission. 
 
 ment of the farm. There is practically no development of 
 mechanical industries such as would be useful in training the in- 
 mates for after life. The authorities of the institution recognize 
 this defect and strongly urge the transformation of the original 
 building into a large and well-equipped trade school. 
 
 The medical service is of unusual excellence for an institution 
 of this character. The resident woman physician is not only 
 skilled in her profession but has a sufficient knowledge of ab- 
 normal psychology to apply the usual tests for mental defect. 
 But, like all the other correctional institutions of the state, the 
 Girl's Home is hampered by the presence of a large and unde- 
 fined number of neurotic and psychopathic cases, which can be 
 ascertained only by a thorough psychiatric examination and for 
 whom provision should be made in institutions peculiarly adapted 
 to their needs. 
 
 Here, as at Jamesburg and at the two reformatories, the 
 practical value of the training for independent and useful lives 
 after release is, in large measure, rendered ineffective by the 
 practice of paroling inmates, in all but exceptional cases, at 
 the end of a year or, at the most, of eighteen months of 
 residence. 
 
 4. State Reformatory for Men. 
 
 The New Jersey State Reformatory is situated on the out- 
 skirts of the City of Rahway, on an extensive tract of land, 
 three or four hundred acres of w,hich are under cultivation. 
 The main building is of the conventional prison type, massive 
 and imposing in design, with radiating wings of inside cell- 
 blocks. The original plans provided for four wings, but thus 
 far it has been found necessary to construct only two. 
 
 The institution is managed by a Board of Commissioners, 
 composed of the Governor and eight members appointed by 
 him, with the consent of the Senate. This Board appoints 
 the superintendent for a term of five years and has power to 
 remove him for cause. The superintendent appoints the sub- 
 
State Correctional Institutions. 47 
 
 ordinate officers and employees subject to the approval of the 
 Board. The present superintendent is Dr. Frank Moore, who 
 was appointed in 1909 and reappointed in 19 14. 
 
 Commitments to the Reformatory are restricted to convicts 
 between 16 and 30 years of age who have not previously been 
 convicted of a State Prison offense. They are detained at the 
 pleasure of the Board of Commissioners who have fixed the 
 minimum period of imprisonment at one year. By far the 
 greater number of the inmates are paroled after a year to eighteen 
 months of imprisonment. 
 
 Rahway is in effect a prison with reformatory features, 
 rather than a reformatory pure and simple. It is too much 
 like jits famous prototype, the Elmira Reformatory, after which 
 it was consciously molded, to be altogether admirable. Archi- 
 tecturally it is, like Elmira, a prison, and, like Elmira also, it 
 has more than a touch of the severity of spirit which has char- 
 acterized prison management everywhere. Much of the latter 
 has doubtless resulted from the construction of the main build- 
 ing, with its inside cells and depressing prison atmosphere. 
 
 A comparison of the body of inmates within the walls and 
 of those engaged in farm and road work outside, is wholly to 
 the advantage of the latter, in health and in morale. The 
 confidence reposed in these men, the comparative liberty which 
 they enjoy, their freedom from the constant surveillance and 
 from the regimentation of the life at Rahway, are reflected in 
 their independent and responsible bearing and in the zest which 
 they put into their work. Although the men chosen for such 
 service are doubtless carefully selected, one cannot help feeling 
 that the marked difference between them and the men behind 
 the walls is due rather to the more generous and less exacting 
 discipline to which the former are subjected than to a funda- 
 mental difference in character and capacity, and that these have 
 a much greater opportunity of redeeming their lives, than that 
 which falls to the lot of their less fortunate fellows. To what 
 extent the spirit and methods which are producing such fruits at 
 the Annandale farm, for example, can wisely be employed in 
 
48 Report of Prison Inquiry Commission. 
 
 Rahway, the Commission is unable to say, but it is convinced 
 that, if the Reformatory is to achieve the results of which this 
 experiment proves it to be capable, it must at the earliest prac- 
 ticable time be removed to a site in the country where these 
 benefits may be extended to all or nearly all of its inmates. 
 
 In the meantime, it would seem that another trial might 
 wisely be made of the tentative experiment in inmate self- 
 government, which was instituted in the Reformatory in 19 14 
 and, as Superintendent Moore reports, 1 abandoned after a year's 
 trial. It is said to have developed "ward politics" ; but that is 
 an incident not unknown to self-government outside prison 
 walls and, if it is a greater menace in a correctional institution 
 than in the wards of a city, it is, on the other hand, more 
 easily dealt with. The remarkable success of a similar experi- 
 ment in the Philippine penal colony of Iwahig seems to indicate 
 that, if wisely administered, the method contains possibilities of 
 great usefulness. We have referred to the Philippine example, 
 rather than to the recent experience of Auburn and Sing Sing 
 prisons in self-government, because the former has been longer 
 continued and not so much dependent on the devoted enthusiasm 
 of one man. Especially does a measure of self-government 
 recommend itself as a means of affording to the closely 
 confined inmates of a walled prison some of those opportunities 
 for self-development, self-expression and self-control which fall 
 naturally to men thrown more largely on themselves on a prison 
 farm or in a road camp. Of all the correctional institutions, 
 Rahway seems, both in the character of its population and in 
 the strong and efficient government that it possesses, to be the 
 one best adapted to work out such an experiment safelv and 
 successfully. 
 
 In its material aspects the administration of the Reforma- 
 tory is of the first order. The inmates are adequately classified 
 on the basis of age and physical health, though very inade- 
 quately on the basis of their mental condition. The medical 
 
 x Report of New Jersey State Reformatory, 1915. 
 
State Correctional Institutions. 49 
 
 examination is thoroughly competent but there is no psychiatric 
 study made of the inmates and the psychological tests applied 
 are crude and unsatisfactory. 
 
 The industries at the Reformatory have been judiciously 
 selected with the double purpose of producing marketable goods 
 and of furnishing useful training to the inmates. In Rahway 
 alone has the purpose of the state, to instal the State-Use System 
 of industry in place of the contract system, been even approxi- 
 mately realized. A conscientious effort is made to assign in- 
 mates to the industries to which they are best adapted and in 
 which they desire to qualify. Considering the handicaps of 
 insufficient working capital and a constantly shifting labor 
 force the industrial efficiency of Rahway is highly commendable. 
 With the use of the farm at Annandale, the institution now has 
 some eight hundred acres of productive land under cultivation 
 and this is apparently as well conducted as the home institution. 
 
 The diet furnished the inmates, while not scientifically regu- 
 lated, is so adequate in quantity and variety and, upon the 
 whole, so well-prepared and served, as to render this omission 
 a matter of little consequence. The inmates eat their meals 
 together in a large well-lighted dining hall and are permitted 
 to converse freely with one another at such times. 
 
 The medical service is entirely competent, the hospital is 
 adequate and well-equipped and there is satisfactory provision 
 for the segregation of the insane and of contagious and epi- 
 demic ,cases. 
 
 Perhaps the most important feature of a reformatory institu- 
 tion is the education which it provides its inmates, and here, as 
 in so many other respects, Rahway reaches a higher degree of 
 excellence. It may be doubted whether many elementary 
 schools in the country are. better, in point of equipment, in the 
 quality of the teaching staff or in the efficiency of the instruc- 
 tion, than is this institutional school. So important is this 
 feature of the work of the Reformatory regarded that the 
 inmates devote half their time, either the forenoon or the after- 
 
50 Report of Prison Inquiry Commission. 
 
 noon, to their classes, the other half going into the industrial 
 and other work of the institution. 
 
 But it is true here, as elsewhere, that there has been no cor- 
 responding development of the equally important function of 
 industrial education. The only provision for such education is 
 the work afforded in the shops and on the farm. But as the 
 need for systematized vocational instruction has scarcely dawned 
 on the industrial world outside, it is not to be wondered at that 
 its importance has not yet made itself felt even in one of the 
 most progressive of our correctional institutions. What is 
 more of a marvel is that such an institution as Rahway should, 
 under its present efficient management, have existed for seven 
 years within an hour's railroad journey from Trenton, without 
 profoundly affecting the policy and methods of the State 
 Prison. 
 
 The population of the Reformatory at the close of the fiscal 
 year, October 31, 1917, was 579, distributed as follows: 142 
 were employed in outside activities— 21 on the Reformatory 
 farm and garden, 43 in the yard and barn, 18 on the Annandale 
 farm and 60 on road construction; 174 were engaged in the 
 maintenance labors of the institution, 231 in the various in- 
 dustries and 15 were incapacitated. 
 
 5. State Reformatory for Women. 
 
 The New Jersey State Reformatory for Women is located on 
 a tract of farm land in Clinton, Hunterdon County. It was 
 planned on the cottage system and now consists of four cot- 
 tages, two of which are farm buildings that were acquired with 
 the land. The two others are substantial concrete buildings, of 
 good size, erected during 19 16-17. In addition to these cot- 
 tages, the plant includes two small dwellings for the housing of 
 employees, and a handsome chapel. An additional cottage is 
 required for the overflow of the population, which already 
 exceeds the capacity of the present accommodations. The insti- 
 tution is governed by a board of eight commissioners, not less 
 
State Correctional Institutions. 51 
 
 than three of whom must be women, appointed by the Governor, 
 with the consent of the Senate, for a term of three years. The 
 Board has the power to appoint the Superintendent, who holds 
 office at the pleasure of the Board, at a salary limited by law, 
 and to determine the number of subordinate officers, their duties 
 and compensation. The Superintendent appoints the subordi- 
 nate officers, all of whom must be women, subject to the approval 
 of the Board. The Commissioners and Superintendent may be 
 removed by the Governor for cause upon charges filed and after 
 hearing. 
 
 Any female above the age of seventeen may be committed to 
 the institution after conviction of a State Prison offense. The 
 Keeper of the State Prison is required, when requested by the 
 Board and with the approval of the Governor, to transfer to the 
 Reformatory all female inmates of the Prison over 17 years 
 of age. All commitments are for an indefinite term limited 
 only by the maximum period of imprisonment fixed by law. 
 The Commissioners may parole an inmate at their pleasure 
 and it is their general policy to grant parole after one year 
 of good conduct. 
 
 As the Reformatory is still in the early stages of its de- 
 velopment, having been established only seven years ago, its 
 plant is still in an inchoate condition and requires to be sup- 
 plemented by additional buildings and equipment. How- 
 ever, even with the limited facilities placed at their disposal, 
 the Commissioners, through their insight and energy, have 
 already produced an institution which, though hardly yet out of 
 the experimental stage, is one in which the State may take a just 
 pride. 
 
 Clinton Farms is the only one of the three institutions 
 constructed on the cottage plan in which the governing idea 
 of providing the conditions of family life has been con- 
 sistently carried out. Not only do the inmates of each 
 cottage have their own kitchen and dining room (as is also 
 the case in the State Home for Girls at Trenton), but, more 
 completely than in the State Home, each cottage group 
 
52 Report of Prison Inquiry Commission. 
 
 forms a little community of its own for all but the congre- 
 gate purposes of worship and farm labor. This has resulted 
 an the development of a vigorous spirit of co-operation 
 among the members of each group as well as a wholesome 
 rivalry between the different groups. 
 
 The spirit of sympathy and understanding and the general 
 attitude of trust and kindliness, which the more active mem- 
 bers of the board have brought to the institution, has in- 
 fected the official staff and the inmates, alike, in their rela- 
 tions to one another. In short, Clinton Farms is, on its 
 human side, a tolerant, good-natured, co-operative family, 
 or group of related families, rather than a "correctional insti- 
 tution." While the inmates have regular hours of work and 
 school attendance, they are at other times allowed considerable 
 freedom in and about the cottages in which they live and, in the 
 case of the "honor" group, complete liberty to go where they 
 choose within the limits of the place. 
 
 The inmates are classified by age and color, the younger 
 white girls being generally grouped by themselves, and the 
 colored inmates being in a cottage by themselves, under the 
 immediate direction of a very competent matron of their 
 own race. Apart from these elementary groupings, no 
 serious attempt is made at a classification of the inmates, 
 either physical or mental. There is, indeed, a thorough 
 physical examination made of each inmate on entering 
 the institution, and there is a theory that tests for feeble 
 mindedness are employed, but these seem in practice to be 
 only occasional and not a part of the regular routine. 
 As in all the other correctional institutions, there is no 
 psychiatric examination or treatment for the detection and 
 help of those who are in need of specialized care. 
 
 Less attention is paid to education than might have been 
 expected, but the elementary education afforded during the 
 six months of the year while the school is in operation, is, 
 upon the whole, of excellent quality. This neglect appears 
 to be due not to deliberate intention but rather to a general 
 
The Labor Problem in the Correctional Institutions. 53 
 
 lack of systematic organization and co-ordination of the 
 various activities of the institution. The schooling is 
 crowded out by the pressure of farm work and the drafting 
 of inmates to the farm and to necessary domestic service 
 has prevented the development of other forms of industrial 
 activity and, particularly, of anything like vocational train- 
 ing. In fact the labor of the institution may be summed up 
 in the formula — farm work and domestic service. It is true, 
 both of these are well done, but they constitute a meagre 
 program of training for future useful activity. 
 
 This slackness of administration is reflected in the rather 
 easy-going life of the institution in general, which gives the 
 impression of failing, in some measure, to supply to the in- 
 mates the desirable discipline of a carefully ordered, regu- 
 lated life. The State would be the gainer if the fine spirit, 
 which characterizes the management of Clinton Farms and 
 the order, system and efficient administration of Rahway 
 were combined in all her correctional institutions. 
 
 E. The Labor Problem in the Correctional Institutions. 
 
 The problem of utilizing to advantage the labor of convicts — 
 to their advantage as well as to that of the State — has for nearly 
 a century taxed the ingenuity of all who shared the responsi- 
 bility of prison administration. From the primitive forms of 
 congregate labor practiced in the first State Prison, from 1798 
 to 1836, to the establishment of work shops and the persistent 
 attempts of the Legislature and the Prison authorities to work 
 to advantage, one after the other, the various forms of the 
 contract system, the record is one of constant, half-hearted 
 experimentation, of generally increasing financial loss and of 
 almost invariable failure. 
 
 In 1884, under the influence of labor agitation, an effort was 
 made by the Legislature to put an end to the contract system and 
 substitute in its stead the system of manufacture for state use. 
 
54 Report of Prison Inquiry Commission. 
 
 But this effort was vitiated by a subsequent statute, passed at the 
 same session of the Legislature, permitting the employment of 
 the "piece price" system, under which the contractors, instead of 
 hiring the labor of the prisoners, took the manufactured goods at 
 a fixed contract price, an arrangement which proved, in practice, 
 to be more favorable to the contractors and less advantageous to 
 the state than the obnoxious system which it displaced. 
 
 Thus the "lease" form of the contract system having been 
 legislated out of existence, and the "piece-price" form having 
 proved an even more disastrous failure, the annual deficit hav- 
 ing increased from $87,835 in 1885 to $178,585 in 191 1, the 
 State decided to go the whole length of adopting the state use 
 system exclusively. This was effected by the Act of June 7, 
 191 1, which directed that thereafter all industrial labor in the 
 penal and correctional institutions should be employed in the 
 manufacture of goods for state use, but with a proviso, the prob- 
 able effect of which was that any surplus of goods not so required 
 might be sold on public account. It was, however, provided by 
 an act of April 14, 1913, that the contracts then in existence 
 might be continued until sufficient state use industries had been 
 established to absorb the labor of the inmates. 
 
 Doubtless it was the increasing pressure of labor agitation, as 
 much as the economic failure of the contract system, that led the 
 legislature thus to commit the state to the state use system. In 
 this respect New Jersey was only repeating the experience of 
 other states in which the labor organizations had effectively agi- 
 tated for the abolition of a system under which free labor was 
 exposed to the unfair competition of unpaid and sweated con- 
 vict labor. As early as 1879 the legislature had taken notice of 
 the agitation by the appointment of a Commission on Prison 
 Labor, which rendered a report recommending that the compe- 
 tition with free labor be reduced to its lowest terms by a diversi- 
 fication of prison industries and a restriction on the number of 
 men to be employed in any given industry. The result of this 
 recommendation was the act of March 25, 1881, forbidding the 
 employment of more than 100 men in any one industry — a 
 
The Labor Problem in the Correctional Institutions. 55 
 
 device which clearly missed the point involved in the controversy, 
 which was not the amount but the unfair character of the compe- 
 tition maintained by the contract system. Even under the state 
 use system, which the labor organizations have generally favored, 
 convict labor will still compete with free labor. But if the sys- 
 tem is fairly administered, with proper emphasis put on the gen- 
 eral and industrial education of the inmates, and a proper wage 
 scale established for them, the last objection to the competition 
 will have been met. Under those circumstances it also is safe to 
 assert that, if the purpose of the act of 191 1 is fully carried out 
 and an honest effort made to supply the requirements of the state 
 for prison made goods, the sale in the open market of any occa- 
 sional surplus of goods that cannot be disposed of in the usual 
 way will be equally unobjectionable. 
 
 The sincerity of this effort of the legislature to solve the 
 prison labor problem in the right way was evidenced by 
 the fact that the act of 191 1 created a Prison Labor 
 Commission to direct the development of the new system 
 and control its operation, and that in the following year the 
 legislature, by joint resolution, March 28, 1912, made provision 
 for a Convict Labor Commission to formulate a comprehensive 
 plan for the employment of all convicts, physically able, on the 
 public roads, in public parks, in forestry and in such other ways, 
 not in competition with free labor, as may suggest themselves. 
 But the Prison Labor Commission, while authorized to direct 
 the installation of state use industries in the several penal and 
 correctional institutions, was invested with no power to carry its 
 recommendations into effect. In fact, from the institution of 
 the Commission in April, 19 12, down to the present time, its 
 history has been a discouraging record of "orders" and "direc- 
 tions" issued by it to the managing authorities of the several cor- 
 rectional institutions and of appeals for appropriations, nearly 
 all of which were ignored or met with the conclusive formula, 
 "no funds". Only in the field of exploiting the market for 
 institution-made goods, i. e., in requiring charitable and other 
 state agencies to supply their needs from such goods, — here, 
 
56 Report of Prison Inquiry Commission. 
 
 where alone it has real authority, has the Commission attained 
 a real measure of success. This function the Commission 
 appears to have performed with commendable firmness and dis- 
 cretion. But it is obvious that this must remain a very restricted 
 function so long as it is not combined with the power to enforce 
 the production of such goods as may be required, and such has, 
 in fact, proved to be the case. 
 
 The result was that, though the act of June 7, 191 1, abolished 
 contract labor from the standpoint of legal theory, in 19 17, six 
 years later, but twenty men, on an average, were employed on 
 state use activities within the state prison walls, while about 
 400 were still engaged in work on "piece-price" contracts. 
 
 The first and most fundamental cause for this failure was 
 the conflict of jurisdiction in the control of the industrial 
 activities of the prison which was thus created by the law 
 of 191 1 and subsequent legislation on this topic. In addition 
 to the Prison Labor Commission, which was given "general 
 control and supervision over the employment of the inmates of 
 all State penal, correctional or reformatory institutions," the 
 Board of Inspectors, by the law of 1876, confirmed by the act 
 of April 20, 1914, were also vested with "full control" over the 
 general administrative policy of the prison. The principal keeper, 
 as a constitutional officer of the State, regarded himself as re- 
 sponsible for the discipline and guarding of the prisoners when 
 engaged in industrial operations. Further, the supervisor (fiscal 
 agent since 1914) was the recognized industrial and financial 
 manager of the state prison, while the governor of the state was 
 authorized to pass upon the desirability of allowing the con- 
 tinuance or extension of the contracts. With such a conflict of 
 powers, there is no reason for surprise that practically nothing 
 had been done to improve the industrial situation within the 
 prison walls down to the summer of 19 17. 
 
 The second cause for the failure was the neglect of the legis- 
 lature to make the necessary appropriations wherewith to intro- 
 duce the new equipment essential to the establishment of the 
 
The Labor Problem in the Correctional Institutions. 57 
 
 "state use" system, as well as to provide working capital for 
 its operation. 
 
 The only attempt down to 19 17 to introduce the new 
 system in the prison came in 1915, when a small knitting 
 establishment was set up — a most inconsequential movement, as 
 it never employed more than 25 prisoners, and was poorly 
 adapted to an institution containing none but adult male inmates. 
 During 19 17, however, steps were taken to provide for the 
 introduction of a new "state use" industry, namely, the making 
 of automobile tags. This industry will probably be able to start 
 by the spring of 1918 and is expected to employ about 75 men. 
 
 In view of this practical failure, to date, in the introduction 
 of the "state use" system within the prison walls one must 
 look to the development of extra-mural activities to discover 
 the chief avenue through which "state use" industries have 
 been developed by the prison authorities. This outside employ- 
 ment of prisoners was authorized by the act of April 11, 1910, 
 and its subsequent amendments. In 1913 two road camps were 
 opened for the employment of convicts on the roads of the 
 state, and in 19 15 a third, and in 19 17 a fourth camp was 
 established. These road camps have been a relative success. 
 In addition to the hygienic and disciplinary value of the out- 
 door work, in 19 16, the road camps nearly met their expenses, 
 including the salaries of the deputies, while within the prison the 
 expenses were almost exactly three times the receipts. In Sep- 
 tember, 19 1 3, a prison farm was purchased consisting of 1,000 
 acres of waste land near Leesburg in Cumberland County. Dur- 
 ing the last year the prison farm was an expense of $25,466 and 
 the total receipts realized were only $6,894, but the loss is at 
 least partially offset by the increased value of the land resulting 
 from the clearing and other improvement thereof. 
 
 In the meantime the prison finances have steadily become 
 worse. In 191 1, the total loss, including the salaries of the 
 officers, was $178,586; by 1916 it had reached $233,694, though 
 the number of prisoners serving sentence in 19 16 was less than 
 in 191 1. 
 
58 Report of Prison Inquiry Commission. 
 
 The industrial situation at the State Reformatory at 
 Rahway since 191 1 'has been more encouraging than that which 
 has existed at the state prison. Superintendent Moore has 
 been, from the first, a strong advocate of the "state use" 
 system, and the governing board of the Reformatory, in 
 contrast to the Inspectors of the state prison, have con- 
 sistently supported the efforts of the Superintendent to develop 
 the system in the Reformatory. Industrial production com- 
 menced on a significant scale in 19 15 and it has up to the present 
 time made considerable progress. In 1916, the first full year of 
 the operation of the new system, orders to the value of $21,420 
 were filled. 
 
 The farming activities at Rahway have been equally sys- 
 tematic and profitable. A large and well cultivated farm 
 adjoining the Reformatory has been in operation for several 
 years, the net gain from which in 1916 was $23,293. Early 
 in 1917, through the aid of the Governor and of Comptroller 
 Newton D. Bugbee, a productive tract of land at Annandale 
 in Hunterdon County, which had been acquired by the State 
 for other purposes, was placed at the temporary disposal 
 of the Reformatory as an additional farm. This has been 
 cultivated by inmates during the past season with gratifying 
 results. It is estimated that the net gain from this innova- 
 tion in 1917 will approximate $10,000, while the disciplinary 
 aspects of the experiment have been entirely successful. 
 
 Road building has been carried on by the inmates of 
 Rahway only to a modest degree but in a highly profitable 
 manner. Roads have been built for the city of Rahway, 
 and in the fall and winter of 1917 a number of inmates were 
 employed in building roads leading to the army encamp- 
 ment at Wrightstown. 
 
 While in the early years of The State Home for Boys, at 
 Jamesburg, and, in fact, down into the present century, 
 various industries were carried on under the contract sys- 
 tem, there is at present very little mechanical industry in 
 the institution. An adequate industrial plant exists, but is 
 
The Labor Problem in the Correctional Institutions. 59 
 
 scarcely at all developed, either from the standpoint of pro- 
 ductivity or from that of industrial training. A large farm is 
 cultivated and this occupies the labor of the boys during most of 
 the year, except in the winter months. 
 
 In the two remaining State institutions, as in those under 
 county and municipal control, there has been little industrial 
 development, with the exception of farming, which is carried on 
 with success on a considerable scale, at Clinton Farms and, on a 
 more restricted scale at the Trenton Home for Girls. In all 
 the State institutions, moreover, the external clothing of the in- 
 mates is for the most part provided by their labor. 
 
 In conclusion, then, it may be said that the enlightened pur- 
 pose of the state in legislating the contract system of prison 
 industry out of existence and directing the substitution therefor 
 of the state use system, has been almost completely nullified by 
 the imperfect character of the legislation devised for the pur- 
 pose and by the failure of the governing authorities of four of 
 the five correctional institutions of the state to do their part in 
 putting the new system into effect. The Commission is of the 
 opinion that no satisfactory solution of the problem can be 
 devised that does not provide for an effective control of the 
 entire system of prison labor either by the Prison Labor Com- 
 mission or by such a central board of control as is recom- 
 mended in the concluding section of this Report. 
 
 The system of prison labor which we may thus be able to 
 secure will aim not only to protect the State against the waste 
 of its resources that the old system has entailed, but will be 
 even more concerned to provide adequate industrial training for 
 the inmates of the State institutions. Pending the complete 
 development of such a system, the Commission believes that the 
 employment of the inmates in road making, farming, land 
 reclamation and other public work should be greatly increased. 
 With the unlimited opportunities that the State presents for 
 such public work, the Commission is of the opinion that the 
 remaining contracts, under which a large number of men are 
 
60 Report of Prison Inquiry Commission. 
 
 still employed at the State Prison, should be terminated at an 
 early date 
 
 P. Pardon and Parole. 
 
 The pardon power is, under our constitutional system, vested 
 in the chief executive of the nation and of the several states, 
 respectively. In New Jersey, as in several other states, this 
 function has been transferred to a Court or Board of Pardons 
 which, in this State, is composed of the Governor, the Chan- 
 cellor and the appointed members of the Court of Errors and 
 Appeals. The Court of Pardons of New Jersey grants par- 
 dons by a majority vote, of which majority the Governor must 
 be one. 
 
 The parole power came into existence in New Jersey in 1889 
 as an incident of a sweeping measure of clemency, which pro- 
 vided that, with certain exceptions, all inmates of the State 
 Prison who had not previously been convicted of a prison 
 offense, might after serving half the term for which they had 
 been sentenced, be released on parole in the discretion of the 
 prison authorities. Two years later (April 16, 1891) the 
 legislature enacted a law vesting in the Court of Pardons the 
 power to allow qualified convicts in any of the penal institutions 
 of the State to be at large, under such conditions as the Court 
 might see fit to impose. From that date the Court of Pardons, 
 which had theretofore been confined to the granting of executive 
 clemency, has been the chief paroling power in the State. 
 
 The institution of the indeterminate sentence by an act of 
 April 21, 191 1, gave new scope and importance to the power of 
 parole, which was definitely vested in the Inspectors of the State 
 Prison, without, however, withdrawing from the Court of 
 Pardons the more extensive authority conferred on it by the act 
 of 1891. 
 
Pardon and Parole. 61 
 
 While, in a sense, the parole power vested in the Court of 
 Pardons merges in or overlaps its pardon power, there is this 
 difference, that a pardon is conclusive and final in effect, while 
 a parole is granted on prescribed conditions, for a violation of 
 which the person paroled may be recalled to serve out his term. 
 It should also be noticed that, in the original act vesting the 
 parole power in the Court, it was not bound by the restrictions 
 as to the classes of offenders made eligible to parole. Thus the 
 Court of Pardons might parole old offenders and those convicted 
 of murder or other major crimes and need not in any case wait 
 until the minimum term of the sentence has expired. 
 
 These broad powers of parole have been freely exercised by 
 the Court, as appears from statistics gathered by this Commis- 
 sion. Thus, in the fiscal year ending October 31, 1916, the 
 Court of Pardons granted 334 paroles at the State Prison and 
 the Board of Inspectors, the regular paroling authority of the 
 Prison, only 124. For the twelve months ending September 
 30, 1917, the Inspectors granted 196 paroles and the Court of 
 Pardons 375. Moreover, out of these 375 cases, 329 or 87.7 
 per cent., received their parole before the expiration of their 
 minimum sentences. It would appear from these figures that 
 the Court of Pardons is employing its parole power largely as 
 an extended function of the pardon power and not in the sense 
 in which the parole power is generally understood. 
 
 This anomalous situation, of two competing and overlapping 
 parole authorities, has been further complicated by the assump- 
 tion by the courts of what is in effect a power of parole, by 
 exercising the authority of recalling for resentence convicts sen- 
 tenced by them to the State Prison, the penitentiaries or to any 
 other State correctional institution. The courts, under our sys- 
 tem of judicial procedure, have always enjoyed the power of 
 recalling for resentence a prisoner sentenced by them to a term 
 of imprisonment, during the period fixed by law within which 
 a new trial may be granted. This power, inherent in the 
 judicial function, was enlarged by act of the Legislature, 
 March 16, 1914, granting them the further power of recall- 
 
62 Report of Prison Inquiry Commission. 
 
 ing prisoners committed by them, at any time prior to the expira- 
 tion of the sentence imposed or to their previous discharge 
 or parole. While this power has not been exercised so freely as 
 to constitute a serious interference with the due administration 
 of justice, it is always available to a convict who fails to get 
 relief from the Court of Pardons or the local paroling authority. 
 The net result is that New Jersey presents the curious spectacle 
 of having three distinct and competing paroling authorities of 
 varying jurisdiction, which can be invoked in turn and thus 
 played off, one against another. Such a condition of affairs 
 cannot fail to impair discipline and respect for authority in our 
 penal institutions. 
 
 As now constituted, the regular paroling authority in the 
 several correctional institutions (as distinguished from the 
 Court of Pardons and the superior criminal courts which have 
 jurisdiction as to all of them) is the board of control. While 
 the powers of these boards vary as to the time when they may 
 be exercised, they are in all other respects substantially the same. 
 The Inspectors of the State Prison may parole an inmate only 
 after the expiration of his minimum sentence, or, if he was com- 
 mitted for a definite term, only after the lapse of the period to 
 which his sentence was reduced by law. In actual practice 
 parole is granted as a matter of course at the expiration of the 
 minimum term, except in those cases in which the applicant 
 has had his minimum term extended as a penalty for misconduct 
 in prison. 
 
 As all commitments to the four reformatory institutions are 
 for an indeterminate period, limited in the case of commit- 
 ments to Rahway and Clinton Farms to the maximum term 
 fixed by law for the crime committed, and in the case of the 
 two State Homes to the attainment of the age of 21 years, 
 the boards of these institutions may grant parole at any time 
 after commitment. All of these boards have by rule or in 
 practice adopted a self-denying ordinance fixing a minimum of 
 one year of detention before an application for parole will be 
 considered. In Rahway parole is usually granted in a year to 
 
Pardon and Parole. 63 
 
 eighteen months after commitment; in the three other institu- 
 tions, at the expiration of a year. Only in case an inmate has 
 by misconduct forfeited the privilege of such early parole, is his 
 first application refused, and only in the case of especially hard- 
 ened and incorrigible offenders is the period greatly lengthened. 
 In Rahway only may an offender be detained indefinitely, even 
 beyond the legal maximum, by virtue of a special law providing 
 that the period of incorrigibility shall not be counted toward 
 the time for which his sentence may run. 
 
 Thus, in all the State institutions, is the aim of the inde- 
 terminate sentence defeated by the policy of the paroling author- 
 ity. The inmate of the State Prison regards the minimum 
 sentence imposed by the court as his actual sentence. The 
 maximum prescribed has no meaning for him. The few months 
 that may be added to the minimum by the authorities of the 
 institution, he regards as so much additional punishment im- 
 posed by them for the specific acts of misconduct of which he 
 has been guilty. This is equally the attitude of the Prison 
 authorities. If they think at all of the purpose of the law — 
 to keep the wrong-doer in confinement until he has become a 
 new man and has ceased to be a menace to the community — 
 they ignore it or assume that the negative attitude of passive 
 obedience to prison rules is sufficient evidence of reformation. 
 Perhaps this is well enough in an institution which has never 
 claimed to be a reformatory, especially in view of the fact that 
 the courts, being aware of this practice, take it into account in 
 fixing the sentence. But this excuse for the practice cannot 
 be pleaded by the other four institutions whose management and 
 discipline are definitely aimed to effect the reformation of those 
 committed to them. It will hardly be contended that a year 
 or eighteen months of such treatment as they afford their in- 
 mates will in most cases suffice to correct the depravity or 
 overcome the bad habits or afford the education and industrial 
 training required to fit them to lead useful and honorable lives 
 after their release. 
 
64 Report of Prison Inquiry Commission. 
 
 As already stated, a parole operates as a discharge, subject 
 to certain conditions which, in the case of the State Prison, 
 are prescribed by the Governor, in the case of the four other 
 institutions, by the paroling authority. In theory the paroled 
 convict remains under surveillance to the end of the period for 
 which he might have been held, unless he is sooner pardoned, 
 but in practice the actual supervision is rarely continued for 
 more than a year. Violation of any of the conditions on which 
 the parole is granted subjects the paroled offender to the lia- 
 bility of being returned to the institution from which he was 
 paroled, but this extreme penalty is seldom exacted except for 
 a further criminal offense or other grave misconduct. 
 
 The paroled prisoner is committed to the custody of the parole 
 officer of the institution, or, in practice, to some responsible 
 citizen. Juvenile delinquents may be paroled to their parents 
 or guardians, if these are responsible. As the State Prison has 
 only one parole officer to look after more than 1,200 paroled 
 convicts, Rah way only two to supervise the conduct of nearly 
 700, and Jamesburg three, to look after nearly 1,000, it is 
 obvious that the supervision actually exercised in these cases is 
 little more than nominal. The two other institutions are better 
 off in this respect, the Home for Girls having three parole 
 officers for 225 girls on parole and the Clinton Farms Reforma- 
 tory having one (with several volunteer assistants) for about 
 50 women. Even in this last named institution, from which 
 approximately 80 per cent, of the inmates are paroled at the 
 end of a year of residence, it is reported that of 160 women 
 paroled from the beginning of the institution 56, i. e., 35 per 
 per cent., were guilty of violation of parole and were returned 
 or had disappeared. 
 
 In view of these facts — the fixing of a minmum term of im- 
 prisonment where none was provided by law, the general practice 
 of paroling the inmates at the expiration of his minimum term, the 
 short period of surveillance and the inadequacy of the supervision 
 exercised — it is generally conceded that the administration of the 
 
Administration of the Correctional System. 65 
 
 parole law very generally fails to attain the purpose for which it 
 was designed. 
 
 The system of "indenturing" inmates, which obtains in the 
 Jamesburg and Trenton Homes, under the laws creating them, 
 appears to be nothing more than a modified form of parole, 
 in which a closer and more effective supervision may be exer- 
 cised over the inmate than is usually possible in ordinary cases 
 of parole. The boy or girl is committed to the care of a 
 family for employment at stipulated wages and under careful 
 restrictions as to the treatment which he or she is to receive. 
 An advantage of the system is that the wages of the indentured 
 child, over and above maintenance and clothing, is paid directly 
 into the treasury of the institution, where it is held as a savings 
 fund until final parole or discharge. The system is reported 
 as working very well. In view of the fact that the indentured 
 individual is not "bound out" to the employer, and that the 
 practice confers on the latter no legal powers of detention, the 
 term by which the system is known appears to be a misnomer. 
 
 G. Administration of the Correctional System Cen- 
 tral Boards Versus Local Boards. 
 
 The history of the correctional institutions of New Jersey, 
 which is set out in the foregoing pages and is covered in detail 
 in the History appended hereto, has followed the same general 
 course as that which has marked the development of similar 
 institutions in other states of the Union. First, we have the 
 summary punishment of the offenders, by fining, branding, 
 deportation or death, a system that left little occasion for places 
 of imprisonment — the county jails, which had been primarily 
 instituted for the confinement of vagabonds and insolvent 
 debtors, being also used as places of detention for those await- 
 ing the determination of their guilt or innocence or the execu- 
 tion of the sentence imposed by law. With the gradual develop- 
 ment of imprisonment as a method of punishment, the jail, 
 
66 Report of Prison Inquiry Commission. 
 
 being the only institution available for the purpose, became the 
 place of imprisonment for those condemned to this form of 
 punishment, the result being the indiscriminate confinement, 
 together, of those undergoing sentence and the ordinary jail 
 population. Later, with the overcrowding of the jails, came 
 a recognition of the necessity for separate places of confine- 
 ment for those undergoing punishment, resulting in the crea- 
 tion of the state prison or penitentiary; and, still later, the 
 recognition of differences of type among those undergoing sen- 
 tence, causing the institution, one after another, of separate 
 places of imprisonment for youthful first offenders and juvenile 
 delinquents. 
 
 The method of development of these institutions has deter- 
 mined the method of management adopted for them. They came 
 one at a time, each in response to a distinct need. Each was 
 treated as a separate unit, to be separately managed in accord- 
 ance with the ideas which had governed its creation. Except 
 in the minds of those who were struggling with the baffling 
 problem of crime and delinquency as a whole, there was little 
 consideration of the advantages or disadvantages of a unified, 
 as compared with a separate, management of the institutions. 
 
 The diversity of management of the several institutions, 
 resulting from this system of separate control, made inevitable a 
 comparison of the spirit and methods governing the older and 
 the newer types of institutions and of the results of their man- 
 agement, and gave rise in many minds to the conviction that 
 the reformatory purpose of punishment, which was the key- 
 note of the latter class of institutions, was too generally ignored 
 in the management of the former class. At the same time, other 
 observers had become alarmed by the enormous and increasing 
 cost of the correctional establishments. Accordingly the sys- 
 tem of separate control came under criticism from two distinct 
 sets of influences — on the one hand, from those who, on 
 humanitarian grounds, desired the leveling up of the manage- 
 ment of all the correctional institutions to the highest point 
 
Administration of the Correctional System. 67 
 
 attained by any of them, and, on the other hand, from those 
 who desired a more efficient financial management of the entire 
 system. As a consequence of this, during the past quarter of a 
 century, there has developed in all the states of the Union a 
 searching inquiry into the advantages, and, in many of the 
 states, an elaborate experimentation in the working, of unified 
 boards of management, designed to deal with the correctional 
 institutions as a whole. 
 
 But the tendency toward unification of institutional manage- 
 ment did not stop with the correctional system. The discovery, 
 resulting from recent scientific study of the inmates of correc- 
 tional institutions, that a large proportion of such inmates are 
 not essentially different in mental capacity and responsibility 
 from those who fill the charitable institutions for the insane, 
 the feeble-minded and the neglected, has produced a growing 
 conviction that the two sets of institutions are in essence interde- 
 pendent parts of a single system for dealing with the allied social 
 problems of delinquency and defectiveness. Accordingly, on scien- 
 tific, as well as on humanitarian and business grounds, this experi- 
 mentation in unified management has extended so far in some 
 parts of the country as to sweep together, not only all the correc- 
 tional institutions, but all of the charitable institutions as well, 
 under a single management. As early as 1877, the State of New 
 York placed all its distinctively penal institutions, including the 
 asylums for the criminal insane but not the reformatories, under 
 a single administrative control. The larger scheme, of placing 
 the charitable and correctional institutions together under a 
 single, unified management, was adopted by Wisconsin in 1881. 
 Up to the year 19 14 six states had adopted the plan of a central- 
 ized administration of all their correctional institutions and in 
 eleven others both the charitable and correctional institutions had 
 been brought together under a single management. 
 
 The hopes of the founders of the new system, like so many 
 hopes of men and women who have dealt with the correctional 
 problem, have not been realized. The goal has been found to 
 
68 Report of Prison Inquiry Commission. 
 
 be still far away. The reasons attributed for the failure of 
 the central board to realize the expectations of its advocates 
 have been many. A controversy has been going on for almost 
 a quarter of a century as to the relative merits of the local and 
 the central systems of management. 
 
 In behalf of the system of centralized control it is contended 
 that a central board, dealing with the correctional system as a 
 whole, would be able to secure a more economical and efficient 
 administration of the several institutions, both in making pur- 
 chases and in the operation of the industries, together with a 
 proper distribution and diversification of the industries, so 
 desirable from the point of view of the training of the inmates 
 for future usefulness as well as from that of the economic inter- 
 ests of the State; that it could set up standards in matters of 
 discipline, of education, of mental and physical examination and 
 treatment, and of general management, resulting in a general 
 leveling up of all the institutions to a common level of excel- 
 lence ; that it would, through its study of the comparative needs 
 of all the institutions, be enabled to submit to the legislature a 
 general budget, thus doing away with the present competition 
 of the several institutions for appropriations, and finally that, 
 by its study of the correctional system as a whole and through 
 the education of the public, it would be able to secure needed 
 reforms in penal legislation and in the administration of crim- 
 inal justice, as well as in the correctional system itself. 
 
 On the other hand, in behalf of the system of separate control, 
 it is argued that the local board, having to do with only a single 
 institution, is able to bring to its management a personal interest 
 and a degree of devotion which a central board, with its larger 
 responsibilities, could not be expected to develop ; that, as opposed 
 to the uniformity which a central board would almost certainly 
 aim to secure, the local board tends rather to a more flexible 
 system of management and to methods of experimentation, which 
 are so essential in the effort to perfect ways of dealing with the 
 varieties of human nature that are found in our correctional 
 
Administration of the Correctional System. 69 
 
 institutions, and, finally, that a central board, with its vast power 
 and patronage is more likely to attract that political influence 
 which has everywhere played such a disastrous part in the cor- 
 rectional system. 
 
 That there is force in these arguments, on both sides, cannot 
 be denied, and one who has carefully studied the operation of the 
 system of centralized control in the States that have experi- 
 mented with it will be the first to recognize that the system has 
 not met the expectations of those who advocated and devised it. 
 Nevertheless, the search for the ideal system of central control 
 goes on, because of the persistent belief that some greater degree 
 of unity in the policy and management of the correctional insti- 
 tutions must be attained if the problem is to be adequately dealt 
 with. 
 
 Your Commission believes that in this, as in all other schemes 
 of government, the attitude of the people toward the institutions 
 that may be set up will determine the character and development 
 of such institutions much more than any frame of government 
 that the wisdom of the legislature can devise. The aim should 
 be to institute a plan that will give scope for growth, that will 
 hold out a reasonable hope of the prompt correction of abuses, 
 and, what is perhaps of as great importance as anything else, that 
 will furnish the fullest opportunity for the continuous education 
 of the people of the State as to their responsibilities with respect 
 to the correctional institutions. 
 
 From its study of the problem the Commission has come to 
 the conclusion that a system may be devised which will give to 
 the State of New Jersey the benefits of a centralized control of 
 its correctional system as a whole, but which will still leave to 
 the separate institutions the advantages of the personal interest 
 and devotion which have been such important factors in their 
 development. In reaching this view the Commission has been 
 somewhat guided by the precedent of the State educational sys- 
 tem, in which a general authority over all public institutions of 
 
jo Report of Prison Inquiry Commission. 
 
 education has been successfully combined with local control in 
 the several counties of the State. This plan of organization 
 seems to recognize that in the problem of institutional manage- 
 ment we are striving for a solution in the same way that a solu- 
 tion has been sought for so many of the problems that have come 
 up in the workings of American democracy, in the effort to 
 secure the efficiency that goes with centralized authority without 
 sacrificing the local interest which, even at the cost of efficiency, 
 is one of the most valuable features of government. 
 
 The Commission is not blind to the possibility that the 
 power thus entrusted to a central board of control might be mis- 
 used from wrong motives or inexperience or carelessness. 
 What may be hoped to be accomplished by this plan is the crea- 
 tion of a system which the public sentiment of the state will 
 require to be kept free from partisan politics — as free as public 
 opinion to-day generally requires the schools to be kept. As 
 a means to this end, it is believed that, like the State Board of 
 Education, the proposed board of control should be composed of 
 public spirited citizens serving without compensation. As in 
 the case of the schools, also, it is hoped that more and more of the 
 men and women employed in the management of the correctional 
 institutions will be trained experts, guided and stimulated by the 
 board of non-experts, who will not interfere with technical man- 
 agement any more than Boards of Education do, but who, like 
 Boards of Education, will determine the larger matters of policy, 
 to the end that the expert managers of the institution should 
 always be responsible to the public opinion which is so essential 
 to the systetm of democratic government. 
 
 The plan that will be recommended to accomplish these 
 results comprehends only the five correctional institu- 
 tions surveyed by this Commission. But, as has been pointed 
 out above, the study of the problem has disclosed the exist- 
 ence, in New Jersey as well as in many other states, of a 
 strong sentiment in favor of a more sweeping measure of insti- 
 tutional control, which shall bring all the charitable as well as 
 
Administration of the Correctional System. 71 
 
 the correctional institutions under a single, unified management. 
 Applied to New Jersey this larger plan would demand the crea- 
 tion, of a central board of charities and correction, which should 
 exercise general authority over the management and development 
 of the entire charitable and correctional system of the State and 
 which would in the first instance take over the control of the five 
 correctional and the eight charitable institutions and, perhaps, of 
 the two distinct charitable agencies, the State Board of Chil- 
 dren's Guardians and the Commission for the Amelioration of 
 the Condition of the Blind, as well. 
 
 The additional advantages of this wider plan are (1) the 
 desirability of bringing under a single management two groups 
 of institutions whose problems are on the whole so closely cor- 
 related and of providing a comprehensive system for transferring 
 the insane, diseased and defective inmates of the correctional 
 institutions to the specialized charitable institutions available 
 for their several needs; (2) the opportunity of presenting 
 to the legislature from year to year the results of a com- 
 parative study of the needs of the charitable and correctional 
 institutions for funds for their maintenance and improvement, 
 thus doing away with the inequalities and injustices of the 
 present system of competition for appropriations; and (3) the 
 completion of the State use system of prison industries by placing 
 the productive as well as the purchasing capacities of the chari- 
 table institutions, along with those of the correctional institu- 
 tions, under a common control. 
 
 The dangers of the larger plan are substantially the same as 
 those pointed out above with reference to consolidating the man- 
 agement of the correctional institutions, accentuated by the fact 
 that the problems of management would be greatly increased 
 and multiplied in the larger unit and that the effect of mis- 
 management or of political control would be correspondingly 
 more disastrous. It may also be conceded that a central board, 
 responsible for the administration of such a large number of 
 institutions and agencies of different types, would be still farther 
 removed from the individual institutions, with their individual 
 
72 Report of Prison Inquiry Commission. 
 
 problems, and that the difficulty of finding an expert executive 
 to direct the administration of the entire system would be 
 greatly enhanced. 
 
 Your Commission has considered all the foregoing questions 
 with great care. Its conclusions and recommendations in this 
 respect, as in respect to other matters covered in this report, are 
 embodied below. 
 
 H. Conclusions and Recommendations. 
 (a) Conclusions. 
 
 1. That the correctional system of New Jersey, with a State 
 Prison, supplemented by two reformatories, for men and women, 
 and two State Homes, for boys and girls respectively, and with 
 some provision ' for the specialized care of insane and mentally 
 defective delinquents, is, upon the whole, fairly abreast of the 
 penal systems of other progressive States, but that it is still 
 seriously defective in failing to make adequate provision for the 
 identification and proper care of the mentally afflicted and irre- 
 sponsible members of its delinquent classes. 
 
 2. That the lack of a centralized authority, endowed with suffi- 
 cient administrative powers to secure the coordination and more 
 efficient management of the several correctional institutions and 
 agencies of the State, is the most serious defect of the existing 
 system. 
 
 3. That the various systems of prison labor, heretofore and at 
 present employed in the correctional institutions of the State, 
 have, excepting in the Rahway Reformatory, proved a disastrous 
 failure, and that the failure of the State-use system, authorized 
 by the laws of 1884, 191 1 and 1914, to attain any reasonable 
 measure of success is due primarily to the failure of the legisla- 
 ture to invest the Prison Labor Commission with adequate au- 
 thority and to make sufficient appropriations for equipment and 
 working capital. 
 
Conclusions and Recommendations. 73 
 
 4. That the indeterminate sentence, and the parole system, 
 instituted as an adjunct thereto, have proved largely ineffective, 
 owing ( 1 ) to the multiplicity of authorities vested with the parol- 
 ing power, (2) to the short periods of detention of inmates 
 in the Reformatories and State Homes, and (3) to the fact that 
 a wholly inadequate force of parole officers is provided to exer- 
 cise the necessary supervision over delinquents at large on parole. 
 
 5. That the education afforded the inmates in the correctional 
 institutions of the State is wholly inadequate, and that where, 
 as at Rahway and the other distinctively reformatory institu- 
 tions, a competent system of elementary education is adminis- 
 tered, no systematized industrial or vocational training is even 
 attempted, whereas, at the State Prison, hardly any education of 
 any kind is supplied. 
 
 6. That the method of discipline in force until quite recently in 
 the State Prison has been marked by a general attitude of 
 severity toward the inmates and an indifference as to the condi- 
 tions under which they have been required to live, a condition 
 resulting in the infliction of cruel punishments and not infrequent 
 affrays; that the exact degree of criminal responsibility for the 
 outcome of such affrays can only with difficulty be ascertained 
 in criminal proceedings; that irrespective of whether or no the 
 acts of individual keepers involved in such affrays in the past 
 have or have not gone beyond the proper bounds of self-defense 
 as permitted by the laws of the State, there can be no doubt in the 
 mind of anyone who has carefully examined the recent history 
 of the prison that many of the men who have passed years of 
 their lives in controlling prisoners under the repressive condi- 
 tions that have existed at Trenton, constantly conscious of the 
 necessity of self-defense under the conditions which they were 
 themselves helping to create, have by their very training become 
 temperamentally unfitted to serve in the important capacity of a 
 prison keeper; that it is one of the first duties of a new manage- 
 ment of the prison to carefully consider the prison personnel and 
 by a proper exercise of the procedure of the Civil Service Law to 
 
74 Report of Prison Inquiry Commission. 
 
 provide for the discharge or retirement of those who are upon 
 examination found unfit for the performance of their duties. 
 
 7. That, notwithstanding recent noteworthy improvements, 
 the State Prison is still not sufficiently reformatory in character, 
 and that the present crowded site in the city of Trenton and the 
 present buildings and equipment are wholly inadequate to furnish 
 the proper environment and facilities for a reformatory institu- 
 tion. 
 
 8. That, in view of the facts stated in the last preceding para- 
 graph, it is undesirable to expend any further considerable 
 sums in the erection of additional buildings on the present site of 
 the State Prison or in the reconstruction of the old buildings 
 now standing. 
 
 9. That labor conditions in the State Prison are of a most un- 
 satisfactory character, both from the financial point of view and 
 from that of furnishing useful employment to the inmates, and 
 that the remaining contracts, in which inmates are still employed, 
 are an obstacle rather than an aid to the speedy and proper solu- 
 tion of the problem. 
 
 (b) Recommendations. 
 
 These conclusions have led the Commission to make the fol- 
 lowing recommendations, which are herewith submitted for such 
 action as to the Governor and Legislature may seem proper : 
 
 1. The Commission recommends that the present legislature 
 provide for the institution of a central board of control, charged 
 with the general administration of all the correctional institu- 
 tions of the State, and for a local board of management for 
 each of such institutions; that such central board shall be com- 
 posed of the Governor and of eight members to be appointed by 
 him, with the advice and consent of the senate, who shall receive 
 no compensation for their services, and shall include not less 
 than two women, such central board also to take over the powers 
 
Conclusions and Recommendations. 75 
 
 and functions of the Prison Labor Commission, and to exercise 
 a general power of supervision and visitation over all local places 
 of detention of those accused or convicted of crime; and that 
 such local boards, to consist of five members each, shall retain 
 the parole power now exercised by the separate boards of con- 
 trol and shall, subject to the general authority of the central 
 board, be vested with powers of management of the institutions 
 to which they are respectively attached. It is further recom- 
 mended that such central board shall exercise its powers of 
 administration and the supervisory powers which may be vested 
 in it, through an expert Commissioner of Correction, to be 
 appointed by it and who shall be removable by it in its discre- 
 tion, and that such Commissioner shall have the power of 
 appointing, subject to the approval of the central board, such 
 expert deputies, or bureau chiefs, not exceeding six in number, 
 as may be authorized, to assist him in the administration of his 
 office, as follows : 
 
 (1) A medical director; 
 
 (2) A dietician; 
 
 (3) A director of education; 
 
 (4) A director of industries; 
 
 (5) A statistician, and 
 
 (6) A chief parole officer. 
 
 In order that the divided control here suggested shall not result 
 in friction or in a paralysis of authority, it is recommended that 
 the local boards of management shall be appointed by the central 
 board, and that the central board shall have authority from time 
 to time to make general rules and regulations pursuant to which 
 the local boards shall manage their respective institutions. 
 
 2. The Commission conceives that the authority conferred on 
 it by the legislature does not extend to the making of any recom- 
 mendation affecting the management of the charitable institu- 
 tions of the State, which it has not investigated, and which were 
 specifically referred to a distinct commission charged with that 
 
76 Report of Prison Inquiry Commission. 
 
 duty. But if the legislature should, in its wisdom, decide to 
 enact a more comprehensive measure, putting the correctional 
 and charitable institutions of the State together under a single 
 board of control, then this Commission would respectfully 
 recommend that the plan submitted above for the control and 
 management of the correctional institutions be extended so as 
 to include the charitable institutions and agencies as well. 
 
 3. The Commission recommends that the legislature repeal 
 the act of April 16, 1891, vesting the power of parole in the 
 Board of Pardons. 
 
 4. The Commission recommends that the legislature repeal 
 the act of March 16, 1914, enlarging the power of the courts of 
 criminal jurisdiction to recall for resentence convicts previously 
 sentenced by them to terms of imprisonment. 
 
 5. The Commission recommends that the present Legis- 
 lature adopt a concurrent resolution providing for the submission 
 to the people of the State of an amendment to the constitution 
 striking out the present constitutional provision with respect to 
 the Keeper of the State Prison. 
 
 6. The Commission recommends that the present Legis- 
 lature enact appropriate legislation simplifying the procedure for 
 the transfer to a hospital for the insane, or to a home for the 
 feeble-minded or to the Village for Epileptics, of insane, imbecile 
 and epileptic inmates of the penal, correctional and reformatory 
 institutions of the State. 
 
 7. The Commission recommends that the reconstruction of 
 wing 3 of the State Prison, for which provision was made by 
 the last legislature, for the construction of a dining hall and 
 assembly room, be discontinued and the funds appropriated for 
 that purpose be returned to the State treasury. 
 
 8. The Commission recommends that the existing contracts 
 in the State Prison be terminated not later than July 1, 1918. 
 
Conclusions and Recommendations. yy 
 
 In the foregoing recommendations the Commission has con- 
 fined itself to matters which seemed to it to require immediate 
 action and particularly to such as were essential to the creation 
 of a new and better system of administration for the correctional 
 institutions of the State. The study whose results are embodied 
 in this report have, however, disclosed many other things which, 
 in the opinion of the Commission, require correction. But it 
 has seemed to the Commission that these may well await the 
 determination and recommendation of a central board, such as 
 has been recommended above. They will thus receive the fuller 
 consideration which such a board, aided by its expert advisers, 
 after full consultation with judges and others possessing a wide 
 experience of penal administration, can give to the problem. 
 
 At the present time, when the great world war is making such 
 unprecedented demands upon the resources of the country, it 
 seems to the Commission especially undesirable to make specific 
 recommendations requiring large outlays of public money. It 
 is the hope of the Commission that by the institution of a new 
 system, such as is here proposed, a substantial step forward 
 may be taken and that that step foward may be retained. 
 
 Mr. John P. Murray, of the Commission, signs this report with 
 the reservation that, while he approves of the creation of a central 
 board of control for all the State correctional institutions, he 
 is of the opinion that the proposed Commissioner of Correction, 
 acting under the general guidance of such central board, should 
 be responsible for the management of the institutions and that 
 there should be no local boards for the separate institutions. 
 
 Respectfully submitted, 
 
Exhibit A. 
 
 PRELIMINARY REPORT 
 
 OF THE 
 
 PRISON INQUIRY COMMISSION 
 
Exhibit A — Preliminary Report of Commission. 81 
 
 PRELIMINARY REPORT OF THE PRISON INQUIRY 
 
 COMMISSION. 
 
 State House, Trenton, N. J., February 5, 1917. 
 To His Excellency, Walter E. Edge, Governor of New Jersey: 
 
 Sir — On January 22, 1917, the Honorable Senate and Gen- 
 eral Assembly of the State of New Jersey adopted Joint Reso- 
 lution No. 1, empowering you to appoint a Commission of five 
 persons, and providing that they 
 
 "separately, or in conjunction with the Governor, shall 
 investigate into the conditions of the penal, reformatory 
 and correctional institutions of this State, and also into 
 what is known as the 'State Use System' and the em- 
 ployment of prisoners on roads, prison farms or in other 
 capacities. The term 'penal, reformatory and correc- 
 tional institutions of this State' shall not include any of 
 the State hospitals, tuberculosis sanatoriums, home for 
 feeble-minded women or any other charitable institution 
 of this State, but it shall apply solely to those which are 
 penal and correctional in their nature. The Commission 
 shall report to the present session of the Legislature the 
 result of its research, and with such recommendations as 
 it may deem advisable." 
 
 Pursuant to said Joint Resolution No. 1, on January 26th 
 you appointed the undersigned to serve as members of the New 
 Jersey Prison Inquiry Commission. The Commission has the 
 honor to present herewith to you, and through you to the Hon- 
 orable Senate and House of Assembly, the following preliminary 
 report : 
 
 The Commission met with the Governor at the State House 
 on Saturday, January 27th, at 10:30 o'clock in the forenoon, 
 
82 Report of Prison Inquiry Commission. 
 
 and immediately organized by the selection of William B. Dick- 
 son as Chairman, and the appointment of Nelson B. Gaskill as 
 counsel. In the interest of economy, the Governor offered the 
 services of one of his secretaries, Mr. Richard A. Porter, to act 
 as Secretary of the Commission. 
 
 The Commission understands that the penal, reformatory and 
 correctional institutions referred to in the said Joint Resolution 
 include the following, to wit : 
 
 New Jersey State Prison, involving State Prison at 
 Trenton, the Prison Farm at Leesburg, and the 
 various road camps; 
 
 State Reformatory, Rahway; 
 
 State Home for Girls, Trenton; 
 
 Reformatory for Women, Clinton; 
 
 State Home for Boys, Jamesburg. 
 
 Immediately after organization, all the members of the Com- 
 mission, accompanied by the Governor, visited the State Prison 
 at Trenton, spending most of the remainder of the day in an 
 inspection thereof and in questioning some of the officials of 
 the prison and some of the prisoners. 
 
 On Wednesday, January 31st, the Commission held a public 
 hearing in the State House at Trenton at which the Governor 
 was present. At this hearing the following witnesses were 
 sworn and examined : 
 
 Morning session: Jacob Shurts, John F. Clark. 
 
 Afternoon session: Walter M. Dear, Cook Conkling, Charles 
 F. Stevens, Alfred K. Gaskill, Dr. Jacob G. Lipman, Edward 
 E. Reed. 
 
 Evening session: Richard P. Hughes, Dr. Martin W. Red- 
 dan, Joseph P. McCormack, Dr. Josiah W. Crane. 
 
 On Friday, February 2d, the Commission held another public 
 hearing at the State House in Trenton, at which the Governor 
 
Exhibit A — Preliminary Report of Commission. 83 
 
 was also present, and at which the following witnesses were 
 sworn and examined: 
 
 Morning session: Patrick Quinlan, Frederick Boyd, George 
 Drew. 
 
 Afternoon session: John J. Nevin, J. H. Sutton, W. S. Ren- 
 dell, D. M. Sawyer, Dr. Frank Moore, Dr. Henry A. Cotton, 
 E. R. Johnstone, C. L. Stonaker. Dr. Henry H. Goddard, Alvah 
 L. Alpaugh. 
 
 In addition to the public hearings, the Commission has made 
 such examination as the time would permit of the recent official 
 reports of these several institutions and of the Department of 
 Charities and Corrections, relating thereto. 
 
 The Commission has as yet had no opportunity of personally 
 inspecting the Prison Farm at Leesburg or any of the three road 
 camps at which State prisoners are used, nor has it made any 
 personal examination of the State Reformatory at Rahway, the 
 State Home for Girls at Trenton, the Reformatory for Women 
 at Clinton, or the State Home for Boys at Jamesburg. 
 
 It has seemed to the Commission highly desirable that it 
 should make a preliminary report to the Honorable Senate and 
 House of Assembly at the earliest possible moment to the end 
 that those defects and abuses, which it has been determined da 
 exist in the State Prison at Trenton, and which require the 
 action of the Legislature for their correction, may be presented! 
 to the Legislature in time for consideration at the -present ses- 
 sion. 
 
 From the testimony taken at the public hearings, from the 
 reports of the various public officials and from our personal 
 observation, we find the following facts with reference to the 
 State Prison at Trenton: 
 
 (1) That when a prisoner is received at the State Prison it 
 is customary to place him in quarantine for fourteen days, dur- 
 ing which time he is locked in his cell with no opportunity what- 
 ever for physical exercise. 
 
84 Report of Prison Inquiry Commission. 
 
 (2) That the medical examination of prisoners and the facili- 
 ties of the prison are not adequate to secure a proper segrega- 
 tion of those prisoners who have infectious or contagious dis- 
 eases, nor to determine whether they should properly be detained 
 in the State Prison or transferred elsewhere for special 
 treatment. 
 
 (3) That the facilities for physical exercise in the open air 
 are entirely inadequate. 
 
 (4) That the law that not more than one prisoner shall be 
 lodged in each cell has not been observed 
 
 (5) That the food served to the prisoners is not satisfactorily 
 cooked and is improperly served to the prisoners in cells and 
 cell corridors ; that there is no dining hall or room large enough 
 for the service of meals. 
 
 (6) That the facilities for a system of education in the prison, 
 required by law, are entirely inadequate. 
 
 (7) That prisoners have at times been punished by lodgment 
 in dungeons and by other methods under intolerable conditions. 
 
 (8) That no method has been established by the prison 
 authorities to create a system of grading and rewards based 
 upon conduct or achievement, this absence of substantial benefits 
 making it impossible to administer punishment by the deprivation 
 of benefits. 
 
 (9) The law regulating contract labor in the State Prison is 
 violated in that more than one hundred prisoners are assigned 
 to one contract, and the products of prison labor are not marked, 
 as required by law. 
 
 (10) That under existing conditions a prisoner committed to 
 the State Prison suffering from tuberculosis, upon a sentence for 
 two years or more, is practically sentenced to death by disease. 
 
 (11) That prisoners at the Leesburg Farm and the road 
 camps, by reason of absence from the State Prison, lose their 
 
Exhibit A — Preliminary Report of Commission. 85 
 
 opportunity to appear in person before the parole authority, and 
 are likewise deprived of the privilege of receiving visitors, ordi- 
 narily accorded to them at the State Prison. 
 
 (12) That by reason of the fact that the Board of Prison 
 Inspectors meet once a month for the consideration of parole 
 applications, and consider in advance only those cases which 
 will fall within the week following the meeting, prisoners whose 
 minimum sentence expires within the next three weeks are com- 
 pelled to an extension of the minimum sentence up to a period of 
 three weeks, before they have an opportunity to be heard. 
 
 Since this report is made in advance of the receipt by the 
 Commission of the results of an investigation made by the State 
 Board of Health into the sanitary and hygienic conditions exist- 
 ing in the State Prison, the Commission makes no comment upon 
 this important matter at this time. 
 
 It is hardly possible in this preliminary report to accurately 
 determine the responsibility for conditions, or to appraise with 
 fairness how much is inherent in the present type of prison con- 
 struction, how much is due to immediate prison management, 
 and how much to divide responsibility in supervision of that 
 management. Obviously, it is important that pending a com- 
 plete inquiry into the past, such conditions as may be corrected 
 by structural changes in the present prison and improvements 
 in management should be corrected immediately. 
 
 We therefore recommend : 
 
 First: That there should be an immediate physical and mental 
 examination of all prisoners to the end that a classification may 
 be made showing those who are normal and those who are 
 abnormal or subnormal, and showing also those who are afflicted 
 with a contagious or infectious disease. This examination 
 should be made with modern expert tests, to the end that tuber- 
 culosis in its incipient stage may be detected and that syphilitic 
 prisoners may be known even though that disease has not reached 
 
36 Report of Prison Inquiry Commission. 
 
 its aggravated stage. The examination as to mental capacity- 
 should be conducted by modern psychiatric experts. To make 
 these examinations will require additional outside medical ser- 
 vice and the provision of the requisite apparatus. We recom- 
 mend that the Legislature appropriate for this purpose the sum 
 of $5,000. The result of this examination will be used as the 
 basis of future recommendation. 
 
 Second: That there should be a segregation of the prisoners 
 as promptly as possible, based upon the results disclosed by such 
 examination. The regulations with reference to quarantining 
 prisoners should be altered in such respect as to prevent incar- 
 ceration of a prisoner in confinement without opportunity for 
 exercise for fourteen days merely because he is in quarantine. 
 
 Third: That the vacant ground between the prison building 
 and the canal, lying just south of the Warden's house, be utilized 
 as a field for physical exercise in the open air ; that a reinforced 
 concrete wall be placed about such ground, utilizing prisoners in 
 the labor connected with the erection thereof; and that there be 
 appropriated for the materials and supervision in connection 
 with the building of said wall and the fitting of said field the sum 
 of $5, 000. 
 
 Fourth: That Wing 3, which is now unused, be changed into 
 a dining hall, and that a story be added to furnish an assembly 
 room, the present chapel being entirely inadequate, to be used 
 either for religious services, for school purposes or for such 
 other purposes for which an assembly room may be required; 
 that the work on this alteration be done by the labor of the pris- 
 oners ; and that to cover materials and supervision an appropria- 
 tion of $30,000 be made. 
 
 Fifth: That a prison school system be at once organized with 
 the advice of the State Board of Education, as required by law. 
 So far as possible prisoners themselves should be used as teach- 
 ers in this school and emphasis should be laid upon teaching for- 
 eigners the English language. For the purpose of improving 
 the school facilities, including the acquisition of textbooks, the 
 sum of $1,500 should be appropriated. 
 
Exhibit A — Preliminary Report of Commission. 87 
 
 Sixth: That those men who are physically able and whose 
 previous record and conduct in prison warrant the transfer 
 should be placed at work on the Prison Farm at Leesburg or in 
 one of the road camps, provided there are facilities at the farm 
 or in the road camps to receive them. To the end that the facili- 
 ties for outdoor work be increased as soon as possible, an appro- 
 priation of $1,500 should be made for increase of road camp 
 equipment. 
 
 Seventh: The dungeons should be bricked up, and the law 
 with reference to the number of prisoners in a cell should be 
 observed. 
 
 Eighth: So soon as possible a careful system of arranging 
 the prisoners in grades based upon their conduct and their work 
 should be devised. This system, in our opinion, should carry 
 with it rewards, the deprivation of which should be an essential 
 element in the administration of punishment. It would be ad- 
 vantageous if transfers to the Prison Farm and the road camps 
 should be made a reward for conduct within the prison walls. 
 In order to accomplish this the work on the farm and the roads 
 should be accompanied by privileges, including perhaps the pay- 
 ment of a better wage than that in the prison, so as to make it 
 in a proper sense a promotion. 
 
 Ninth: That a covered way to the bath house be built so as 
 to permit the use of the bath house at all times during the year. 
 We recommend that the work on this construction be done by 
 the labor of the prisoners, and that to cover materials and super- 
 vision, an appropriation of $1,000 be made. 
 
 It will be noted that the foregoing recommendations call for 
 appropriations in an aggregate amount of $44,000. The Com- 
 mission has sought the advice of experts, including the State 
 Architect, in estimating the amount of money required to carry 
 out those recommendations which call for appropriations. At 
 the same time it must be recognized that in any work where a 
 
88 Report of Prison Inquiry Commission. 
 
 large element is the labor of prisoners there is an opportunity 
 for considerable difference in estimates of cost If practicable, 
 we recommend the appropriation of a lump amount for the pur- 
 pose of improving conditions in the State Prison at Trenton, the 
 money to be expended under the joint direction of the Governor, 
 the Board of Prison Inspectors and the Chairman of this Com- 
 mission. 
 
 We have considered the question of removing women from 
 the State Prison to the Reformatory for Women at Clinton, but 
 are not yet prepared to make any recommendations with refer- 
 ence thereto. It would be desirable in many ways if there could 
 be accorded to the women in the State Prison that opportunity 
 for reclamation which has been so successfully applied in the 
 management of the Reformatory at Clinton. The introduction, 
 however, of these women to the Clinton Farm cannot possibly be 
 made until adequate provision is made at the farm to receive 
 them. We have conferred with some members of the Board of 
 Clinton Farm, and they have expressed a willingness, if proper 
 provision be made by the Legislature, to undertake the work. 
 We should hope to make a definite recommendation with refer- 
 ence to this problem as a result of further study. 
 
 The Joint Resolution specifically calls for an investigation of 
 the "State Use System" and the employment of prisoners on 
 roads, prison farms or in any other capacities. Briefly, the 
 situation is as follows : 
 
 Prior to 191 1 the governing board of the State Prison was 
 permitted to make contracts with private contractors for the use 
 of prison labor, the contractor paying an agreed price for a unit 
 of labor time and furnishing the material and machines; the 
 State furnishing space within the prison walls in which the work 
 was carried on and also light and power, and also retaining the 
 discipline over the prisoners. In 191 1 the Legislature passed a 
 law abolishing this system and establishing in its place what is 
 known as the "State Use System." By this was meant the pris- 
 oner under direct prison management should work upon goods 
 
Exhibit A — Preliminary Report of Commission. 89 
 
 which should be used by the inmates of the institution itself or 
 the inmates of other institutions, or upon the public work of the 
 State. The Legislature, however, provided in 19 13 that the 
 existing contracts could be continued until the prisoners could be 
 found employment under the State Use System. From that 
 time the five contracts now in force have been continued, and 
 approximately five hundred men are now employed under the 
 contract system with the right of the State to terminate the con- 
 tracts at will. At the present time there are employed under the 
 State Use System about one hundred and twelve prisoners at the 
 Leesburg Farm, about forty prisoners at Road Camp No. 1, 
 about forty prisoners at Road Camp No. 2, and about twenty- 
 three prisoners at Road Camp No. 3. Within the prison walls, 
 however, there are employed on State Use work at the present 
 time only five prisoners. These five men are employed in the 
 knitting plant, which is running short-handed because of a sur- 
 plus of finished material on hand. Its full capacity is about 
 thirty-five men. 
 
 The following table is presented by the present Warden, as 
 showing the present prison population and its arrangement for 
 occupational purposes : 
 
 Required for operation of the Prison, 296 
 
 Not available for physical work on account of mental or 
 
 physical incapacity 90 
 
 Not available for outside work on account of character or 
 
 criminal record S 20 
 
 Nurses and sick in hospital 35 
 
 Women, 16 
 
 Now available for outside work 288 
 
 Total in Prison 949 
 
 Total now in Road Camps and on Prison Farm, . . 215 
 
 Grand total, 1,164 
 
 We venture no opinion at this time upon what is confessedly 
 the almost complete failure of the State Use System within the 
 Trenton prison walls. The careful analysis of all those lines of 
 
90 Report of Prison Inquiry Commission. 
 
 work upon which prison labor could be utilized for the State 
 will entail a complete survey of not only the road situation in 
 New Jersey and the reclamation of swamp lands, but also the 
 inter-relation of the various institutions of the State, the relation 
 of prison labor to county and other local institutions, including 
 the public schools. An inquiry accurate enough to warrant legis- 
 lative action cannot, in our opinion, be completed before the time 
 when the present session of the Legislature would normally ter- 
 minate. All the evidence presented to us is to the effect that it 
 would be detrimental to the welfare of the prisoners should con- 
 tract labor be terminated, until provision is made for the employ- 
 ment of the men so released. The testimony of the Farm Super- 
 intendent is to the effect that about three hundred men can be 
 utilized to advantage on the Prison Farm at Leesburg, where 
 one hundred and twelve men are now employed and additional 
 accommodations for about one hundred more are nearing com- 
 pletion. The additional accommodations required to provide for 
 the full efficient complement on this farm should be provided as 
 rapidly as possible, and as soon as the accommodations now 
 under construction are completed the additional number of men 
 should be detailed to the Prison Farm and contract labor in the 
 State Prison immediately diminished to a proportionate extent. 
 About one hundred additional men can be accommodated in road 
 work by the provision of additional facilities in the road camps 
 which, the Commission is informed, can be furnished within ten 
 days or two weeks after the requisite appropriation of $1,500 is 
 provided. The use of prison labor upon the various works sug- 
 gested by this report in and about the State Prison will occupy 
 the labor of a considerable number of prisoners, and this work, 
 together with the possibilities of outside work on the farm and 
 road camps, should be given immediate preference over contract 
 work within the State Prison. In the meantime, the Prison 
 Labor Commission and the Board of Prison Inspectors should 
 diligently co-operate to select and install, with the funds avail- 
 able, additional branches of State Use work, in order that per- 
 
Exhibit A — Preliminary Report of Commission. 91 
 
 manent provision for prison labor, so far as possible, be ready to 
 absorb the time and labor of those individuals who cannot be 
 sent to the farm or the road camps or used in the operation of 
 the prison system. The installation of a plant for the manufac- 
 ture of automobile tags has been suggested, but the determina- 
 tion of this or any other State Use work seems to be now pecu- 
 liarly the function of the Prison Labor Commission. 
 
 The law and the practice with reference to the pardoning and 
 paroling of prisoners also demands careful study and attention. 
 With the introduction into the laws of New Jersey in 191 1 of 
 the indeterminate sentence, it became possible for the Board of 
 Inspectors of the prison to release prisoners upon parole, appar- 
 ently no adequate provision being made at that time for a suffi- 
 cient number of parole officers to enable them effectually to exer- 
 cise their powers. At the same time the pardoning power re- 
 mains with the Court of Pardons. 
 
 Finally, your Commission feels that the fundamental problem 
 in connection with the prison and other penal and correctional 
 institutions is to determine the point of view which the State 
 and its agents are to assume toward those confined in correc- 
 tional institutions. The first consideration in any system of 
 penology would seem to be clearly the protection of society, but 
 protection of society means not only the temporary withdrawal 
 from society of those who have broken its laws, but the prepara- 
 tion, so far as possible, of the withdrawn members for a position 
 in society when they return to it. To this end every practical 
 measure should be adopted to insure the maintenance of high 
 standards of health and physical development. Prisoners who 
 are diseased should be given a chance for restoration to health. 
 The well should not have their health hazarded by being forced 
 to submit to the danger of contagious or infectious disease. So 
 far as possible systematic school and vocational courses should 
 be conducted, and wherever practical prisoners should be trained 
 in occupations which will enable them to become self-supporting 
 on their discharge. While the State should be relieved as far 
 
92 Report of Prison Inquiry Commission. 
 
 as practicable from the burden of maintaining the prisoners, and 
 to this end the profitable employment of the prisoner is desirable, 
 we believe that greater stress should be placed upon the future 
 advantage to society of having the prisoner leave the institution 
 strong in health, capacity and character than upon any tempo- 
 rary profit which can be secured from the use of his time while 
 in prison. The improvement of the prisoner in character and 
 capacity depends not alone upon the physical conditions that sur- 
 round him, but primarily upon his own will to improve. The 
 creation or inducement of this will to improve must always be 
 one of the most important tasks of the Warden and his helpers. 
 It involves a co-operation in aim between the prison authorities 
 and the prisoners. 
 
 While it is not difficult to lay down these general principles it 
 is most difficult to apply them in practice to a number of institu- 
 tions, all of which have existing plants, and managements already 
 provided by law. To recommend changes in method of manage- 
 ment without the most careful examination of the existing laws, 
 of the conditions which brought about those laws, of the reforms 
 desired to be effected, and the reasons the expected reforms have 
 not been attained, would be to invite disaster. We, therefore, 
 recommend that if the Honorable Senate and House of Assem- 
 bly desire the Commission to make a comprehensive report upon 
 the penal and correctional institutions of the State, that the Com- 
 mission be asked to report on or before the first day of January, 
 19 18, that its powers be continued until that date, and that an 
 appropriation be made in such amount as the Honorable Senate 
 and House of Assembly deem proper to enable the Commission 
 to properly carry on its work. 
 
 For the guidance of the Honorable Senate and House of As- 
 sembly, the Commission would state that its expenses to date 
 have been $500, being the amount paid for counsel fees, the ex- 
 pense of a Secretary being saved by the Governor's kindness in 
 permitting the Commission to use his assistant secretary, and the 
 
Exhibit A — Preliminary Report of Commission. 93 
 
 personal expenses of the members of the Commission in their 
 trips to Trenton having been borne by themselves. 
 
 Of the original appropriation of $3,000, there is, therefore, un- 
 expended the sum of $2,500. 
 
 Respectfully submitted, 
 
 WILLIAM B. DICKSON, 
 SEYMOUR L. CROMWELL, 
 HENRY F. HILEERS, 
 DWIGHT W. MORROW, 
 JOHN P. MURRAY. 
 
Exhibit B. 
 
 STATISTICS 
 
 RELATING TO THE 
 
 COUNTY JAILS AND WORKHOUSES 
 
 OF 
 
 NEW JERSEY 
 
Exhibit B — Statistics of Jails and Workhouses. 97 
 
 Statistics Relating to the County Jails and Work- 
 houses oe New Jersey. 
 
 The following tables of statistics were gathered in connection 
 with an investigation of the jails, workhouses and other local 
 places of detention in the State of New Jersey which was made 
 between September 15 and October 16, 191 7. The statistical 
 information was obtained partly from personal investigation of 
 the records of the several institutions, supplemented by inquiry 
 from individual inmates, and partly from data supplied by the 
 sheriffs of the several counties and the wardens of the institu- 
 tions. The utmost care has been taken to insure accuracy in the 
 collation of the information so obtained. It is hoped that such 
 unavoidable errors as have crept into the tables will not be such 
 as materially to affect the conclusions to be drawn from them. 
 
 The tables show the flux of the jail and workhouse popula- 
 tion during the five years of 1912 to 191 6, and give with sub- 
 stantial accuracy and completeness the comparative number of 
 those serving time and of court prisoners awaiting trial or the 
 final disposition of their cases. But as the records of the dif- 
 ferent institutions vary considerably as to the data recorded, in 
 such matters as the age or terms of sentence of those confined 
 and, in some instances, even as to sex and cause of detention, 
 care must be exercised in comparing totals of columns in which 
 the number of counties reporting is not the same. 
 
98 Report of Prison Inquiry Commission. 
 
 TABLE OF CONTENTS. 
 
 Table I. Total number of prisoners confined in all county 
 
 penal institutions at time of visit, classified by sex, 
 cause of detention, age, term of sentence and offense. 
 
 II. Total number of convicted prisoners confined in all 
 county penal institutions at time of visit, classified by 
 sex, cause of detention, age, term of sentence and 
 offense. 
 
 III. Total number of female prisoners confined in all 
 county penal institutions at time of visit, classified by 
 cause of detention, age, term of sentence and offense. 
 
 IV. Total number of prisoners admitted during the five- 
 year period 1912 to 1916 inclusive, in all county penal 
 institutions, classified by sex, cause of detention, age, 
 term of sentence and offense. 
 
 V. Average number of all prisoners admitted annually 
 during the five-year period 1912 to 1916 inclusive, in 
 all county penal institutions, classified by sex, cause of 
 detention, age, term of sentence and offense. 
 
 VI. Total number of prisoners admitted to all county 
 penal institutions during the year 1912, classified by 
 sex, cause of detention, age, term of sentence and 
 offense. 
 
 VII. Total number of prisoners admitted to all county 
 penal institutions during the year 1913, classified by 
 sex, cause of detention, age, term of sentence and 
 offense. 
 
 VIII. Total number of prisoners admitted to all county 
 penal institutions during the year 1914, classified by 
 sex, cause of detention, age, term of sentence and 
 offense. 
 
 IX. Total number of prisoners admitted to all county 
 penal institutions during the year 1915, classified by 
 sex, cause of detention, age, term of sentence and 
 offense. 
 
 X. Total number of prisoners admitted to all county 
 penal institutions during the year 1916, classified by 
 sex, cause of detention, age, term of sentence and 
 offense. 
 
Bxhibit B — Statistics of Jails and Workhouses. 99 
 
 Table XL Total number of female prisoners admitted during 
 the five-year period 1912 to 1916 inclusive, in all county 
 penal institutions, classified by cause of detention, age, 
 term of sentence and offense. 
 
 XII. Average number of all female prisoners admitted 
 annually during the five-year period 1912 to 1916 inclu- 
 sive, in all county penal institutions, classified by cause 
 of detention, age, term of sentence and offense. 
 
 XIII. Total number of convicted prisoners admitted during 
 the five-year period 1912 to 1916 inclusive, in all county 
 penal institutions, classified by sex, cause of detention, 
 age, term of sentence and offense. 
 
 XIV. Average number of convicted prisoners admitted an- 
 nually during the five-year period 1912 to 1916 inclu- 
 sive, in all county penal institutions, classified by sex, 
 cause of detention, age, term of sentence and offense. 
 
 XV. Capacity of county jails and workhouses. 
 
New Jersey— County Jails and Workhouses. TABLE I. 
 
 Total Number of Prisoners Confined in all County Penal Institutions at Time of Visit, 
 Classified by Sex, Cause of Detention, Age, Term and Offense. 
 
 
 INSTITUTION 
 
 DATE VISITED 
 
 SEX 
 
 CAUSE OF DETENTION 
 
 AGE 
 
 TEEM OR SENTENCE 
 
 CRIME OR OFFENSE 
 
 INSANE 
 
 COUNTY 
 
 
 a 
 
 (a 
 
 bo 
 
 if 
 
 M 
 
 £8 
 to 
 
 a 
 
 1) 
 co 
 
 CO 
 
 l> 
 
 a 
 % 
 
 5 
 
 6 
 
 CO 
 
 00 
 
 . > 
 
 w c 
 O 
 
 CO 
 U 
 
 a 
 
 o 
 
 O 
 CO 
 
 o 
 
 CO 
 
 o 
 
 0> 
 
 > 
 
 o 
 
 •0 
 
 a 
 a 
 
 a 
 
 o 
 a 
 
 a 
 O 
 
 ■a 
 
 S" 
 ea © 
 
 ■ ■a 
 
 2° 
 
 S3 
 
 6 
 
 a 
 
 CO 
 
 o 
 
 d 
 
 5 
 
 o 
 
 CD 
 
 •a 
 
 o 
 
 o 
 a 
 
 5 
 
 a 
 
 « o 
 
 O CP 
 
 n 
 
 ci 
 
 CO 
 
 ■§• 
 
 f, eg 
 •«fi 
 
 U 
 
 
 
 
 Oct. 8,1917 
 
 Sep. 29, " 
 
 Oct. 6, " 
 
 " 10, " '.'.'■'■'.'. 
 
 " 9, " 
 
 " 4, " 
 
 " 2, " 
 
 " 11, " 
 
 Sep. 26, " 
 
 " 19, " 
 
 " 21, " 
 
 Oct. 1, " 
 
 Sep. 18, " 
 
 Oct. 3, " 
 
 " 5, " 
 
 Sep. 27, " 
 
 Oct. 16, " 
 
 62 
 53 
 84 
 81 
 7 
 23 
 
 169 
 29 
 9 
 
 152 
 4 
 98 
 79 
 85 
 47 
 10 
 
 124 
 33 
 16 
 18 
 
 76 
 26 
 
 5 
 3 
 4 
 8 
 3 
 1 
 
 17 
 
 14 
 
 1 
 
 21 
 
 9 
 6 
 
 19 
 3 
 1 
 
 19 
 
 5 
 
 28 
 30 
 
 7 
 46 
 
 6 
 
 4 
 129 
 120 
 
 5 
 114 
 
 2 
 84 
 38 
 57 
 26 
 
 7 
 86 
 11 
 10 
 
 9 
 
 inc. 1 lockuo 
 
 38 
 
 22 
 
 85 
 22 
 30 
 43 
 1 
 
 19 
 87 
 
 5 
 
 49 
 
 2 
 
 27 
 
 38 
 
 43 
 
 23 
 
 4 
 
 99 
 
 22 
 
 5 
 
 9 
 
 39 
 3 
 
 1 
 
 l 
 
 3 
 3 
 1 
 
 
 1 
 3 
 
 10 
 10 
 5 
 
 20 
 
 18 
 
 6 
 
 28 
 
 5 
 
 1 
 
 70 
 
 7 
 
 4 
 
 73 
 
 1 
 
 25 
 
 27 
 
 35 
 
 15 
 
 6 
 
 40 
 
 12 
 
 6 
 
 4 
 
 28 
 11 
 
 36 
 25 
 27 
 49 
 
 5 
 16 
 95 
 
 4 
 
 4 
 76 
 
 2 
 68 
 52 
 57 
 33 
 
 4 
 80 
 16 
 
 9 
 12 
 
 30 
 13 
 
 
 
 8 
 10 
 16 
 33 
 
 1 
 13 
 
 8 
 
 5 
 3 
 
 1 
 2 
 
 22 
 2 
 3 
 
 1 
 
 3 
 
 24 
 13 
 22 
 21 
 
 9 
 
 8 
 8 
 20 
 1 
 7 
 6 
 
 2 
 
 2 
 1 
 
 
 
 
 
 5 
 9 
 
 8 
 
 
 Cape May 
 
 
 16 
 
 l 
 
 3 
 
 19 
 
 7 
 
 
 1 
 
 i 
 
 1 
 
 21 
 31 
 
 1 
 
 17 
 
 9 
 5 
 
 11 
 2 
 1 
 
 12 
 4 
 1 
 2 
 
 15 
 
 
 6 
 
 29 
 
 
 
 
 
 12 
 31 
 
 
 
 
 
 
 5 
 
 
 1 
 2 
 2 
 
 40 
 
 l 
 
 7 
 1 
 
 1 
 
 1 
 
 5 
 
 3 
 
 19 
 
 18 
 10 
 14 
 9 
 1 
 
 15 
 3 
 5 
 1 
 
 6 
 2 
 
 2 
 26 
 
 2 
 35 
 27 
 28 
 
 7 
 
 1 
 54 
 
 9 
 
 ""s - 
 
 21 
 1 
 
 1 
 6 
 
 ...... 
 
 2 
 
 3 
 
 1 
 
 1 
 
 5 
 
 10 
 
 
 42 
 2 
 24 
 36 
 37 
 19 
 2 
 61 
 6 
 3 
 9 
 
 19 
 1 
 
 7 
 
 43 
 2 
 6 
 3 
 2 
 87 
 16 
 2 
 
 
 
 5 
 
 Middlesex 
 
 Monmouth 
 
 Morris. 
 
 " YYY.".'.'.'.'.'.'.'.'.'.'.'.'.. 
 
 9 
 2 
 
 "i" 
 
 
 1 
 
 '"'e' 
 l 
 
 23 
 
 10 
 
 ...... 
 
 [1 unknown] 
 
 
 « ■ 
 
 3 
 
 2 
 
 3 
 
 
 10 
 1 
 
 1 
 
 
 
 
 i« 
 
 
 
 
 " 24, " 
 
 " 25, " 
 
 " 22, " 
 
 " 15, " 
 
 " 26, " 
 
 " 20, " 
 
 1 
 
 
 
 
 
 
 
 u 
 
 1 
 1 
 
 
 3 
 
 
 3 
 
 
 1 
 
 9 
 
 2 
 
 18 
 2 
 
 2 
 
 
 
 
 Workhouse or Peni- 1 
 
 
 
 
 
 
 
 
 
 
 
 
 
 1,229 
 
 218 
 
 241 
 105 
 
 189 
 
 42 
 
 30 
 10 
 
 682 
 
 555 
 
 260 
 
 269 
 115 
 
 39 
 
 5 
 
 47 
 
 40 
 
 35 
 
 167 
 
 9 
 
 16 
 
 4 
 
 443 
 
 90 
 
 107 
 20 
 
 578 
 
 161 
 
 148 
 91 
 
 7 
 
 161 
 
 1 
 
 5 
 14 
 
 810 
 
 78 
 
 119 
 61 
 
 18 
 
 14 
 6 
 
 14 
 
 149 
 
 136 
 35 
 
 86 
 
 18 
 1 
 
 6 
 
 5 
 4 
 
 385 
 
 62 
 
 99 
 63 
 
 201 
 
 186 
 
 152 
 
 46 
 
 5 
 
 3 
 
 20 
 7 
 
 4 
 9 
 
 [1 unknown] 
 
 
 
 
 
 
 
 2 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 504 
 
 82 
 
 644 
 
 2 
 
 29 
 
 217 
 
 400 
 
 20 
 
 258 
 
 20 
 
 320 
 
 19 
 
 9 
 
 223 
 
 384 
 
 30 
 
 9 
 
 
 
 
 
 1,783 
 
 221 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 2,001 
 
 682 
 
 1,199 
 
 39 
 
 5 
 
 47 
 
 42 
 
 35 
 
 196 
 
 659 
 
 978 
 
 7 
 
 181 
 
 568 
 
 38 
 
 334 
 
 105 
 
 15 
 
 608 
 
 585 
 
 85 
 
 13 
 
 [1 unknown] 
 
 
 
 
 
 
 
jf e w Jersey— County Jails and Workhouses. TABLE II. 
 
 Number of Female Prisoners, Classified by Cause of Detention, Age, Term and Offence. 
 
 Time of Visit. 
 
 [For Dates see Table I.] 
 
 
 
 
 
 DATE 
 VISITED 
 
 Total 
 
 
 CAUSE OF DETENTION 
 
 " 
 
 
 AGE 
 
 
 
 TERM OR SENTENCE 
 
 CRIME OR OFFENSE 
 
 
 COUNT' 
 
 t INSTITUTION 
 
 j 'S; 
 
 : £» 
 sS 
 
 0. 
 
 5 " 
 V S 
 
 m 
 
 «3 1 
 
 a 
 
 5 
 
 
 
 so 
 
 CO 
 
 b £ 
 
 M c 
 O 
 
 to 
 
 p 
 
 
 
 to 
 
 CO 
 
 
 
 
 > 
 
 
 a 
 
 CO 
 
 a 
 
 
 a 
 
 a 
 U 
 
 •0 
 
 B t. 
 
 a « 
 ,T3 
 
 d 
 
 S 
 
 
 
 
 
 £ 
 
 i 
 
 ■0 
 
 a ■* 
 
 . > 
 
 tH 
 
 
 a 
 
 a-" 
 □ 
 
 fp M . 
 
 I 1 
 
 m 
 g 
 
 3 
 
 
 Atlantic... 
 
 — Jail 
 
 
 
 3 
 
 2 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Bergen 
 
 
 
 
 
 3 
 
 2 
 
 1 
 
 
 
 
 
 
 
 
 5 
 
 
 
 
 
 
 
 
 
 2 
 1 
 3 
 4 
 
 
 
 
 Burlington . 
 
 .... 
 
 
 
 
 4 
 
 1 
 
 
 
 
 
 
 
 1 
 
 
 2 
 
 
 
 1 
 
 
 
 
 
 
 
 
 Camdec — 
 
 . . . . j 
 
 
 
 
 8 
 
 2 
 
 
 
 
 
 
 
 1 
 
 
 3 
 
 
 1 
 
 1 
 
 
 1 
 
 
 
 
 
 
 Cape May.. 
 
 
 
 
 
 3 
 
 
 
 '"3" 
 
 
 
 
 
 
 1 
 
 6 
 
 
 3 
 
 3 
 
 
 
 
 
 ........ 
 
 
 
 Cumberland 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 i 
 
 
 
 
 
 
 
 
 
 
 •Essex 
 
 
 
 
 
 17 
 
 
 4 
 
 
 
 
 
 
 
 
 1 
 
 
 1 
 
 
 
 
 
 
 1 
 4 
 
 
 
 
 Gloucester . 
 
 
 
 
 
 
 
 1 !• 
 
 
 
 
 
 
 
 6 
 
 6 
 
 
 8 
 
 1 
 
 
 
 
 
 
 
 
 Hudson 
 
 
 
 
 
 21 
 
 
 14 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 HuDterdon. 
 
 
 
 
 
 
 
 : • 
 
 
 
 
 
 
 4 
 
 15 
 
 
 
 7 
 
 
 
 
 
 13 
 
 
 
 
 Middlesex . . 
 
 
 
 
 
 
 
 2 
 6 
 9 
 
 '"2" : 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 3 insane 
 
 Mercer 
 
 
 
 
 
 
 
 
 
 
 
 
 3 
 
 3 
 
 
 
 2 
 
 
 
 
 
 
 
 
 Monmouth . 
 Morris 
 
 
 
 
 
 19 
 
 3 
 
 6 
 2 
 
 2 j. 
 
 
 "2" 
 
 
 
 1 
 
 1 
 
 2 
 2 
 
 6 
 5 
 
 "ii" 
 
 1 
 
 1 
 
 4 
 
 7 
 
 
 "i" 
 
 1 
 
 
 5 
 
 8 
 1 
 
 "i"' 
 1 
 
 
 
 Ocean 
 
 
 
 
 *-* 
 
 1 
 
 
 
 
 
 
 
 
 
 
 3 
 
 
 1 
 
 
 
 
 
 
 
 
 Passaic 
 
 
 
 
 a 
 
 19 
 
 
 16 
 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Salem 
 
 Somerset . . . 
 
 
 
 
 
 
 
 
 
 
 
 
 
 8 
 
 5 
 
 11 
 
 
 7 
 
 9 
 
 
 
 
 
 18 
 
 ""3"' 
 
 
 
 Sussex 
 
 Union 
 
 
 
 
 ^ 
 
 
 5 
 
 14 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Warren 
 
 ♦Essex 
 
 ".'.'.'. He 
 
 us 
 
 3 of Detention... 
 
 H 
 H 
 
 02 
 
 "5" 
 
 
 "4" ! 
 
 
 '"5" 
 
 
 
 "i6" 
 
 1 
 '"4" 
 
 3 
 
 1 
 
 
 2 
 
 
 
 3 
 
 
 ""3"" 
 
 " "a" 
 
 
 
 
 
 139 
 
 47 
 
 70 
 
 12 
 
 
 10 
 
 
 4 
 
 25 
 
 28 
 
 69 
 
 13 
 
 23 
 
 37 
 
 
 4 
 
 6 
 
 
 60 
 
 10 
 
 
 
 
 
 )i-k 
 
 
 
 42 
 
 30 
 10 
 
 
 42 
 80 
 
 10 
 
 
 j 
 
 :::::: 
 
 
 "i" 
 
 19 
 10 
 1 
 
 23 
 20 
 
 8 
 
 
 "i" 
 
 19 
 23 
 
 5 
 
 
 16 
 
 7 
 
 7 
 '4 
 
 
 21 
 
 21 
 
 7 
 
 19 
 9 
 3 
 
 2 
 
 
 Hudson 
 
 Mercer 
 
 
 
 :::: 
 
 
 
 
 
 82 
 
 
 82 
 
 
 
 
 1 
 
 1 
 
 80 
 
 51 
 
 
 1 
 
 47 
 
 
 23 
 
 11 
 
 
 49 
 
 81 
 
 2 
 
 
 
 
 = 
 
 22! 
 
 47 
 
 152 
 
 1. 
 
 
 10 
 
 
 4 
 
 26 
 
 58 
 
 120 
 
 13 
 
 24 
 
 84 
 
 
 27 
 
 17 
 
 
 109 
 
 41 2 
 
 
New Jersey— County Jails and Workhouses. TABLE III. 
 
 Number of Convicted Prisoners Serving Time, Classified According to Sex, Age, Terms and Offenses. 
 
 Time of Visit. 
 
 [For Dates see Table I.] 
 
 " 
 
 INSTITUTION 
 
 SEX 
 
 AGE 
 
 TERM OE SENTENCE 
 
 CRI51E OR OFFENCE 
 
 COUNTY 
 
 j 
 
 Under 16 
 
 16 to 20 
 
 21 to 30 
 
 31 and 
 over 
 
 Unknown 
 
 1 mo. and 
 under 
 
 1 to 6 mo. 
 
 6 to 12 mo. 
 
 1 yr. and 
 over 
 
 Fine only 
 
 lndef. 
 
 Disorderly 
 Persons 
 
 5Iisc. 
 
 Abandon- 
 ment, etc. 
 
 Drug 
 
 
 "5 
 
 s 
 
 M. 
 
 F. 
 
 M. 
 
 F. 
 
 51. 
 
 F. 
 
 M. 
 
 F. 
 
 M. 
 
 F. 
 
 51. 
 
 F. 
 
 M. 
 
 F. 
 
 M. 
 
 F. 
 
 51. 
 
 F. 
 
 M. 
 
 F. 
 
 51. 
 
 F. 
 
 51. 
 
 F. 
 
 M. 
 
 F. 
 
 51. 
 
 M. 
 
 F. 
 
 
 
 33 
 21 
 27 
 37 
 1 
 
 18 
 
 33 
 
 
 
 5 
 
 2 
 
 35 
 
 36 
 
 21 
 
 34 
 
 22 
 
 4 
 
 83 
 
 22 
 
 5 
 
 9 
 
 34 
 
 3 
 
 2 
 1 
 3 
 6 
 
 
 
 3 
 
 1 
 1 
 
 
 10 
 5 
 4 
 
 11 
 1 
 4 
 9 
 
 2 
 
 
 20 
 15 
 22 
 26 
 
 2 
 1 
 3 
 6 
 
 
 
 
 
 8 
 10 
 15 
 80 
 
 1 
 13 
 
 7 
 
 2 
 
 2 
 19 
 26 
 
 7 
 21 
 
 6 
 
 1 
 45 
 
 9 
 
 8 
 
 1 
 1 
 3 
 
 5 
 3 
 
 
 
 
 20 
 2 
 8 
 
 2 
 
 
 
 22 
 12 
 li) 
 17 
 
 2 
 
 3 
 
 4 
 
 9 
 
 8 
 8 
 
 20 
 1 
 7 
 
 24 
 
 6 
 
 
 
 2 
 
 1 
 
 
 
 
 
 
 
 
 5 
 
 8 
 5 
 
 1 
 3 
 
 
 i 
 1 
 
 1 
 
 
 
 1 
 
 
 
 
 « :::::.:::::::::::::: 
 
 
 
 
 
 
 
 
 3 
 
 
 2 
 
 
 
 
 
 House of Detention... 
 
 1 
 
 4 
 
 
 
 2 
 
 
 1 
 
 14 
 22 
 
 S 
 2 
 
 20 
 29 
 20 
 22 
 16 
 
 2 
 55 
 14 
 
 2 
 
 6 
 14 
 
 2 
 
 1 
 3 
 
 
 
 5 
 26 
 
 3 
 
 3 
 
 1 
 
 
 
 
 
 
 
 
 
 9 
 
 1 
 
 2 
 
 29 
 
 34 
 
 19 
 
 29 
 
 17 
 
 2 
 
 48 
 
 6 
 
 3 
 
 9 
 
 18 
 
 1 
 
 4 
 18 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 1 
 
 
 
 2 
 
 
 
 
 1 
 
 
 
 
 
 
 2 
 6 
 9 
 1 
 
 
 
 1 
 
 
 ? 
 
 10 
 6 
 
 1 
 2 
 3 
 
 4 
 3 
 
 1 
 
 4 
 6 
 1 
 
 
 
 9 
 5 
 13 
 9 
 1 
 8 
 3 
 5 
 1 
 6 
 2 
 
 1 
 1 
 
 7 
 
 2 
 4 
 7 
 1 
 
 9 
 
 
 
 1 
 
 
 9 
 
 1 
 
 
 
 2 
 
 5 
 
 8 
 1 
 
 13 
 
 2 
 2 
 5 
 5 
 2 
 35 
 16 
 2 
 
 1 
 1 
 
 
 
 
 
 
 
 
 2 
 
 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 ■; :::::::::::::::::::: 
 
 
 
 
 
 
 
 i 
 
 2 
 
 
 
 
 1 
 23 
 
 10 
 
 
 
 
 
 
 
 Passaic 
 
 16 
 
 
 
 5 
 1 
 1 
 
 2 
 
 22 
 7 
 2 
 3 
 
 11 
 1 
 
 10 
 
 1 
 
 
 
 5 
 
 
 
 
 3 
 
 
 
 
 
 
 
 
 
 
 
 
 
 5 
 
 
 
 
 4 
 
 1 
 
 1 
 
 5 
 
 
 
 19 
 1 
 
 2 
 
 2 
 
 
 1 
 
 
 6 
 
 3 I 
 
 
 3 
 
 16 
 2 
 
 2 
 
 3 
 
 20 
 7 
 
 
 
 
 485 
 
 218 
 
 239 
 105 
 
 70 
 
 42 
 30 
 10 
 
 25 
 
 9 
 16 
 3 
 
 3 
 
 1 
 
 128 
 
 7) 
 97 
 19 
 
 18 
 
 19 
 
 10 
 
 1 
 
 326 
 
 138 
 126 
 
 83 
 
 49 
 
 23 
 
 20 
 
 8 
 
 6 
 
 128 
 
 1 
 5 
 13 
 
 22 
 1 
 
 250 
 
 59 
 94 
 56 
 
 38 
 
 19 
 
 23 
 
 5 
 
 14 
 
 14 
 6 
 
 10 
 
 133 
 
 134 
 31 
 
 4 
 
 16 
 7 
 4 
 
 80 
 11 
 
 6 
 
 7 
 
 3 
 
 308 
 
 41 
 78 
 55 
 
 58 
 
 21 
 21 
 
 7 
 
 174 
 
 167 
 141 
 43 
 
 12 
 
 19 
 9 
 3 
 
 3 
 
 7 
 
 2 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 1 
 
 
 4 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 562 
 
 82 
 
 28 
 
 1 
 
 187 
 
 30 
 
 347 
 
 51 
 
 19 
 
 1 
 
 209 
 
 47 
 
 20 
 
 298 
 
 27 
 
 12 
 
 7 
 
 4 
 
 174 
 
 49 
 
 351 
 
 31 
 
 30 
 
 7 
 
 2 
 
 
 
 1,047 
 
 152 
 
 53 
 
 4 
 
 315 
 
 48 
 
 673 
 
 100 
 
 6 
 
 147 
 
 23 
 
 459 
 
 85 
 
 34 
 
 308 
 
 31 
 
 92 
 
 13 
 
 7 
 
 482 
 
 107 
 
 525 
 
 43 
 
 30 
 
 10 
 
 2 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
TABLE IV. 
 Number of Prisoners Admitted in the County Jails and Penitentiaries During the Five Years 1912 to 1916 Inclusive. 
 
 
 PEEIOD COVERED 
 (1912-1916 inclusive, un- 
 less otherwise stated) 
 
 SEX 
 
 CAUSE OF DETENTION 
 
 AGES 
 
 TERM OR SENTENCE 
 
 CRIME OR OFFENCE 
 
 INSANE 
 
 COUNTY 
 
 M. 
 
 F. 
 
 Total 
 
 OS 
 
 n 
 
 ® 
 
 a 
 
 H 
 be 
 a 
 '> 
 u 
 CO 
 
 02 
 
 CO 
 « 
 
 05 
 <D 
 
 a 
 $ 
 
 > 
 
 5 
 
 6 
 
 00 
 
 3 
 
 2 
 
 o 
 
 a 
 o 
 O 
 
 CO 
 
 Total 
 
 CO 
 
 u 
 
 4) 
 
 a 
 
 g 
 
 o 
 
 o 
 55 
 
 o 
 
 +} 
 a* 
 
 s- 
 cy 
 > 
 o 
 •a 
 a 
 
 03 
 
 CO 
 
 s 
 
 o 
 a 
 
 M 
 
 a 
 U 
 
 Total 
 
 u 
 
 0) 
 
 a 
 
 3 
 
 a 
 
 C3 
 
 d 
 
 a 
 
 d 
 
 a 
 
 CD 
 
 o 
 
 a 
 « 
 
 o 
 
 CO 
 
 CU 
 
 > 
 
 o 
 
 re 
 a 
 
 cS 
 u 
 
 >> 
 
 fi 
 O 
 
 o; 
 d 
 
 5 
 
 B 
 
 ° O 
 • B 
 
 ■9 9 
 
 a 3 
 
 Total 
 
 fea 
 1 
 
 6 
 
 00 
 
 i 
 
 +3 
 
 a 
 
 9 
 
 a 
 
 a 
 o 
 ■a 
 a 
 OS 
 J2 
 ■4 
 
 Total 
 
 Sr-l 
 
 o a 
 
 ■as 
 |8 
 
 
 1 
 
 2 
 
 3 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 11 
 
 12 
 
 13 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 23 
 
 23 
 
 24 
 
 25 
 
 26 
 
 27 
 
 38 
 
 1. Jails 
 (unless otherwise stated) 
 
 
 2,389 
 
 4.025 
 3,813 
 6.942 
 380 
 1,570 
 
 14,588 
 
 3.868 
 
 1,566 
 
 16,008 
 
 453 
 4,339 
 3.598 
 6,465 
 8,000 
 
 433 
 
 12,759 
 
 1,648 
 
 1.420 
 
 586 
 4,397 
 
 706 
 
 2,709 
 4,639 
 
 373 
 
 358 
 256 
 966 
 42 
 105 
 
 2,490 
 
 800 
 
 45 
 
 1.868 
 
 18 
 
 536 
 
 864 
 
 528 
 
 171 
 
 11 
 
 1,631 
 
 117 
 
 56 
 
 13 
 
 416 
 
 22 
 
 1,036 
 540 
 
 2,712 
 4,383 
 4,069 
 7,908 
 422 
 1,675 
 
 17,078 
 
 4,663 
 
 1,611 
 
 17,876 
 
 471 
 4,875 
 3,962 
 6,993 
 3,171 
 
 444 
 
 14,390 
 
 1,765 
 
 1,476 
 
 599 
 4,813 
 
 728 
 
 3,745 
 5,179 
 1,691 
 
 796 
 747 
 878 
 3.463 
 387 
 958 
 
 12,234 
 
 4,379 
 
 679 
 
 9.990 
 
 269 
 
 2.852 
 
 1.309 
 
 2.729 
 
 1,358 
 
 £8 
 
 7,789 
 
 817 
 
 821 
 
 SH8 
 
 1.417 
 
 513 
 
 1,841 
 1.347 
 3,038 
 
 4,028 
 109 
 705 
 
 8,758 
 
 161 
 
 919 
 
 5,695 
 
 194 
 
 1,650 
 
 2,575 
 
 4.190 
 
 1,669 
 
 860 
 
 5 675 
 
 913 
 
 655 
 
 251 
 
 3.123 
 
 216 
 
 3,740 
 5,179 
 1,691 
 
 64 
 177 
 
 22 
 284 
 
 26 
 
 12 
 o 
 734 
 
 
 
 128 
 13 
 
 544 
 8 
 
 125 
 78 
 74 
 12 
 1 
 99 
 19 
 
 '"« 
 
 8f 
 
 11 
 59 
 43 
 
 
 
 2,712 
 4,383 
 4,069 
 7,908 
 422 
 1,675 
 
 17,078 
 
 4,663 
 1,611 
 17,876 
 
 471 
 4,875 
 3,962 
 6,993 
 3,171 
 
 444 
 14,390 
 1,765 
 1,476 
 
 599 
 4,813 
 
 728 
 
 3,745 
 5,179 
 1,691 
 
 111 
 
 227 
 
 150 
 15 
 81 
 
 3,281 
 
 36 
 
 2,049 
 
 100 
 137 
 141 
 
 58 
 
 9 
 
 785 
 
 38 
 
 4 
 
 379 
 
 794 
 
 no deta 
 
 no de 
 
 49 
 
 204 
 
 o 
 
 1,479 
 
 o 
 
 550 
 
 173 
 
 3,101 
 
 no de 
 
 613 
 
 840 
 
 447 
 
 268 
 
 13 
 
 1,888 
 
 207 
 
 110 
 
 details 
 
 804 
 
 no de 
 
 116 
 
 463 
 
 no de 
 
 935 
 
 1,525 
 
 ils give 
 
 tails ei 
 
 125 
 
 495 
 
 o 
 
 4,728 
 
 533 
 
 5,772 
 
 tails 
 
 1,702 
 
 1.305 
 
 2,025 
 
 847 
 
 76 
 
 5,482 
 
 702 
 
 661 
 
 not gi 
 
 1,818 
 
 tails gi 
 
 1.262 
 
 1,719 
 
 tails gi 
 
 1,042 
 1,805 
 n 
 
 ven 
 159 
 785 
 o 
 6,730 
 
 607 
 6,833 
 
 2,459 
 
 2.050 
 
 4,380 
 
 1,264 
 
 346 
 
 6,193 
 
 802 
 
 705 
 
 ven 
 
 2,191 
 ven 
 
 2,867 
 2,997 
 ven 
 
 245 
 
 32 
 
 4.069 
 
 150 
 74 
 
 110 
 
 4,141 
 
 882 
 2«3 
 121 
 471 
 1 
 ISO 
 
 789 
 
 42 
 16 
 
 595 
 
 728 
 
 1,691 
 
 2,712 
 4,383 
 4,069 
 7,908 
 422 
 1,675 
 
 17,078 
 
 4,663 
 1,611 
 17,876 
 
 471 
 4,875 
 3,962 
 6,993 
 3,171 
 
 444 
 
 14,390 
 
 1,765 
 
 1,476 
 
 599 
 4,813 
 
 728 
 
 3,745 
 5,179 
 1,691 
 
 341 
 
 2,546 
 70 
 378 
 
 336 
 
 3,762 
 
 88 
 
 868 
 
 1,707 
 
 966 
 
 320 
 
 4,054 
 
 72 
 
 122 
 
 1,932 
 
 141 
 
 269 
 
 417 
 no d 
 no d 
 
 750 
 27 
 
 289 
 
 no d 
 
 no d 
 
 200 
 
 1,395 
 
 51 
 
 483 
 
 788 
 
 no d 
 
 193 
 
 25 
 
 1,529 
 
 89 
 
 no d 
 
 60 
 
 670 
 
 67 
 
 1,889 
 nod 
 no d 
 
 79 
 
 etails 
 
 etails 
 
 38 
 
 3 
 
 6 
 
 etails 
 
 etails 
 12 
 
 84 
 
 4 
 
 122 
 
 77 
 
 etails 
 
 1 
 
 30 
 1 
 
 etails 
 
 4 
 
 212 
 
 93 
 
 etails 
 etails 
 
 103 
 
 iven 
 
 given 
 
 503 
 
 3 
 
 given 
 
 given 
 
 16 
 
 52 
 
 3 
 
 227 
 
 2 
 
 given 
 
 2 
 
 62 
 
 given 
 3 
 1 
 
 2 
 
 792 
 given 
 given 
 
 24 
 
 97 
 9 
 26 
 
 9 
 
 402 
 45 
 
 878 
 1,347 
 3,028 
 
 4 
 
 3,758 
 
 161 
 346 
 
 1,841 
 1,347 
 3,028 
 4,028 
 109 
 705 
 
 3,758 
 
 161 
 
 919 
 
 5,695 
 
 194 
 
 1,650 
 
 2,575 
 
 4,190 
 
 1,659 
 
 360 
 
 5,675 
 
 913 
 
 655 
 
 251 
 
 3,123 
 
 216 
 
 3,740 
 5,179 
 1,691 
 
 696 
 no 
 
 978 
 
 2,920 
 
 90 
 
 613 
 
 1,145 
 
 details 
 
 2,006 
 
 971 
 
 19 
 
 90 
 
 44 
 137 
 
 2 
 
 1,841 
 1,347 
 3,028 
 4,028 
 109 
 705 
 
 3,758 
 
 161 
 
 919 
 
 5,695 
 
 194 
 
 1,650 
 
 2,575 
 
 4,190 
 
 1,659 
 
 360 
 
 5,675 
 
 913 
 
 655 
 
 251 
 
 3,123 
 
 216 
 
 3,740 
 5,179 
 1,691 
 
 
 
 
 2,052 
 
 1 
 
 99 
 
 
 
 
 
 
 
 
 
 
 
 
 Cumberland 
 
 
 
 
 
 
 Essex 
 
 1912 to 1915 
 
 98 
 
 
 254 
 
 
 Essex (House of Detention) . . 
 
 1912tol915 
 
 
 
 
 
 Gloucester 
 
 
 
 
 
 134 
 
 785 
 
 
 
 
 
 190 
 
 1,457 
 
 
 1,190 
 
 Hunterdon 
 
 Aug. 1914 to Sept. 1917. . 
 
 104 
 1,211 
 2.510 
 8,330 
 1,584 
 
 346 
 4.888 
 
 538 
 
 90 
 
 439 
 16 
 860 
 114 
 14 
 787 
 352 
 
 49 
 11 
 
 28 
 
 
 23 
 
 
 235 
 
 
 
 1913 to 1916 
 
 494 
 14 
 
 1 
 
 4,190 
 4 
 
 
 Monmouth 
 
 
 
 
 
 
 
 
 2 
 
 66 
 
 8 
 
 3 
 
 12 
 
 142 
 23 
 
 811 
 13 
 
 1 
 174 
 
 5 
 
 
 Ocean 
 
 1914 to 1916 
 
 
 Passaic 
 
 
 
 Salem 
 
 
 751 
 
 61 
 
 308 
 
 6 
 
 668 
 
 655 
 1 
 
 29 
 5.179 
 1,691 
 
 
 Somerset 
 
 June 1914 to Oct. 1917. . . 
 
 
 Sussex 
 
 Union "".'. 
 
 245 
 
 2,166 
 
 167 
 
 2.232 
 3,839 
 
 6 
 
 785 
 49 
 
 1,247 
 1,462 
 
 172 
 
 261 
 
 378 
 
 7 
 
 Warren 
 
 
 
 2. Workhouses 
 
 
 
 Hudson 
 
 1914 omitted 
 
 
 
 
 
 
 1913 to 1916 
 
 
 
 
 
 
 _ 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 102,246 
 
 1S,762 
 
 116,699 
 
 51,630 
 
 53,662 
 
 2,508 
 
 542 
 
 4,872 
 
 480 
 
 116,699 
 
 7,172 
 
 11,992 
 
 31,712 
 
 43,715 
 
 12,727 
 
 116,699 
 
 18,072 
 
 8.875 
 
 761 
 
 1,768 
 
 2,914 
 
 21,272 
 
 53,662 
 
 23,036 
 
 11,247 
 
 1,082 
 
 53,662 
 
 1,396 
 
 
 
 o Data given for only three years. 
 
TABLE V. 
 Average Number of Persons Admitted Annually in the County Jails and Penitentiaries During the Five Years 1912 to 1916 Inclusive. 
 
 
 PERIOD COVERED 
 (1912-1916 inclusive un- 
 less otherwise stated) 
 
 SEX 
 
 CAUSE OF DETENTION 
 
 AGES 
 
 TERM OE SENTENCE 
 
 CRIME OR OFFENCE 
 
 INSANE 
 
 COUNTY 
 
 M. 
 
 F. 
 
 Total 
 
 u 
 S • 
 
 n 
 
 a 
 B 
 
 to 
 a 
 
 > 
 u 
 
 o 
 
 02 
 
 'ii 
 
 Vi 
 S> 
 
 a 
 
 6 
 
 6 
 
 Vi 
 
 m 
 o 
 '> 
 
 a 
 o 
 o 
 
 13 
 
 Total 
 
 «o 
 
 U 
 
 0) 
 
 ■3 
 a 
 P 
 
 o 
 c* 
 
 O 
 
 to 
 
 p 
 
 CO 
 
 $ 
 
 > 
 
 o 
 •a 
 a 
 « 
 
 CO 
 
 a 
 Is 
 o 
 p 
 M 
 a 
 
 
 Total 
 
 s- 
 
 CO gj 
 S3 
 
 d 
 
 a 
 
 CO 
 
 O 
 
 d 
 
 a 
 
 C3 
 
 o 
 
 CO 
 
 u 
 a) 
 > 
 o 
 
 13 
 
 a 
 
 eg 
 
 u 
 5» 
 
 a 
 o 
 
 S 
 
 
 
 Total 
 
 X) CO 
 
 Ch Eh 
 
 o O 
 
 a 
 
 o 
 ai 
 
 a 
 
 0) 
 
 a 
 
 
 
 o 
 *u 
 a 
 
 ■A 
 
 Total 
 
 ■sfl 
 
 3. s 
 
 M ° 
 
 
 1 
 
 2 
 
 3 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 11 
 
 12 
 
 13 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 22 
 
 23 
 
 24 
 
 25 
 
 26 
 
 27 
 
 28 
 
 1. Jails 
 (unless otherwise stated) 
 
 
 468 
 805 
 763 
 1,888 
 76 
 314 
 
 3,647 
 
 966 
 313 
 
 3,202 
 151 
 868 
 899 
 
 1,293 
 600 
 144 
 
 2,552 
 380 
 428 
 117 
 879 
 141 
 
 542 
 928 
 ? 
 
 75 
 72 
 51 
 193 
 8 
 21 
 
 623 
 
 200 
 
 9 
 
 373 
 
 6 
 
 107 
 
 91 
 
 106 
 
 34 
 
 4 
 
 326 
 
 23 
 
 17 
 
 3 
 
 88 
 4 
 
 207 
 
 108 
 ? 
 
 543 
 877 
 814 
 1,581 
 84 
 335 
 
 4,270 
 
 1,166 
 322 
 
 3,575 
 157 
 975 
 990 
 
 1,399 
 634 
 148 
 
 2,878 
 353 
 443 
 120 
 962 
 145 
 
 749 
 
 1,036 
 
 423 
 
 160 
 150 
 176 
 693 
 
 57 
 192 
 
 3,059 
 
 1,095 
 136 
 
 1,998 
 89 
 570 
 327 
 546 
 272 
 19 
 
 1,548 
 163 
 246 
 68 
 283 
 102 
 
 368 
 269 
 605 
 805 
 22 
 141 
 
 939 
 
 40 
 
 184 
 
 1,139 
 
 65 
 330 
 644 
 838 
 332 
 120 
 1.135 
 183 
 197 
 
 50 
 625 
 
 43 
 
 748 
 
 1,036 
 
 423 
 
 13 
 
 35 
 
 4 
 
 57 
 
 5 
 
 2 
 
 184 
 o 
 41 
 
 2 
 109 
 
 3 
 25 
 19 
 15 
 
 2 
 
 20 
 4 
 
 2 
 12 
 9 
 6 
 
 
 
 543 
 877 
 814 
 1,581 
 84 
 335 
 
 4,270 
 
 1,166 
 322 
 
 3,575 
 157 
 975 
 990 
 
 1,399 
 634 
 148 
 
 2,878 
 353 
 443 
 120 
 962 
 145 
 
 749 
 
 1,036 
 
 423 
 
 22 
 
 46 
 
 SO 
 8 
 16 
 
 808 
 
 7 
 
 410 
 
 20 
 34 
 28 
 12 
 
 3 
 157 
 
 8 
 
 1 
 
 76 
 159 
 no deta 
 no 
 10 
 41 
 
 
 
 493 
 o 
 
 183 
 34 
 
 620 
 no deta 
 
 122 
 85 
 90 
 52 
 4 
 
 378 
 41 
 33 
 no 
 
 161 
 no deta 
 
 23 
 
 93 
 
 no deta 
 
 187 
 305 
 ils give 
 details 
 25 
 99 
 
 
 
 1,576 
 
 no de 
 
 107 
 
 1,154 
 
 ils give 
 
 340 
 
 326 
 
 405 
 
 169 
 
 25 
 
 1,096 
 
 140 
 
 198 
 
 details 
 
 363 
 
 ils give 
 
 252 
 
 344 
 
 ils give 
 
 209 
 361 
 n 
 
 32 
 157 
 
 o 
 2,243 
 
 tails 
 121 
 1,367 
 
 n 
 
 492 
 513 
 876 
 253 
 116 
 1,289 
 161 
 212 
 
 438 
 n 
 
 474 
 599 
 n 
 
 49 
 
 6 
 
 814 
 
 1,551 
 
 14 
 
 22 
 
 858 
 58 
 
 24 
 157 
 
 32 
 
 148 
 
 8 
 3 
 
 119 
 
 '""145 
 
 423 
 
 543 
 877 
 814 
 1,581 
 84 
 335 
 
 4,270 
 
 1,166 
 322 
 
 3,575 
 157 
 975 
 990 
 
 1,399 
 634 
 148 
 
 2,878 
 353 
 443 
 120 
 962 
 145 
 
 749 
 
 1,036 
 
 423 
 
 68 
 
 529 
 14 
 76 
 
 6" 
 752 
 
 30 
 174 
 427 
 
 193 
 
 107 
 
 811 
 
 14 
 
 24 
 
 386 
 28 
 
 54 
 
 83 
 
 no de 
 
 no de 
 
 150 
 
 5 
 58 
 
 no de 
 
 no de 
 
 40 
 
 279 
 
 18 
 
 87 
 
 197 
 
 no de 
 
 89 
 
 8 
 
 306 
 
 18 
 
 no de 
 
 12 
 
 134 
 
 18 
 
 378 
 no de 
 no de 
 
 16 
 
 tails 
 
 tails 
 
 7 
 
 1 
 
 20 
 given 
 given 
 100 
 
 5 
 
 19 
 2 
 6 
 
 2 
 81 
 15 
 45 
 
 176 
 269 
 605 
 
 939 
 
 40 
 69 
 
 368 
 269 
 605 
 805 
 22 
 141 
 
 939 
 
 40 
 
 184 
 
 1,139 
 
 65 
 330 
 644 
 838 
 332 
 120 
 1,135 
 183 
 197 
 
 50 
 625 
 
 43 
 
 748 
 
 1,036 
 
 423 
 
 139 
 
 229 
 
 
 368 
 269 
 605 
 805 
 22 
 141 
 
 939 
 
 40 
 
 184 
 
 1,139 
 
 65 
 330 
 644 
 838 
 332 
 120 
 1,135 
 183 
 197 
 
 50 
 625 
 
 43 
 
 748 
 
 1,036 
 
 423 
 
 
 
 
 410 
 
 20 
 20 
 
 1 
 
 20 
 
 
 
 195 
 
 584 
 18 
 
 401 
 
 194 
 
 4 
 
 9 
 
 27 
 
 
 
 
 
 
 
 
 
 
 
 
 
 1 1 
 
 
 
 1912 to 1915 
 
 25 
 
 
 63 
 
 tails 
 
 tails 
 8 
 17 
 1 
 24 
 19 
 tails 
 
 given 
 
 given 
 3 
 10 
 1 
 
 1 
 given 
 
 
 
 
 
 Essex (House of Detention).. 
 
 1912 to 1915 
 
 
 
 
 
 
 
 
 
 27 
 
 157 
 
 
 
 
 
 38 
 
 291 
 
 
 238 
 
 
 Aug. 1914 to Sept. 1917... 
 
 35 
 212 
 
 6:38 
 666 
 807 
 115 
 978 
 107 
 
 30 
 
 88 
 4 
 172 
 23 
 5 
 157 
 70 
 
 12 
 2 
 
 6 
 
 
 
 5 
 
 
 45 
 
 
 
 1913 to 1916 
 
 
 
 
 
 
 
 99 
 5 
 
 838 
 1 
 
 
 
 
 i 
 
 13 
 1 
 
 28 
 
 8 
 
 162 
 
 2 
 
 
 
 
 1914 to 1916 
 
 
 
 
 
 
 6 
 
 12 
 
 
 
 
 151 
 
 12 
 68 
 1 
 
 134 
 
 197 
 
 6 
 
 1,036 
 423 
 
 
 
 June 1914 to Oct. 1917... 
 
 tails 
 
 1 
 
 42 
 
 18 
 tails 
 tails 
 
 given 
 1 
 
 1 
 
 158 
 given 
 given 
 
 
 
 1 
 
 17 
 
 1 
 2 
 
 
 
 49 
 
 433 
 
 33 
 
 446 
 668 
 
 1 
 
 157 
 10 
 
 250 
 292 
 
 35 
 
 52 
 16 
 
 1 
 
 
 
 35 
 
 
 
 
 
 
 2. "Workhouses 
 
 
 
 
 
 1 
 
 
 
 1914 omitted 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 21,812 
 
 2,744 
 
 24,979 
 
 11,949 
 
 11,281 
 
 558 
 
 115 
 
 976 
 
 110 
 
 24,979 
 
 1,605 
 
 2,698 
 
 7,111 
 
 9,863 
 
 3,926 
 
 24,979 
 
 3,754 
 
 1,825 
 
 156 
 
 808 
 
 689 
 
 4,599 
 
 11,281 
 
 5,670 
 
 2,241 
 
 219 
 
 11,281 
 
 
 
 
 
 o Data given for only three years. 
 
TABLE VI. 
 
 Number of Prisoners Admitted in the County Jails and Penitentiaries During the Year 1912. 
 
 
 SEX 
 
 
 CAUSE 01 
 
 "" DETENTION 
 
 
 AGES 
 
 TERM OR SENTENCE 
 
 CRIME OR OFFENCE 
 
 INSANE 
 
 COUNTY 
 
 M. 
 1 
 
 F. 
 
 Total 
 
 
 s 
 
 H 
 
 a 
 > 
 
 « 
 
 CD 
 
 (A 
 
 CD 
 
 a 
 %■ 
 
 5 
 
 
 n 
 
 'F 
 a 
 
 o 
 O 
 
 GO 
 D 
 
 Total 
 
 to 
 
 IU 
 CD 
 
 □ 
 11 
 
 o 
 o 
 
 CO 
 
 o 
 
 CO 
 
 o 
 ©J 
 
 u 
 
 CD 
 > 
 
 O 
 
 ■a 
 
 a 
 
 CS 
 
 53 
 
 a 
 it 
 
 o 
 a 
 M 
 a 
 
 Total 
 
 u 
 
 V 
 
 "3 
 
 a 
 
 2 
 
 •a 
 
 a 
 
 d 
 
 a 
 
 d 
 
 a 
 
 to 
 
 O 
 
 6 
 
 a 
 ©* 
 
 o 
 
 CO 
 
 > 
 o 
 
 a 
 
 03 
 
 C 
 
 o 
 
 9 
 
 
 E 
 
 a 
 
 a; a 
 
 Total 
 
 Si o 
 
 c u 
 O CD 
 
 .»P-I 
 
 Q 
 
 ca 
 
 at 
 
 i 
 
 a 
 <a 
 
 a 
 
 a 
 o 
 
 ■a 
 a 
 g 
 
 Total 
 
 = 3 
 
 So 
 
 
 2 
 
 3 
 
 571 
 
 given 
 
 843 
 
 1,419 
 
 61 
 
 280 
 
 4,141 
 
 1,105 
 
 235 
 
 2,869 
 
 given 
 
 932 
 given 
 1,299 
 619 
 given 
 2,188 
 236 
 given 
 92 
 865 
 given 
 
 534 
 1,079 
 
 given 
 
 19,368 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 12 
 
 13 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 22 
 
 28 
 
 24 
 
 25 
 
 26 
 
 27 
 
 28 
 
 1. Jails 
 (unless otherwise stated) 
 
 489 
 
 no de 
 
 798 
 
 82 
 
 tails 
 
 45 
 
 383 
 
 122 
 
 35 
 
 170 
 
 3,147 
 
 106 
 1,499 
 
 533 
 
 428 
 268 
 
 1,148 
 128 
 
 88 
 194 
 
 172 
 
 702 
 no 
 26 
 110 
 850 
 no 
 125 
 968 
 
 315 
 
 862 
 356 
 
 985 
 106 
 
 51 
 627 
 
 532 
 
 1,079 
 
 12 
 detai 
 
 4 
 
 2 
 Is giv 
 
 
 
 571 
 
 843 
 
 1,419 
 
 61 
 
 280 
 4,141 
 1,105 
 
 235 
 2,869 
 
 932 
 
 1,299 
 619 
 
 2,188 
 236 
 
 92 
 865 
 
 534 
 1,079 
 
 25 
 
 no 
 
 no 
 
 8 
 
 21 
 
 no de 
 
 183 
 
 8 
 
 325 
 
 21 
 
 30 
 13 
 
 99 
 8 
 
 2 
 
 85 
 
 detai 
 
 detai 
 
 3 
 
 28 
 tails 
 no de 
 
 27 
 
 488 
 
 104 
 
 88 
 48 
 
 245 
 
 37 
 
 no de 
 106 
 
 30 
 89 
 
 210 
 
 Is giv 
 
 Is giv 
 
 23 
 
 104 
 
 given 
 
 tails 
 
 91 
 
 895 
 
 318 
 
 572 
 242 
 
 825 
 89 
 
 tails 
 325 
 
 169 
 345 
 
 236 
 
 en 
 en 
 29 
 123 
 
 given 
 
 89 
 
 1,122 
 
 489 
 
 609 
 314 
 
 1,017 
 102 
 
 given 
 434 
 
 835 
 645 
 
 15 
 
 843 
 
 1,419 
 
 3 
 
 4 
 
 4,141 
 
 922 
 
 20 
 
 39 
 
 2 
 2 
 
 90 
 
 571 
 
 843 
 
 1,419 
 
 61 
 
 280 
 4,141 
 1,105 
 
 235 
 2,869 
 
 932 
 
 1,299 
 619 
 
 2,188 
 236 
 
 92 
 865 
 
 534 
 1,079 
 
 49 
 
 15 
 
 79 
 
 45 
 678 
 
 155 
 
 169 
 
 690 
 
 10 
 
 23 
 410 
 
 2 
 
 102 
 
 no de 
 
 7 
 
 18 
 
 no de 
 
 16 
 231 
 
 98 
 
 no de 
 20 
 
 277 
 17 
 
 10 
 124 
 
 244 
 no de 
 
 3 
 tails 
 
 1 
 
 2 
 tails 
 
 1 
 1 
 
 16 
 
 tails 
 
 16 
 given 
 
 given 
 16 
 
 1 
 
 3 
 
 7 
 
 1 
 
 702 
 no de 
 
 4 
 
 850 
 
 node 
 
 47 
 
 58 
 
 172 
 
 702 
 tails gi 
 26 
 110 
 850 
 tails gi 
 125 
 968 
 
 315 
 
 862 
 356 
 
 985 
 106 
 
 51 
 627 
 
 532 
 1,079 
 
 124 
 
 196 
 ven 
 20 
 107 
 
 48 
 
 499 
 
 6 
 1 
 
 7 
 2 
 
 172 
 
 702 
 
 26 
 110 
 850 
 
 125 
 968 
 
 315 
 
 862 
 356 
 
 985 
 106 
 
 51 
 627 
 
 532 
 1.079 
 
 
 
 17 
 en 
 
 
 
 
 
 
 
 
 67 
 258 
 
 3,563 
 930 
 232 
 
 2,566 
 no 
 834 
 no 
 
 1.205 
 589 
 no 
 
 1.950 
 
 213 
 
 no 
 
 87 
 
 787 
 
 no de 
 
 424 
 937 
 no 
 
 4 
 
 22 
 
 578 
 
 175 
 
 3 
 
 303 
 
 data 
 
 98 
 
 data 
 
 94 
 
 80 
 
 data 
 
 238 
 
 28 
 
 data 
 
 5 
 
 78 
 
 tails 
 
 110 
 
 142 
 
 data 
 
 
 
 
 
 
 
 
 
 110 
 
 detai 
 
 4 
 
 65 
 
 30 
 
 9 
 
 34 
 
 Is giv 
 
 
 
 
 Essr-x (House of Detention).. . 
 
 en 
 
 
 ven 
 52 
 
 73 
 
 
 
 
 46 
 5 
 
 291 
 
 49 
 
 54 
 
 
 46 
 given 
 
 
 253 
 
 684 
 844 
 
 797 
 57 
 
 62 
 
 178 
 12 
 
 188 
 49 
 
 
 
 
 
 
 167 
 
 862 
 
 
 
 
 
 
 5 
 35 
 
 
 
 
 8 
 2 
 
 9 
 
 12 
 
 6 
 1 
 
 13 
 
 
 
 
 
 78 
 
 18 
 79 
 
 118 
 
 18 
 1,079 
 
 
 
 3 
 8 
 
 
 
 
 
 3 
 
 
 32 
 
 2 
 
 14 
 
 11 
 tails 
 
 139 
 given 
 
 442 
 
 264 
 
 754 
 
 157 
 
 219 
 253 
 
 28 
 
 49 
 
 72 
 
 
 
 
 2. Workhouses 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 15,919 
 
 2,030 
 
 8,189 
 
 7,866 
 
 249 
 
 109 
 
 380 
 
 51 
 
 19,368 
 
 788 
 
 1,378 
 
 4,208 
 
 5,544 
 
 7,500 
 
 19,368 
 
 2,325 
 
 1,164 
 
 56 
 
 289 
 
 471 
 
 3,626 
 
 7,866 
 
 4,094 
 
 1,745 
 
 158 
 
 7,866 
 
 5T 
 
 
 
TABLE VII. 
 Number of Prisoners Admitted in the County Jails and Penitentiaries During the Year 1913. 
 
 
 SEX 
 
 CAUSE OF DETENTION 
 
 AGES 
 
 TEEM OE SENTENCE 
 
 CEIME OE OFFENCE 
 
 INSANE 
 
 COUNTY 
 
 M. 
 
 F. 
 
 Total 
 
 2 ° 
 
 WE 
 
 s 
 
 to 
 
 a 
 
 "> 
 
 u 
 
 03 
 W 
 
 03 
 03 
 03 
 
 09 
 
 03 
 
 a 
 1 
 
 5 
 
 6 
 
 03 
 
 '> 
 
 a 
 o 
 O 
 
 Total 
 
 «5 
 Cm 
 
 a 
 
 o 
 
 O 
 
 to 
 
 Q 
 CO 
 
 O 
 
 o* 
 
 u 
 
 > 
 o 
 
 ■o 
 
 a 
 
 CO- 
 CO 
 
 a 
 s 
 o 
 
 B 
 
 a 
 fc) 
 
 Total 
 
 03 
 
 a 
 
 3 
 
 •a 
 
 a 
 a 
 
 6 
 
 S 
 
 d 
 
 S 
 
 o 
 
 d 
 
 a 
 
 o 
 w 
 
 u 
 
 0J 
 > 
 O 
 
 a 
 
 cS 
 u 
 
 a 
 
 o 
 
 03 
 
 a 
 
 a 
 of 
 
 i— i 
 
 Total 
 
 is o 
 
 « o 
 
 O 03 
 O 
 
 00 
 
 i 
 
 4J 
 a 
 
 03 
 
 S 
 a 
 o 
 •o 
 a 
 
 CO 
 
 3 
 
 ■< 
 
 Total 
 
 '"CO 
 
 |l 
 
 3 3 
 
 oo 
 CD 
 
 
 1 
 
 2 
 
 3 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 11 
 
 12 
 
 IS 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 22 
 
 23 
 
 24 
 
 25 
 
 26 
 
 27 
 
 28 
 
 1. Jatls 
 (unless otherwise stated) 
 
 418 
 no de 
 
 764 
 
 70 
 
 tails 
 
 56 
 
 488 
 given 
 820 
 1,586 
 77 
 349 
 4,445 
 1,147 
 343 
 3,604 
 given 
 815 
 746 
 1,280 
 576 
 given 
 3,094 
 209 
 given 
 143 
 1,019 
 given 
 
 824 
 
 1,085 
 
 407 
 
 282 
 185 
 
 49 
 
 195 
 
 3,297 
 
 1,090 
 
 44 
 1,872 
 
 513 
 262 
 506 
 245 
 
 1,874 
 
 98 
 
 73 
 299 
 
 192 
 
 607 
 no 
 23 
 
 151 
 
 773 
 10 
 
 295 
 1,800 
 
 2411 
 472 
 762 
 325 
 
 1,006 
 105 
 
 70 
 663 
 
 821 
 
 1,085 
 
 407 
 
 7 
 
 2 
 
 detai 
 
 5 
 
 3 
 
 265 
 
 47 
 
 4 
 
 100 
 
 18 
 
 12 
 
 12 
 
 1 
 
 27 
 1 
 
 7 
 
 10 
 Is giv 
 
 
 
 488 
 
 820 
 
 1,586 
 
 77 
 
 349 
 4,445 
 1,147 
 
 343 
 3,604 
 
 815 
 
 746 
 
 1,280 
 
 576 
 
 3,094 
 209 
 
 143 
 1,019 
 
 824 
 
 1,085 
 
 407 
 
 16 
 
 no 
 no 
 5 
 19 
 
 970 
 
 3 
 
 433 
 
 10 
 15 
 37 
 10 
 
 135 
 
 8 
 
 1 
 no 
 
 59 
 
 detai 
 
 detai 
 
 11 
 
 45 
 
 526 
 
 177 
 
 29 
 
 614 
 
 107 
 79 
 78 
 46 
 
 458 
 26 
 
 no 
 163 
 
 24 
 
 89 
 
 detai 
 
 172 
 
 Is giv 
 
 Is giv 
 
 23 
 
 109 
 
 1,426 
 
 36 
 
 en 
 en 
 15 
 158 
 2,493 
 
 205 
 
 820 
 
 1.586 
 
 23 
 
 18 
 
 488 
 
 820 
 
 1,586 
 
 77 
 
 349 
 4,445 
 1,147 
 
 343 
 3,604 
 
 815 
 
 746 
 
 1,280 
 
 576 
 
 3,094 
 209 
 
 143 
 1,019 
 
 824 
 
 1,085 
 
 407 
 
 53 
 
 14 
 76 
 
 77 
 813 
 
 180 
 887 
 
 153 
 
 734 
 5 
 
 44 
 413 
 
 60 
 
 94 
 
 no de 
 
 8 
 
 68 
 
 no de 
 
 no de 
 
 130 
 
 268 
 
 61 
 
 121 
 
 node 
 
 54 
 
 264 
 4 
 
 118 
 
 398 
 node 
 no de 
 
 9 
 tails 
 
 2 
 given 
 
 18 
 
 no de 
 1 
 4 
 
 21 
 
 607 
 tails 
 
 773 
 10 
 83 
 
 204 
 
 192 
 
 607 
 
 given 
 
 23 
 
 151 
 
 773 
 
 10 
 
 295 
 
 1,300 
 
 241 
 
 472 
 762 
 325 
 
 1,006 
 105 
 
 70 
 663 
 
 821 
 
 1,085 
 
 407 
 
 102 
 
 164 
 
 16 
 118 
 
 90 
 
 435 
 
 7 
 33 
 
 8 
 
 192 
 607 
 
 23 
 151 
 773 
 
 10 
 
 295 
 
 1,300 
 
 241 
 472 
 762 
 325 
 
 1,006 
 105 
 
 70 
 663 
 
 821 
 
 1,085 
 
 407 
 
 
 Burlington 
 
 16 
 en 
 
 
 
 
 
 
 09 
 326 
 
 3,877 
 934 
 339 
 
 3,230 
 
 no 
 
 738 
 
 680 
 
 1,180 
 534 
 no 
 
 2,743 
 194 
 no 
 140 
 911 
 no de 
 
 645 
 974 
 
 8 
 
 23 
 
 568 
 
 213 
 
 4 
 
 374 
 
 data 
 
 77 
 
 66 
 
 100 
 
 42 
 
 data 
 
 351 
 
 15 
 
 data 
 
 3 
 
 108 
 
 tails 
 
 179 
 111 
 
 
 
 17 
 node 
 
 47 
 
 3 
 
 tails 
 285 
 
 98 
 given 
 
 40 
 
 3 
 
 tails 
 
 tails 
 
 5 
 
 15 
 
 22 
 
 13 
 
 tails 
 
 given 
 given 
 
 
 Essex (House of Detention).. 
 
 
 20 
 
 275 
 
 
 
 
 120 
 1,120 
 
 293 
 244 
 340 
 
 200 
 
 1,213 
 
 78 
 
 detai 
 373 
 
 288 
 
 866 
 
 Is giv 
 
 166 
 1,898 
 
 404 
 382 
 825 
 800 
 
 1,287 
 97 
 
 Is 
 483 
 
 562 
 630 
 en 
 
 25 
 39 
 
 11 
 26 
 
 20 
 
 1 
 
 1(2 
 
 407 
 
 
 
 
 296 
 
 
 28 
 
 1 
 
 given 
 
 
 187 
 467 
 649 
 811 
 
 901 
 71 
 
 54 
 
 5 
 
 113 
 
 14 
 
 105 
 34 
 
 
 
 
 
 Monmouth 
 
 
 
 
 118 
 
 762 
 
 
 
 14 
 1 
 
 5 
 
 173 
 4 
 
 
 
 
 
 
 
 8 
 
 
 
 
 
 96 
 
 19 
 97 
 
 197 
 
 1,085 
 407 
 
 
 
 
 
 4 
 
 
 30 
 
 1 
 
 26 
 
 3 
 
 35 
 
 18 
 tails 
 tails 
 
 148 
 given 
 given 
 
 459 
 
 529 
 748 
 
 170 
 
 233 
 
 257 
 
 34 
 
 59 
 85 
 
 2. Workhouses 
 
 
 Hudson 
 
 
 
 
 
 Mercer 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 18,696 
 
 2,368 
 
 23,057 
 
 10,884 
 
 9,838 
 
 534 
 
 100 
 
 509 
 
 136 
 
 23,057 
 
 1,662 
 
 2,531 
 
 6,315 
 
 9,236 
 
 3,323 
 
 23,057 
 
 2,909 
 
 1,595 
 
 120 
 
 187 
 
 545 
 
 3,952 
 
 9,308 
 
 4,737 
 
 1,825 
 
 186 
 
 9,308 
 
 
 
 300 
 
TABLE VIII. 
 
 Number of Prisoners Admitted in the County Jails and Penitentiaries During the Year 1914. 
 
 
 SEX 
 
 CAUSE OF DETENTION 
 
 AGES 
 
 TEEM OR SENTENCE 
 
 CRIME OR OFFENCE 
 
 INSANE 
 
 COUNTY 
 
 M. 
 
 F. 
 
 Total 
 
 
 s 
 
 a 
 
 V 
 
 u 
 
 DC 
 CO 
 
 a 
 
 V 
 5 
 
 CO 
 
 s 
 
 m 
 
 V 
 a 
 o 
 o 
 
 W 
 
 iS 
 
 Total 
 
 cu 
 
 •a 
 a 
 S3 
 
 o 
 
 ID 
 
 o 
 
 CO 
 
 s 
 
 at 
 
 > 
 
 o 
 ■o 
 
 a 
 
 C8 
 CO 
 
 a 
 
 o 
 
 a 
 M 
 a 
 
 Total 
 
 03 
 
 ■3 
 
 a 
 
 3 
 
 •a 
 
 a 
 3 
 
 6 
 
 S 
 
 o 
 
 S 
 
 CD 
 
 o 
 
 6 
 
 a 
 
 o 
 
 u 
 O 
 t- 
 o 
 ■a 
 a 
 a 
 
 
 
 o 
 
 CD 
 
 a 
 E 
 
 a 
 
 t. o 
 
 °.s 
 
 a 
 
 Total 
 
 £3 
 
 |£ 
 
 Xi u 
 
 t, ID 
 CO** 
 5 
 
 CO 
 
 a 
 
 S 
 a 
 o 
 •a 
 a 
 3 
 
 < 
 
 Total 
 
 •"CO 
 
 •o a 
 
 T3 3 
 3 3 
 O O 
 
 
 1 
 
 2 
 
 8 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 11 
 
 12 
 
 13 
 
 208 
 
 Is giv 
 
 Is giv 
 
 30 
 
 113 
 
 1,718 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 22 
 
 23 
 
 24 
 
 25 
 
 26 
 
 27 
 
 28 
 
 1. Jails 
 (unless otherwise stated) 
 
 536 
 
 no de 
 
 822 
 
 96 
 tails 
 
 50 
 
 652 
 
 given 
 
 872 
 
 1,667 
 
 94 
 
 350 
 
 4,543 
 
 1,303 
 
 213 
 
 4,168 
 
 given 
 
 1,124 
 
 1,056 
 
 1,514 
 
 702 
 
 90 
 
 3,157 
 
 258 
 
 given 
 
 144 
 
 991 
 
 given 
 
 714 
 
 1,001 
 
 411 
 
 73 
 
 165 
 
 68 
 
 200 
 
 8,479 
 
 1,256 
 
 99 
 
 2,216 
 
 663 
 326 
 605 
 829 
 
 12 
 1,754 
 
 99 
 
 83 
 330 
 
 557 
 
 663 
 no 
 26 
 
 148 
 739 
 
 114 
 1,492 
 
 371 
 718 
 885 
 366 
 69 
 1,185 
 154 
 
 56 
 600 
 
 714 
 1,001 
 
 411 
 
 22 
 
 9 
 detai 
 
 
 
 
 652 
 
 872 
 
 1,667 
 
 94 
 
 350 
 4,543 
 1,303 
 
 213 
 4,168 
 
 1,124 
 1,056 
 1,514 
 
 702 
 
 90 
 
 3,157 
 
 258 
 
 144 
 991 
 
 714 
 
 1,001 
 
 411 
 
 29 
 
 no 
 no 
 3 
 11 
 
 1,106 
 
 3 
 
 451 
 
 23 
 31 
 28 
 12 
 
 7 
 
 197 
 
 4 
 
 1 
 
 101 
 
 detai 
 
 detai 
 
 13 
 
 56 
 
 576 
 197 
 14 
 
 775 
 
 168 
 98 
 
 100 
 
 95 
 
 3 
 
 441 
 37 
 
 no de 
 186 
 
 17 
 
 120 
 
 no de 
 
 294 
 
 en 
 en 
 39 
 154 
 2,249 
 
 20 
 
 872 
 
 1,667 
 
 9 
 
 16 
 
 652 
 
 872 
 
 1,667 
 
 94 
 
 350 
 4,543 
 1,303 
 
 213 
 4,168 
 
 1,124 
 1,056 
 1,514 
 
 702 
 
 90 
 
 3,157 
 
 258 
 
 144 
 991 
 
 714 
 
 1,001 
 
 411 
 
 102 
 
 21 
 62 
 
 70 
 976 
 
 219 
 
 454 
 
 238 
 63 
 
 797 
 13 
 
 18 
 854 
 
 44 
 
 94 
 
 no de 
 
 no de 
 
 3 
 
 73 
 
 no de 
 
 no de 
 
 24 
 
 342 
 
 82 
 
 229 
 
 no de 
 
 35 
 
 4 
 
 313 
 
 17 
 
 18 
 137 
 
 327 
 no de 
 no de 
 
 20 
 
 tails 
 tails 
 
 28 
 
 given 
 given 
 
 5 
 
 2 
 10 
 
 2 
 
 308 
 663 
 
 739 
 
 15 
 128 
 
 557 
 
 663 
 
 26 
 148 
 739 
 
 114 
 
 1,492 
 
 371 
 718 
 885 
 366 
 69 
 1,135 
 154 
 
 56 
 600 
 
 714 
 
 1,001 
 
 411 
 
 150 
 
 187 
 
 24 
 124 
 
 407 
 
 464 
 
 2 
 24 
 
 12 
 
 557 
 
 663 
 
 26 
 148 
 739 
 
 114 
 1,492 
 
 371 
 
 718 
 885 
 366 
 69 
 1,135 
 154 
 
 56 
 600 
 
 714 
 
 1,001 
 
 411 
 
 
 
 13 
 
 Is glv 
 
 22 
 en 
 
 
 
 
 
 
 
 
 88 
 
 824 
 
 3.873 
 
 1,077 
 
 204 
 
 3,756 
 
 no de 
 
 1,000 
 
 953 
 
 1,402 
 
 680 
 
 85 
 
 2,785 
 
 238 
 
 no de 
 
 142 
 
 924 
 
 do de 
 
 457 
 887 
 
 
 
 26 
 
 670 
 
 226 
 
 9 
 
 412 
 
 tails 
 
 124 
 
 103 
 
 112 
 
 22 
 
 5 
 
 372 
 
 20 
 
 tails 
 
 2 
 
 67 
 
 tails 
 
 257 
 114 
 
 
 
 2 
 
 205 
 47 
 
 
 
 
 1 
 ta Is 
 tails 
 
 6 
 26 
 
 12 
 
 34 
 
 tads 
 
 2 
 given 
 given 
 
 25 
 
 58 
 
 1 
 
 given 
 
 1 
 
 
 
 24 
 
 
 96 
 
 
 Ess*-x (House of Detention) . . 
 
 13 
 
 101 
 
 
 
 
 
 
 95 
 
 1,388 
 
 423 
 345 
 383 
 215 
 22 
 1.244 
 105 
 
 tails 
 394 
 
 325 
 
 368 
 
 tails 
 
 91 
 1 536 
 
 510 
 581 
 994 
 315 
 68 
 1,260 
 112 
 
 given 
 411 
 
 372 
 
 513 
 
 given 
 
 10 
 18 
 
 6 
 35 
 
 15 
 
 143 
 411 
 
 
 
 121 
 
 36 
 12 
 24 
 1 
 
 24 
 4 
 
 815 
 
 51 
 
 303 
 
 
 242 
 702 
 723 
 349 
 69 
 978 
 101 
 
 55 
 392 
 
 385 
 610 
 
 129 
 
 8 
 
 162 
 
 IS 
 
 13 
 
 
 
 
 
 
 
 
 
 
 
 
 94 
 2 
 
 885 
 8 
 
 
 
 
 6 
 
 9 
 
 221 
 
 8 
 
 
 4 
 
 
 
 
 
 33 
 1 
 
 5 
 22 
 
 14 
 1 
 
 10 
 
 15 
 
 157 
 52 
 
 1 
 165 
 
 280 
 325 
 
 1 
 43 
 
 49 
 66 
 
 
 
 124 
 
 19 
 
 58 
 
 153 
 
 1 
 
 5 
 
 1,001 
 411 
 
 
 
 
 
 
 
 
 
 
 39 
 
 
 51 
 
 18 
 iails 
 tails 
 
 167 
 given 
 given 
 
 297 
 
 
 
 
 2. Workhouses 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 20,253 
 
 2,693 
 
 25,024 
 
 11,756 
 
 10.219 
 
 540 
 
 80 
 
 615 
 
 147 
 
 25,024 
 
 1,906 
 
 2,901 
 
 7,406 
 
 9,489 
 
 3,222 
 
 25,024 
 
 3,426 
 
 1,695 
 
 178 
 
 469 
 
 4,154 
 
 10,219 
 
 5,035 
 
 2,385 
 
 188 
 
 10,219 
 
 803 
 
 
 
TABLE IX. 
 Number of Prisoners Admitted in the County Jails and Penitentiaries During the Year 1915. 
 
 
 SEX 
 
 CAUSE OF DETENTION* 
 
 AGES 
 
 TEEM OR SENTENCE 
 
 CRIME OR OFFENCE 
 
 INSANE 
 
 COUNTY 
 
 M. 
 
 F. 
 
 Total 
 
 w 
 t a! 
 
 3 
 
 EH 
 
 u 
 □ 
 > 
 
 IS 
 
 w 
 
 CO 
 
 « 
 
 CO 
 1) 
 
 
 
 B 
 
 6 
 
 Cfl 
 
 i 
 
 u 
 '? 
 
 a 
 o 
 O 
 
 m 
 
 
 
 Total 
 
 CD 
 
 a 
 D 
 
 o 
 o 
 
 -w 
 
 CO 
 
 s 
 
 
 Oi 
 
 U 
 
 > 
 O 
 
 ■a 
 a 
 
 C3 
 CO 
 
 t 
 
 
 
 a 
 M 
 a 
 U 
 
 Total 
 
 i h 
 
 sis 
 
 d 
 
 s 
 
 CO 
 O 
 
 d 
 a 
 
 CM 
 
 i 
 
 SO 
 
 o 
 
 ■a 
 a 
 
 eS 
 
 P. 
 
 'a 
 o 
 
 CD 
 
 a 
 E 
 
 u a 
 
 .Sg 
 
 Total 
 
 "S S 
 
 a. w 
 >n o 
 
 ii 
 
 ft* 
 
 i 
 
 a 
 
 a 
 
 a 
 o 
 •a 
 a 
 m 
 ,3 
 
 •4 
 
 Total 
 
 a_ 
 cd a 
 II 
 I? 
 
 
 1 
 
 2 
 
 3 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 11 
 
 12 
 
 13 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 22 
 
 28 
 
 24 
 
 25 
 
 26 
 
 27 
 
 28 
 
 1. Jails 
 (unless otherwise stated) 
 
 556 
 
 no de 
 
 755 
 
 78 
 
 tails 
 
 55 
 
 634 
 given 
 
 810 
 1.632 
 
 103 
 
 399 
 3,949 
 1,108 
 
 384 
 3,914 
 given 
 1.046 
 1,063 
 1,582 
 
 639 
 
 136 
 2,934 
 
 617 
 given 
 
 105 
 1,031 
 given 
 
 851 
 
 987 
 398 
 
 41 
 
 218 
 
 70 
 
 236 
 
 2,311 
 
 1,036 
 
 182 
 
 2,497 
 
 579 
 376 
 660 
 264 
 18 
 1,520 
 249 
 
 62 
 331 
 
 584 
 
 537 
 
 no 
 
 20 
 
 159 
 
 1,396 
 
 72 
 
 201 
 
 1,000 
 
 385 
 678 
 902 
 308 
 104 
 1,070 
 355 
 
 42 
 666 
 
 851 
 987 
 398 
 
 9 
 
 6 
 
 detai 
 
 13 
 
 4 
 
 154 
 
 'i' 
 
 117 
 
 23 
 9 
 
 20 
 5 
 
 
 
 
 634 
 
 810 
 1,632 
 
 183 
 
 399 
 3,949 
 1,108 
 
 384 
 3.914 
 
 1,046 
 
 1,063 
 
 1,582 
 
 639 
 
 136 
 
 2,934 
 
 617 
 
 105 
 1,031 
 
 851 
 987 
 398 
 
 
 
 231 
 
 Is giv 
 
 Is giv 
 
 25 
 
 101 
 
 1,584 
 
 293 
 
 en 
 en 
 37 
 
 216 
 
 1,988 
 
 1 
 
 810 
 
 1,632 
 
 26 
 
 36 
 
 634 
 
 33 
 
 79 
 
 no 
 
 5 
 
 60 
 
 no de 
 
 no de 
 
 14 
 
 213 
 
 124 
 
 200 
 
 no de 
 
 42 
 
 6 
 
 835 
 
 18 
 
 18 
 157 
 
 432 
 no de 
 no de 
 
 23 
 
 detai 
 
 35 
 Is 
 
 5 
 
 no de 
 2 
 
 4 
 
 409 
 
 537 
 tails 
 
 72 
 120 
 13 
 
 
 
 386 
 
 321 
 
 2 
 21 
 
 ' ' 173 
 
 12 
 
 584 
 
 537 
 
 20 
 
 159 
 
 1,396 
 
 72 
 
 201 
 
 1,000 
 
 385 
 678 
 902 
 308 
 104 
 1,070 
 355 
 
 42 
 666 
 
 851 
 987 
 398 
 
 
 
 13 
 is giv 
 
 36 
 en 
 
 
 no detai 
 
 no detai 
 
 3 : 12 
 
 584 108 
 
 
 
 537 
 
 given 
 
 20 
 
 159 
 
 1,396 
 
 72 
 
 201 
 
 1,000 
 
 204 
 
 18 
 138 
 
 ' ' ' 28 
 
 
 
 810 
 1,632 
 
 103 ; 13 
 
 
 
 96 
 336 
 
 3,275 
 928 
 369 
 
 3,539 
 
 no de 
 902 
 951 
 
 1,462 
 599 
 132 
 
 2,624 
 580 
 
 no de 
 103 
 949 
 
 no de 
 
 562 
 903 
 
 7 
 
 13 
 
 674 
 
 186 
 
 15 
 
 375 
 
 tails 
 
 144 
 
 112 
 
 120 
 
 40 
 
 4 
 
 310 
 
 37 
 
 tails 
 
 2 
 
 82 
 
 tails 
 
 289 
 84 
 
 
 Essex (House of Detention) . . 
 
 23 
 
 
 65 
 
 972 
 11 
 
 407 
 
 17 
 35 
 28 
 12 
 
 1 
 163 
 
 9 
 
 377 
 136 
 
 47 
 692 
 
 137 
 119 
 101 
 
 37 
 
 6 
 
 393 
 
 59 
 
 399 
 3,949 
 1,108 
 
 384 
 3,914 
 
 95 
 
 67 
 752 
 
 tails 
 taiis 
 
 given 
 given 
 
 
 
 27 273 
 
 Eg 
 
 1,331 
 
 381 
 
 388 
 
 404 
 
 80 
 
 29 
 
 1,114 
 
 251 
 
 1,465 
 
 511 
 462 
 
 1.049 
 167 
 100 
 
 1,261 
 288 
 
 19 
 
 59 
 343 
 
 3 
 
 15 
 
 105 
 398 
 
 20 
 
 41 
 
 13 
 
 tails 
 
 1 
 
 10 
 
 2 
 52 
 
 
 258 
 
 
 6 
 
 
 
 
 110 
 5 
 
 213 
 
 37 
 
 2 
 
 161 
 
 131 
 
 5 
 142 
 
 256 
 321 
 
 1 
 4 
 
 27 
 
 34 
 
 63 
 
 78 
 
 
 
 1,046 168 
 
 385 275 
 
 
 Monmouth 
 
 Morris 
 
 
 62 
 
 14 
 
 314 
 
 3 
 
 
 1,582 
 639 
 136 
 
 2.934 
 617 
 
 105 
 1,031 
 
 851 
 987 
 398 
 
 206 
 
 97 
 713 
 27 
 
 14 
 405 
 
 82 
 
 given 
 1 
 
 58 
 
 902 
 1 
 
 678 
 902 
 308 
 104 
 1,070 
 355 
 
 672 
 689 
 207 
 102 
 909 
 197 
 
 
 
 15 
 9 
 
 1 
 15 
 
 15 
 1 
 
 12 
 
 
 
 
 
 319 
 
 3 
 38 
 
 147 
 
 987 
 398 
 
 
 
 4 
 65 
 
 22 
 tails 
 tails 
 
 3 
 
 1 
 
 168 
 given 
 given 
 
 
 
 3 
 
 16 
 
 
 no 
 
 194 
 
 27 
 
 97 
 
 detai 
 
 410 
 
 801 
 
 324 
 
 Is giv 
 
 427 
 
 523 
 566 
 en 
 
 42 87 
 
 
 
 666 
 
 851 
 987 
 398 
 
 490 
 
 532 
 
 588 
 
 
 2. Workhouses 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 19,665 
 
 2,627 2*.321 
 
 10,650 
 
 10,715 
 
 401 
 
 88 
 
 718 
 
 118 
 
 24,322 
 
 
 7,049 
 
 9,371 
 
 8,655 
 
 24,322 
 
 3,137 
 
 1,703 
 
 199 
 
 
 
 3,429 
 
 10,715 
 
 5,344 
 
 2,486 
 
 219 
 
 10,715 
 
 
 
 
 
 
 
 274 
 
 567 
 
 258 
 
TABLE X. 
 Number of Prisoners Admitted in the County Jails and Penitentiaries During the Year 1916. 
 
 
 SEX 
 
 CAUSE OF DETENTION 
 
 AGES 
 
 TERM OR SENTENCE 
 
 CRIME OR OFFENCE 
 
 INSANE 
 
 COUNTY 
 
 M. 
 1 
 
 F. 
 
 Total 
 
 «3 
 
 0- 
 
 a 
 
 H 
 KD 
 
 a 
 V 
 
 91 
 O- 
 CO 
 CO 
 
 a 
 1 
 
 > 
 
 5 
 
 CO 
 
 m 
 o 
 V 
 a 
 o 
 a 
 
 to 
 
 & 
 
 Total 
 
 u 
 ■a 
 
 
 
 E3 
 
 © 
 
 O 
 
 CO 
 
 s 
 
 o 
 
 CO 
 
 > 
 o 
 ■a 
 a 
 
 CO 
 
 a 
 
 o 
 a 
 Jt 
 a 
 D 
 
 Total 
 
 go 
 Co 
 
 o> 
 
 ■a 
 a 
 
 cS 
 
 6 
 g 
 
 o 
 
 s 
 
 O 
 
 d 
 
 S 
 
 CM 
 
 o 
 
 t 
 
 o 
 ■a 
 a 
 
 C3 
 
 S 
 O 
 
 a 
 £ 
 
 & a 
 °is 
 „ • o 
 
 «! 
 
 a a 
 
 «3 
 
 Total 
 
 cu a 
 
 T3 O 
 
 O ^ 
 CO * 
 
 5 o, 
 
 6 
 
 CO 
 
 «3 
 
 d 
 
 s 
 
 a 
 o 
 •o 
 
 
 
 CO 
 J= 
 
 <! 
 
 Total 
 
 a 
 *"co 
 
 go 
 
 5° 
 
 
 2 
 
 3 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 11 
 
 12 
 
 13 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 22 
 
 23 
 
 24 
 
 25 
 
 26 
 
 27 
 
 28 
 
 1. Jails 
 (unless otherwise stated) 
 
 820 
 
 no de 
 
 674 
 
 47 
 
 tails 
 
 50 
 
 367 
 given 
 724 
 1,604 
 87 
 297 
 given 
 given 
 436 
 3,321 
 given 
 958 
 
 1 007 
 
 17 
 188 
 
 65 
 
 157 
 
 248 
 1,906 
 
 565 
 345 
 530 
 262 
 28 
 1,443 
 243 
 
 82 
 263 
 
 336 
 
 519 
 no 
 14 
 
 137 
 
 184 
 935 
 
 388 
 707 
 779 
 304 
 187 
 1,479 
 198 
 
 32 
 567 
 
 822 
 
 1,027 
 
 475 
 
 14 
 
 5 
 
 detai 
 
 8 
 
 3 
 
 4 
 
 141 
 
 18 
 
 45 
 
 9 
 
 5 
 
 1 
 
 16 
 6 
 
 
 
 
 367 
 
 724 
 
 1,604 
 
 87 
 
 297 
 
 436 
 3,321 
 
 958 
 1,097 
 1,318 
 
 635 
 
 218 
 3,017 
 
 445 
 
 115 
 907 
 
 822 
 
 1,027 
 
 475 
 
 15 
 
 no 
 
 no 
 
 1 
 
 23 
 
 11 
 
 433 
 
 29 
 56 
 18 
 11 
 
 1 
 191 
 
 9 
 
 no 
 no 
 
 51 
 
 detai 
 
 detai 
 
 10 
 
 36 
 
 55 
 532 
 
 97 
 49 
 71 
 87 
 4 
 351 
 48 
 
 detai 
 155 
 
 18 
 
 68 
 
 detai 
 
 114 
 
 Is giv 
 
 Is giv 
 
 24 
 
 68 
 
 132 
 1,038 
 
 287 
 
 828 
 
 326 
 
 80 
 
 25 
 
 1,086 
 
 179 
 
 is giv 
 316 
 
 229 
 
 316 
 
 Is giv 
 
 183 
 
 en 
 en 
 89 
 134 
 
 288 
 1,312 
 
 545 
 625 
 903 
 168 
 188 
 1,368 
 208 
 
 en 
 436 
 
 575 
 643 
 en 
 
 4 
 
 724 
 
 1,604 
 18 
 36 
 
 6 
 
 39 
 
 339 
 
 21 
 1 
 
 115 
 
 475 
 
 367 
 
 724 
 
 1,604 
 
 87 
 
 297 
 
 436 
 3,321 
 
 958 
 1,097 
 1,318 
 
 635 
 
 218 
 3,017 
 
 445 
 
 115 
 
 907 
 
 822 
 
 1,027 
 
 475 
 
 104 
 
 7 
 66 
 
 77 
 543 
 
 196 
 451 
 
 205 
 
 160 
 
 1,120 
 
 17 
 
 23 
 350 
 
 81 
 
 48 
 no de 
 
 4 
 
 70 
 
 19 
 841 
 
 68 
 
 238 
 
 no de 
 
 42 
 
 15 
 340 
 
 33 
 
 7 
 134 
 
 488 
 no de 
 no de 
 
 24 
 
 tails 
 
 2 
 
 21 
 given 
 
 1 
 
 1 
 
 7 
 
 139 
 
 519 
 no 
 
 81 
 4 
 
 336 
 
 519 
 
 details 
 
 14 
 
 137 
 
 184 
 935 
 
 338 
 707 
 779 
 304 
 187 
 1,479 
 193 
 
 32 
 567 
 
 822 
 1,027 
 
 475 
 
 122 
 
 227 
 
 given 
 
 12 
 
 126 
 
 21 
 
 214 
 287 
 
 2 
 
 11 
 
 163 
 
 5 
 
 336 
 
 519 
 
 14 
 137 
 
 184 
 935 
 
 338 
 707 
 779 
 304 
 187 
 1,479 
 193 
 
 32 
 567 
 
 822 
 
 1,027 
 
 475 
 
 
 
 5 
 Is giv 
 
 7 
 en 
 
 
 
 
 
 
 
 
 70 
 
 276 
 
 no 
 
 no 
 
 422 
 
 2,917 
 
 no de 
 
 865 
 
 1.014 
 
 1,216 
 
 598 
 
 17 
 
 21 
 
 data 
 
 data 
 
 14 
 
 404 
 
 tails 
 
 93 
 
 83 
 
 
 
 
 
 
 
 
 
 
 
 Essex (House of Detention) . . 
 
 
 
 46 
 5 
 
 293 
 
 32 
 
 22 
 
 31 
 
 17 
 
 tails 
 
 25 
 43 
 
 279 
 
 
 254 
 669 
 585 
 268 
 175 
 1,303 
 107 
 
 84 
 3 
 194 
 38 
 12 
 
 86 
 
 35 
 
 3 
 
 176 
 
 
 
 
 
 1 
 
 779 
 
 
 
 102 1 1,318 
 
 87! 635 
 
 2 1 218 
 
 360 j 3,017 
 
 22 ! 445 
 
 tails given 
 
 1 IIS 
 
 
 
 
 given 
 
 57 
 12 
 
 
 
 2 
 11 
 
 64 
 
 
 
 
 216 
 
 
 
 
 
 2,657 
 428 
 
 no de 
 114 
 826 
 
 68 
 3 
 
 1 
 61 
 
 
 4 
 
 15 
 
 
 
 143 
 
 2 
 36 
 
 53 
 
 6 
 
 1,027 
 
 475 
 
 
 
 
 
 
 
 R1 
 
 907 
 
 given 
 
 822 
 
 1,027 
 
 475 
 
 ii 
 
 5 
 
 47 
 
 24 
 
 tails 
 tails 
 
 170 
 given 
 given 
 
 383 
 522 
 
 151 
 259 
 
 33 
 
 41 
 
 
 
 
 
 2. Workhouses 
 
 621 
 
 938 
 
 201 
 89 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 14,167 
 
 
 
 
 
 
 
 
 
 
 Grand Totals 
 
 1,624 
 
 17,870 
 
 6,342 
 
 9,035 
 
 286 
 
 74 
 
 497 
 
 32 
 
 17,870 
 
 798 
 
 1,583 
 
 4,548 
 
 7,565 
 
 3,377 
 
 17,870 
 
 3,400 
 
 1,847 
 
 171 
 
 274 
 
 312 
 
 3,031 
 
 9,035 
 
 4,769 
 
 1,504 
 
 293 
 
 9,035 
 
 279 
 
TABLE XI. 
 Number of Female Prisoners Admitted in the County Jails and Penitentiaries During the Five Years 1912 to 1916 Inclusive. 
 
 
 PERIOD COVERED 
 (1912-1916 inclusive un- 
 less otherwise stated) 
 
 o 
 
 En 
 
 CAUSE OF DETENTION 
 
 AGES 
 
 TERM OR SENTENCE 
 
 CRIME OR OFFENCE 
 
 INSANE 
 
 COUNTY 
 
 Pi 
 
 £ 
 
 H 
 
 P 
 '> 
 U 
 
 W 
 
 T. 
 
 Si 
 
 00 
 
 en 
 CD 
 
 a 
 % 
 
 5 
 
 o 
 
 a 
 
 C/3 
 O 
 > 
 
 a 
 
 
 
 O 
 
 t5 
 
 Total 
 
 u 
 0) 
 
 a 
 
 s 
 
 o 
 +^ 
 to 
 
 s 
 
 o 
 
 3) 
 > 
 O 
 
 ■O 
 
 B 
 03 
 
 CO 
 
 o 
 
 a 
 
 A3 
 
 a 
 
 Total 
 
 u 
 
 0> 
 
 B 
 
 •a 
 a 
 
 SB 
 
 6 
 
 a 
 
 6 
 
 a 
 
 o 
 
 d 
 
 s 
 
 o 
 
 CD 
 
 u 
 
 co 
 
 t> 
 o 
 
 ■a 
 
 p 
 
 c 
 
 B 
 O 
 C0 
 P 
 
 E 
 
 B 
 
 o 
 
 <S B 
 
 M 
 
 Total 
 
 V a 
 'a « 
 
 u U 
 Q 
 
 s 
 
 p 
 
 s 
 
 p 
 o 
 ■a 
 
 p 
 
 =3 
 
 a 
 
 < 
 
 Total 
 
 5-S 
 ■a a 
 
 *! 
 
 a2 
 •So 
 
 BO 
 
 
 1 
 
 2 
 
 3 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 11 
 
 12 
 
 13 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 33 
 
 33 
 
 24 
 
 35 
 
 26 
 
 1. Jails 
 (unless otherwise stated) 
 
 
 373 
 858 
 256 
 966 
 
 43 
 
 105 
 
 2.490 
 
 800 
 
 45 
 
 1,868 
 
 18 
 
 536 
 
 364 
 
 538 
 
 171 
 
 11 
 
 1.631 
 
 117 
 
 56 
 
 13 
 
 416 
 
 32 
 
 1,036 
 540 
 no 
 
 118 
 
 403 
 36 
 67 
 
 33 
 
 o 
 
 852 
 
 10 
 
 118 
 
 92 
 3 
 
 63 
 
 9 
 
 19 
 
 details 
 
 255 
 no 
 no 
 564 
 6 
 
 88 
 no 
 no 
 
 23 
 
 639 
 
 8 
 no 
 348 
 no 
 73 
 
 8 
 no 
 49 
 no 
 
 4 
 no 
 
 3 
 
 1,036 
 540 
 given 
 
 
 
 
 
 373 
 358 
 256 
 966 
 
 42 
 
 105 
 
 2,490 
 
 800 
 
 45 
 
 1,868 
 
 18 
 
 536 
 
 364 
 
 528 
 
 171 
 
 11 
 
 1,631 
 
 117 
 
 56 
 
 13 
 
 416 
 
 22 
 
 1,036 
 540 
 
 o 
 39 
 
 10 
 5 
 
 no 
 
 no 
 
 no 
 
 no 
 
 no 
 
 no 
 
 no 
 
 no 
 
 no 
 
 o 
 
 127 
 
 no 
 
 no 
 
 no 
 
 no 
 
 37 
 no 
 no 
 
 28 
 no 
 no 
 no 
 no 
 
 no 
 
 10 
 
 details 
 details 
 details 
 details 
 detaiis 
 details 
 details 
 details 
 details 
 
 o 
 
 313 
 details 
 details 
 details 
 details 
 
 46 
 details 
 details 
 
 49 
 details 
 details 
 details 
 details 
 
 details 
 145 
 
 given 
 given 
 given 
 given 
 given 
 given 
 given 
 given 
 given 
 
 
 
 626 
 given 
 given 
 given 
 given 
 
 50 
 given 
 given 
 
 35 
 given 
 given 
 given 
 given 
 
 given 
 385 
 
 o 
 
 30 
 
 38 
 
 373 
 358 
 256 
 966 
 
 42 
 
 105 
 
 2,490 
 
 800 
 
 45 
 
 1,868 
 
 18 
 
 536 
 
 364 
 
 528 
 
 171 
 
 11 
 
 1,631 
 
 117 
 
 56 
 
 13 
 
 416 
 
 22 
 
 1,036 
 540 
 
 71 
 
 431 
 8 
 9 
 
 11 
 
 373 
 3 
 
 140 
 
 43 
 6 
 
 3 
 
 74 
 
 83 
 2 
 33 
 
 3 
 
 218 
 4 
 
 99 
 
 8 
 
 1 
 
 11 
 
 8 
 
 no det 
 
 no det 
 
 3 
 
 1 
 
 13 
 
 ails giv 
 
 ails giv 
 
 45 
 
 1 
 en 
 
 en 
 
 2 
 
 88 
 
 255 
 
 564 
 36 
 38 
 
 given 
 given 
 
 23 
 
 639 
 
 8 
 given 
 
 248 
 given 
 
 72 
 8 
 given 
 
 49 
 given 
 
 4 
 given 
 
 3 
 
 1,036 
 540 
 
 151 
 
 451 
 
 6 
 
 88 
 
 1 
 
 104 
 113 
 
 
 255 
 
 564 
 36 
 
 38 
 
 23 
 
 639 
 8 
 
 248 
 
 72 
 8 
 
 49 
 
 4 
 
 3 
 
 1,036 
 540 
 
 
 
 
 details 
 details 
 
 given 
 given 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Essex (House of Detention) . . 
 
 1912 to 1915 
 
 1912 to 1915 
 
 details 
 details 
 
 given 
 given 
 
 
 
 
 
 6 
 no 
 no 
 
 details 
 
 details 
 
 9 
 
 9 
 
 details 
 
 o 
 
 22 
 
 
 
 
 
 
 
 
 o 
 
 103 
 
 
 
 
 18 
 9 
 
 31 
 1 
 
 1 
 no 
 
 289 
 
 
 Aug. 1914 to Sept. 1917. . 
 
 details 
 
 given 
 
 
 
 5 
 
 247 
 
 66 
 5 
 
 29 
 
 4 
 
 3 
 
 no de 
 no de 
 
 8 
 
 1 
 
 6 
 3 
 
 20 
 
 
 
 
 1913 to 1916 
 
 
 
 
 details 
 2 
 
 given 
 
 5 
 
 
 1 
 
 no 
 
 1 
 no 
 35 
 no 
 
 1 
 no 
 
 details 
 20 
 
 details 
 
 details 
 
 details 
 
 
 
 1914 to 1916 
 
 
 
 
 details 
 
 5 
 
 details 
 
 given 
 
 
 
 1 
 
 
 
 
 June 1914 to Oct. 1917... 
 
 given 
 
 
 
 
 
 3 
 
 1 
 3 
 
 
 
 
 details 
 
 given 
 
 
 
 
 
 
 
 
 3. Workhouses. 
 
 
 
 
 
 
 no det 
 no det 
 
 ails giv 
 ails giv 
 
 en 
 en 
 
 
 tails 
 tails 
 
 given 
 given 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 13,762 
 
 1,309 
 
 3,493 
 
 110 
 
 
 5 
 
 
 12,762 
 
 54 
 
 193 
 
 552 
 
 1,096 
 
 * 
 10,868 
 
 12,762 
 
 1,098 
 
 530 
 
 40 
 
 81 
 
 47 
 
 * 
 1,702 
 
 3,493 
 
 1,001 
 
 277 
 
 
 3,493 
 
 289 
 
 
 
 o Data given for only three years. 
 
 * There being no separate entries for ages, this total of unknown may be obtained by simple arithmetic. 
 
TABLE XII. 
 
 Average Number of Female Prisoners Admitted Annually in the County Jails and Penitentiaries During the Five Years 1912 to 1916 Inclusive. 
 
 
 PERIOD COVERED 
 
 (1918-1916 inclusive, un- 
 less otherwise stated) 
 
 EC 
 
 3 
 
 o 
 
 Eh 
 
 CAUSE OF DETENTION 
 
 AGES 
 
 TERM OR SENTENCE 
 
 CRIME OR OFFENCE 
 
 
 CODNTY 
 
 18 
 
 Of 
 
 Dm 
 
 S 
 
 to 
 _a 
 V 
 
 u 
 0) 
 03 
 
 a 
 
 is 
 
 5 
 
 g 
 
 03 
 4^ 
 O 
 
 '> 
 
 a 
 o 
 O 
 
 w 
 £> 
 
 Total 
 
 U 
 
 ■a 
 a 
 
 o 
 o 
 
 o 
 so 
 o 
 
 h 
 <D 
 
 O 
 
 a 
 
 02 
 
 a 
 
 o 
 
 a 
 
 M 
 
 a 
 i= 
 
 Total 
 
 CO 
 
 ■O 
 
 a 
 a 
 ■a 
 a 
 
 C3 
 
 6 
 
 6 
 
 o 
 
 a 
 
 o 
 
 6 
 
 a 
 
 o 
 
 CD 
 
 u 
 
 > 
 o 
 
 "3 
 
 a 
 cs 
 
 u 
 
 "a 
 o 
 a> 
 a 
 
 s 
 
 a 
 » 
 
 Total 
 
 "2 2 
 m a 
 
 •o 
 11 
 
 a 
 
 6 
 
 EC 
 
 3 
 
 a 
 
 OJ 
 
 S 
 a 
 o 
 x: 
 a 
 
 CS 
 
 .a 
 < 
 
 Total 
 
 INSANE 
 
 
 1 
 
 2 
 
 3 
 
 4 
 
 5 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 11 
 
 12 
 
 13 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 22 
 
 23 
 
 24 
 
 25 
 
 26 
 
 1. Jails 
 
 (unless otherwise stated) 
 
 
 75 
 
 78 
 
 51 
 
 198 
 
 8 
 
 81 
 
 683 
 
 800 
 
 9 
 
 373 
 
 6 
 
 107 
 
 91 
 
 106 
 
 34 
 
 4 
 
 826 
 
 23 
 
 17 
 
 8 
 
 88 
 
 4 
 
 807 
 108 
 no 
 
 24 
 
 80 
 7 
 13 
 
 4 
 
 o 
 
 117 
 
 3 
 
 29 
 
 19 
 1 
 
 12 
 
 8 
 
 3 
 
 details 
 
 51 
 
 no 
 
 no 
 
 113 
 
 1 
 
 8 
 
 no 
 
 no 
 
 5 
 
 128 
 
 3 
 no 
 62 
 no 
 14 
 
 3 
 no 
 10 
 no 
 
 1 
 no 
 
 1 
 
 207 
 108 
 given 
 
 
 
 
 
 75 
 
 72 
 
 51 
 
 193 
 
 8 
 
 21 
 
 623 
 
 200 
 
 9 
 
 373 
 
 6 
 
 107 
 
 91 
 
 106 
 
 34 
 
 4 
 
 326 
 
 23 
 
 17 
 
 3 
 
 83 
 
 4 
 
 207 
 108 
 
 
 no 
 no 
 no 
 
 details 
 details 
 details 
 
 given 
 given 
 given 
 given 
 given 
 given 
 given 
 
 
 75 
 
 72 
 
 51 
 
 193 
 
 8 
 
 21 
 
 623 
 
 200 
 
 9 
 
 373 
 
 6 
 
 107 
 
 91 
 
 106 
 
 34 
 
 4 
 
 326 
 
 23 
 
 17 
 
 3 
 
 83 
 
 4 
 
 207 
 108 
 
 14 
 
 86 
 1 
 2 
 
 2 
 
 74 
 1 
 
 35 
 
 9 
 2 
 
 1 
 
 1 
 
 15 
 17 
 
 2 
 1 
 
 3 
 9 
 
 no 
 
 no 
 
 17 
 details 
 details 
 
 51 
 
 given 
 given 
 
 113 
 1 
 
 8 
 
 given 
 given 
 
 5 
 
 128 
 3 
 given 
 
 62 
 given 
 
 14 
 3 
 given 
 
 10 
 given 
 
 1 
 given 
 
 1 
 
 207 
 108 
 
 30 
 
 90 
 1 
 
 7 
 
 1 
 
 128 
 2 
 
 62 
 
 13 
 2 
 
 6 
 
 1 
 
 1 
 
 no de 
 no de 
 
 21 
 23 
 
 
 51 
 
 113 
 1 
 
 8 
 
 5 
 
 128 
 3 
 
 62 
 
 14 
 3 
 
 10 
 
 1 
 
 1 
 
 207 
 108 
 
 
 
 
 details 
 details 
 
 given j 
 given 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 no details 
 no details 
 no details 
 
 
 Essex (House of Detention) . . 
 
 1913 to 1915 
 
 details 
 details 
 
 given 
 given 
 
 i 
 
 5 
 
 1 
 
 44 
 1 
 
 25 
 
 1 
 
 
 
 1 
 no 
 no 
 
 details 
 
 details 
 
 2 
 
 8 
 
 1 
 4 
 
 
 
 
 
 • 
 
 
 
 
 
 
 
 
 
 
 
 24 
 
 ! 
 
 o 
 13 
 
 2 
 
 o 
 42 
 no 
 no 
 no 
 no 
 5 
 
 
 
 104 
 details 
 details 
 details 
 details 
 9 
 
 
 
 209 
 given 
 given 
 given 
 given 
 10 
 
 
 
 10 
 8 
 
 4 
 2 
 
 4 
 1 
 
 
 
 
 Aug. 1914 to Sept. 1917. 
 
 i j 
 
 96 
 
 
 1913 to 1916 
 
 details 
 
 given 
 
 
 no 
 
 details 
 
 
 
 
 
 
 details 
 
 given 
 
 1 \ 
 
 
 no 
 
 details 
 4 
 
 details 
 
 details 
 
 1 
 1 
 
 4 
 
 
 
 
 
 details 
 
 1 
 
 details 
 
 given 
 given i 
 
 1 
 
 
 
 given 
 
 7 
 given 
 given 
 given 
 
 
 2 
 
 
 
 1 
 no 
 
 7 
 no 
 
 
 
 
 5 j 10 
 
 
 
 June 1914 to Oct. 1917. . 
 
 
 
 
 
 no 
 no 
 
 details 
 details 
 
 
 
 
 details 
 
 given 
 
 1 
 
 no 
 no 
 
 
 
 no 
 
 details 
 
 
 
 
 8. Workhouses 
 
 
 
 
 
 
 no 
 2 
 
 details 
 29 
 
 given 
 77 
 
 
 details 
 details 
 
 given 
 given 
 
 
 
 tails 
 tails 
 
 given 
 given 
 
 
 
 
 
 
 
 
 
 
 
 j 
 
 
 
 
 
 
 Grand Totals 
 
 
 2,744 
 
 314 
 
 715 
 
 25 
 
 | 
 
 i 
 
 
 2,744 
 
 16 
 
 54 
 
 152 
 
 303 
 
 * 
 2,201 
 
 2,744 
 
 228 
 
 112 
 
 9 
 
 17 
 
 9 
 
 * 
 340 
 
 715 
 
 344 
 
 56 
 
 
 715 
 
 
 ■ 
 
 
 
 
 
 
 96 
 
 o Data given for only three years. 
 
 * There being no separate entries in this column, figure was obtained by simple arithmetic. 
 
TABLE 
 Number of Convicted Prisoners Admitted in the County Jails an 
 
 z=z=~ 
 
 PERIOD COVERED 
 (1912 to 1916 inclusive un- 
 less otherwise stated) 
 
 SEX 
 
 AGES 
 
 
 
 M. 
 
 F. 
 
 Total 
 
 Under 16 
 
 16 to 20 
 
 21 to 30 
 
 31 and over 
 
 Unknown 
 
 Total 
 
 1 mo 
 
 . andu 
 
 COUNTY 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 
 1 
 
 2 
 
 3 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 11 
 
 12 
 
 13 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 1. Jails 
 (unless otherwise stated) 
 
 
 1,586 
 
 255 
 
 1,841 
 
 1,347 
 
 3,028 
 
 4,028 
 
 109 
 
 705 
 
 3,758 
 
 161 
 
 919 
 
 5,695 
 
 194 
 
 1,650 
 
 2,575 
 
 4,190 
 
 1,659 
 
 360 
 
 5,675 
 
 913 
 
 655 
 
 251 
 
 3,123 
 
 216 
 
 3,470 
 5,179 
 1,691 
 
 5 
 
 
 5 
 
 114 
 
 4 
 54 
 
 38 
 927 
 
 211 
 
 70 
 5 
 
 25 
 
 1 
 6 
 
 3 
 
 28 
 
 23 
 9 
 
 169 
 
 5 
 60 
 
 hi 
 
 9SS 
 
 23h 
 78 
 
 e 
 
 66 
 
 24 
 
 115 
 1,65 
 
 878 
 
 no de 
 
 no de 
 
 no de 
 
 31 
 
 240 
 no de 
 no de 
 
 209 
 1,548 
 no de 
 no de 
 
 729 
 no de 
 
 384 
 
 52 
 
 no de 
 
 86 
 
 tails 
 
 tails 
 
 tails 
 
 3 
 
 9 
 
 tails 
 
 tails 
 
 7 
 
 119 
 
 tails 
 
 tails 
 
 71 
 
 tails 
 
 16 
 
 2 
 
 tails 
 
 464 
 given 
 given 
 given 
 34 
 
 249 
 given 
 given 
 
 216 
 1,667 
 given 
 given 
 
 800 
 given 
 
 hOO 
 54 
 given 
 
 SS8 
 given 
 given 
 given 
 44 
 
 1,260 
 1,719 
 given 
 
 809 
 
 54 
 348 
 
 466 
 2,532 
 
 1,324 
 
 788 
 295 
 
 179 
 
 2 
 
 17 
 
 12 
 492 
 
 140 
 
 32 
 6 
 
 988 
 
 56 
 S60 
 
 478 
 3,02k 
 
 1,414 
 
 820 
 SOI 
 
 1,95 
 
 127 
 
 2,S65 
 2,995 
 
 223 
 
 14 
 21 
 
 176 
 22 
 
 27 
 842 
 
 22 
 4 
 
 4 
 14 
 
 245 
 
 34 
 
 25 
 
 176 
 22 
 
 31 
 
 356 
 
 1,841 
 
 1,347 
 
 3,028 
 
 4,028 
 
 109 
 
 705 
 
 3,758 
 
 161 
 
 919 
 
 5,695 
 
 194 
 
 1,650 
 
 2,575 
 
 4,190 
 
 1,659 
 
 360 
 
 5,675 
 
 913 
 
 655 
 
 251 
 
 3,123 
 
 216 
 
 3,740 
 5,179 
 1,691 
 
 270 
 
 2,215 
 67 
 869 
 
 327 
 
 3,389 
 86 
 
 71 
 
 
 
 
 
 
 
 
 
 
 
 3,464 
 103 
 667 
 
 564 
 6 
 88 
 
 3 
 
 
 
 9 
 
 7 
 27 
 
 36 
 3 
 
 2 
 1 
 
 10 
 1 
 
 11 
 
 8 
 27 
 
 46 
 4 
 
 9 
 
 
 
 
 Essex (House of Detention) . . 
 
 
 
 
 
 
 896 
 
 5,056 
 
 lb6 
 
 23 
 
 639 
 
 8 
 
 878 
 
 
 
 2 
 
 
 Aug. 1914 to Sept. 1917. . . . 
 
 
 1,507 
 
 923 
 314 
 
 140 
 
 
 
 2,327 
 
 248 
 
 
 
 
 43 
 
 
 
 1.587 
 352 
 
 72 
 8 
 
 6 
 
 
 
 
 
 2 
 
 
 
 12 
 21 
 
 70 
 120 
 
 2 
 
 
 
 
 
 
 
 23 
 
 1 
 
 no de 
 
 no de 
 
 no de 
 
 44 
 
 tails 
 tails 
 tails 
 
 126 
 
 1 
 
 20 
 
 1 
 
 2 
 
 
 
 247 
 
 4 
 
 
 
 
 141 
 
 
 2. Workhouses 
 
 
 
 
 
 
 
 
 
 
 4,639 
 
 
 
 
 
 455 
 
 10 
 
 no de 
 
 tails 
 
 
 
 
 
 
 
 
 
 
 22,187 
 
 2,457 
 
 53,662 
 
 87 
 
 14 
 
 10S 
 
 1,901 
 
 106 
 
 2,218 
 
 5,189 
 
 458 
 
 7.245 
 
 9,347 
 
 1,266 
 
 13,1,73 
 
 845 
 
 45 
 
 902 
 
 53,662 
 
 9,858 
 
 1,098 
 
 -In columns it> ana it anu oa auu ou me giauu ia„.£ho »" Ui 
 unknown would include a larger number, for whom no e 
 of unknown with Table V. 
 
TABLE XIII. 
 y Jails and Penitentiaries During the Five Years 1912 to 1916 Inclusive. 
 
 
 TEEM OE SENTENCE 
 
 Disor 
 
 — y 
 
 
 CE1ME 
 
 OR OFFENSE 
 
 
 INSANE 
 
 
 1 mo. and under 
 
 1 to 6 mo. 
 
 6 to 12 mo. 
 
 1 yr. and 
 
 over 
 
 Fine only 
 
 Indef. 
 
 or Unknown 
 
 Total 
 
 l eI -ly Persons 
 
 Misc. 
 
 Abandonment 
 
 Total 
 
 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. F. 
 
 T. 
 
 
 
 20 
 
 21 
 
 22 
 
 23 
 
 24 
 
 25 
 
 26 
 
 27 
 
 28 
 
 29 
 
 30 
 
 31 
 
 32 
 
 33 
 
 34 
 
 35 
 
 36 
 
 87 
 
 38 
 
 39 
 
 .10 
 
 41 
 
 42 
 
 43 
 
 44 
 
 45 
 
 46 
 
 47 
 
 48 
 
 49 
 
 
 870 
 
 8,215 
 
 67 
 
 369 
 
 327 
 
 3,389 
 
 86 
 
 71 
 
 431 
 3 
 9 
 
 11 
 
 373 
 
 2 
 
 Shi 
 
 2,6h6 
 70 
 
 S78 
 
 3S8 
 
 8,762 
 
 88 
 
 868 
 1,707 
 
 966 
 S20 
 
 h,05h 
 72 
 
 1« 
 
 1,9S2 
 
 lhl 
 
 269 
 
 343 
 
 667 
 
 25 
 266 
 
 197 
 1,177 
 
 ;,o 
 
 74 
 
 83 
 
 2 
 
 23 
 
 3 
 
 218 
 4 
 
 hl7 
 
 750 
 27 
 289 
 
 200 
 
 1.395 
 
 5h 
 
 USS 
 
 788 
 
 193 
 
 25 
 
 1,529 
 
 89 
 
 60 
 670 
 61 
 
 1,889 
 
 71 
 
 30 
 2 
 6 
 
 11 
 
 66 
 4 
 
 8 
 
 3 
 1 
 
 18 
 
 79 
 no de 
 no de 
 S3 
 S 
 6 
 no de 
 no de 
 11 
 8h 
 h 
 
 122 
 
 77 
 no de 
 
 89 
 tails 
 
 13 
 given 
 
 102 
 502 
 
 23 
 
 95 
 9 
 20 
 
 9 
 
 1 
 
 2 
 6 
 
 2k 
 
 97 
 
 9 
 
 26 
 
 9 
 
 790 
 
 88 
 
 878 
 
 1,841 
 
 1,347 
 
 3,028 
 
 4,028 
 
 109 
 
 705 
 
 3,758 
 
 161 
 
 919 
 
 5,695 
 
 194 
 
 1,650 
 
 2,575 
 
 4,190 
 
 1,659 
 
 360 
 
 5,675 
 
 913 
 
 655 
 
 251 
 
 3,123 
 
 216 
 
 3,740 
 5,179 
 1,691 
 
 545 
 
 151 
 
 696 
 1,347 
 
 978 
 
 2,920 
 
 90 
 
 61S 
 3,758 
 
 161 
 
 1SU 
 5,695 
 
 10U 
 1,211 
 2,510 
 S,SS0 
 1,5SU 
 
 Sh6 
 U,888 
 
 SSS 
 
 655 
 
 tus 
 
 2,166 
 167 
 
 2,732 
 S,SS9 
 1,691 
 
 1,041 
 
 104 
 
 1,145 
 
 
 
 
 1,841 
 
 1,347 
 
 3,028 
 
 4,028 
 
 109 
 
 705 
 
 3,758 
 
 161 
 
 919 
 
 5,695 
 
 194 
 
 1,650 
 
 2,575 
 
 4,190 
 
 1,659 
 
 360 
 
 5,675 
 
 913 
 
 655 
 
 251 
 
 3,123 
 
 216 
 
 3,740 
 5,179 
 1,691 
 
 
 
 
 
 
 
 
 tails igiven 
 457 j 45 
 
 
 
 
 
 2,006 
 
 1,108 
 
 19 
 
 90 
 
 
 
 44 
 
 
 
 2,469 
 
 84 
 
 580 
 
 45i 
 
 6 
 
 33 
 
 995 
 19 
 
 85 
 
 113 
 
 5 
 
 
 
 
 
 
 
 
 
 
 
 
 
 tails !given 
 tails siven 
 
 2 
 
 16 
 52 
 
 3 
 227 
 
 2 
 
 2 
 
 4 
 
 336 
 393 
 
 9 
 9 
 
 h 
 
 3U5 
 h02 
 
 3 1 
 
 2 
 
 
 
 
 
 
 
 
 
 
 
 16 
 
 31 
 
 2 
 
 21 
 1 
 
 133 
 
 5,056 
 99 
 
 1 
 
 639 
 5 
 
 763 
 
 22 
 
 785 
 
 
 
 
 
 
 
 
 
 44 
 
 1 
 
 h5 
 
 87 
 
 8 
 
 90 
 U39 
 
 16 
 860 
 Ilk 
 
 lh 
 787 
 352 
 
 
 
 
 
 
 
 
 | 
 
 
 
 
 1,5'J7 
 
 923 
 314 
 
 140 
 
 43 
 6 
 
 esc 
 
 185 
 24 
 
 99 
 
 8 
 1 
 
 68 
 
 9 
 
 2 
 
 tails 
 
 1 
 
 given 
 
 
 
 
 1 
 
 4 
 
 
 1 
 
 u 
 
 2,263 
 
 247 
 
 15 
 
 1 
 
 49 
 
 
 ha 
 
 
 
 474 
 13 
 
 20 
 1 
 
 h9h 
 lh 
 
 
 
 1,468 
 341 
 
 66 
 5 
 
 108 
 11 
 
 6 
 3 
 
 11 
 
 
 
 
 1 
 
 
 1 
 
 SO 
 
 1 
 
 no de 
 
 A 
 212 
 
 
 
 
 
 
 
 62 
 
 
 
 
 
 
 
 
 
 70 
 120 
 
 2 
 
 2 
 
 78 
 59 
 
 11 
 1 
 
 4 
 
 1 
 
 
 
 716 
 
 60 
 
 85 
 1 
 
 751 
 
 61 
 
 S08 
 
 6 
 
 668 
 
 
 
 
 504 
 
 29 
 
 332 
 
 20 
 
 28 
 
 
 28 
 
 
 
 tails 
 3 
 
 given 
 
 S 
 1 
 2 
 
 792 
 
 
 
 
 
 
 241 
 
 4 
 
 6 
 
 
 6 
 
 785 
 U9 
 
 U2U7 
 UU62 
 
 
 
 
 7 
 
 
 
 
 
 
 
 172 
 
 
 
 141 
 
 
 64 
 
 3 
 
 
 
 2 
 
 
 6 
 
 
 
 
 
 164 
 
 3 
 
 49 
 
 
 
 
 
 
 
 
 93 
 no de 
 no de 
 
 
 
 29 
 
 
 
 261 
 378 
 
 
 
 
 
 
 
 
 
 tails 
 tails 
 
 given 
 given 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 9,858 
 
 1,093 
 
 18,071, 
 
 3,824 
 
 530 
 
 9,175 
 
 263 
 
 40 
 
 760 
 
 605 
 
 81 
 
 1,768 
 
 1,469 
 
 67 
 
 2,512 
 
 1,528 
 
 106 
 
 IMS 
 
 53,662 
 
 13,947 
 
 1,640 
 
 susus 
 
 8,511 
 
 277 
 
 11,174 
 
 90 
 
 
 945 
 
 53,662 
 
 7 
 
 jrand totals indicate the sums of items actually given as unknown. The reaily 
 •, for whom no entries whatever have heen obtained. Compare for full figures 
 
TABLE XIV. 
 Average Number of Convicted Prisoners Admitted Annually in the County Jails 
 
 
 PEitlOD COVERED 
 (1912 to 1916 inclusive un- 
 less otherwise stated) 
 
 
 SEX 
 
 
 AGES 
 
 
 COUNTY 
 
 M. 
 
 F. 
 
 Total 
 
 Under 16 
 
 16 to 20 
 
 21 to 30 
 
 81 and over 
 
 Unknown 
 
 Total 
 
 1 mo. and under 
 
 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 
 
 1 
 
 2 
 
 3 
 
 4 
 
 5 
 
 6 
 
 7 
 
 8 
 
 9 
 
 10 
 
 11 
 
 12 
 
 13 
 
 14 
 
 15 
 
 16 
 
 17 
 
 18 
 
 19 
 
 20 
 
 21 
 
 22 
 
 
 1. Jails 
 (unless otherwise stated) 
 
 
 317 
 
 51 
 
 368 
 269 
 605 
 805 
 
 22 
 141 
 939 
 
 40 
 
 184 
 
 1,139 
 
 65 
 330 
 644 
 838 
 332 
 120 
 1,135 
 183 
 197 
 
 50 
 625 
 
 43 
 
 748 
 
 1,036 
 
 423 
 
 1 
 
 
 1 
 
 23 
 
 1 
 11 
 
 8 
 185 
 
 53 
 
 14 
 2 
 
 5 
 
 1 
 
 1 
 6 
 
 6 
 
 2 
 
 $8 
 1 
 
 n 
 
 9 
 191 
 
 59 
 16 
 
 IS 
 
 e 
 2s 
 
 9S 
 
 75 
 no de 
 no de 
 no de 
 6 
 
 48 
 no de 
 no de 
 
 42 
 
 310 
 
 no de 
 
 no de 
 
 182 
 
 no de 
 
 77 
 
 17 
 no de 
 
 17 
 
 tails 
 
 tails 
 
 tails 
 
 1 
 
 2 
 
 tails 
 
 tails 
 
 1 
 
 24 
 
 tails 
 
 tails 
 
 18 
 
 tails 
 
 8 
 
 1 
 
 tails 
 
 92 
 given 
 given 
 given 
 7 
 
 50 
 given 
 given 
 
 kS 
 SSh 
 given 
 given 
 
 WO 
 given 
 
 80 
 
 18 
 given 
 
 68 
 given 
 given 
 given 
 9 
 
 253 
 Skit 
 given 
 
 162 
 
 11 
 
 68 
 
 93 
 50b 
 
 331 
 
 158 
 98 
 
 36 
 
 3 
 
 2 
 
 99 
 
 85 
 
 6 
 2 
 
 198 
 
 11 
 
 71 
 
 95 
 605 
 
 S66 
 
 16k 
 100 
 
 99 
 
 25 
 
 £78 
 599 
 
 45 
 
 3 
 
 4 
 
 35 
 4 
 
 6 
 
 68 
 
 4 
 1 
 
 1 
 3 
 
 k9 
 
 S 
 
 5 
 
 S5 
 k 
 
 7 
 71 
 
 368 
 269 
 605 
 805 
 
 22 
 141 
 939 
 
 40 
 
 184 
 
 1,139 
 
 65 
 330 
 644 
 838 
 332 
 120 
 1,135 
 183 
 197 
 
 50 
 625 
 
 43 
 
 748 
 
 1,036 
 
 423 
 
 54 
 
 443 
 13 
 74 
 
 65 
 
 678 
 29 
 
 14 
 
 86 
 1 
 2 
 
 2 
 
 74 
 
 1 
 
 68 
 
 529 
 Ik 
 76 
 
 61 
 752 
 
 SO 
 17k 
 427 
 
 19S 
 
 107 
 
 811 
 
 Ik 
 
 2k 
 S86 
 
 28 
 
 5k 
 
 
 
 
 
 
 
 
 
 
 
 
 692 
 21 
 133 
 
 113 
 
 . 1 
 
 8 
 
 
 
 
 
 
 
 2 
 
 1 
 5 
 
 9 
 1 
 
 1 
 
 1 
 
 3 
 
 S 
 2 
 
 12 
 1 
 
 
 
 1912 to 1915 
 
 
 Essex (House of Detention) . . 
 
 1912 to 1915 
 
 
 
 
 
 m 
 
 1,011 
 62 
 
 5 
 
 128 
 
 3 
 
 
 
 
 
 
 Aug. 1914 to Sept. 1917. . . . 
 
 
 
 
 
 
 582 
 
 62 
 
 392 
 
 185 
 105 
 
 is 
 
 8 
 2 
 
 
 
 
 
 
 
 318 
 117 
 
 14 
 8 
 
 
 
 
 
 
 
 
 
 1 
 
 
 
 2 
 U 
 
 
 
 
 173 
 
 10 
 
 13 
 
 24 
 
 1 
 
 
 
 June 1914 to Oct. 1917 
 
 
 
 4 
 
 1 
 
 no de 
 no de 
 no de 
 9 
 
 tails 
 tails 
 tails 
 
 25 
 
 
 4 
 
 
 
 
 
 49 
 
 i 
 
 
 
 
 
 
 
 42 
 
 l 
 
 28 
 
 
 
 2. Workhouses 
 
 
 
 
 
 
 
 
 928 
 
 108 
 
 
 
 
 91 
 
 2 
 
 315 
 
 no de 
 
 29 
 tails 
 
 522 
 
 77 
 
 
 
 
 
 
 
 
 1913 to 1916 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 4,624 
 
 508 
 
 11,281 
 
 19 
 
 5 
 
 25 
 
 382 
 
 24 
 
 £.512 
 
 1,081 
 
 96 
 
 1,497 
 
 1,974 
 
 260 
 
 2,506 
 
 169 
 
 9 
 
 180 
 
 11,281 
 
 2,108 
 
 226 
 
 3,75k 
 
 
 
 
 
 N. B. — In columns 16 and 17 and 35 and 36 the grand totals indicate the sums 
 unknown would include a larger number, for whom no entries whate 
 of unknown with Table V. 
 
TABLE XIV. 
 . the County Jails and Penitentiaries During the Tive Years 1912 to 1916 Inclusive. 
 
 
 TERM OR SENTENCE 
 
 
 CRIME 
 
 OR OFFENCE 
 
 
 INSANE 
 
 al 
 
 1 mo. and under 
 
 1 to 6 mo. 
 
 6 to 12 mo. 
 
 1 yr. and over 
 
 Fine only 
 
 Indef. 
 
 or Unknown 
 
 Total 
 
 Disorderly Persons 
 
 Misc. 
 
 Abandonment 
 
 Total 
 
 
 M, 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 M. 
 
 F. 
 
 T. 
 
 
 ) 
 
 20 
 
 21 
 
 22 
 
 23 
 
 24 
 
 25 
 
 26 
 
 27 
 
 28 
 
 29 
 
 30 
 
 31 
 
 32 
 
 33 
 
 34 
 
 35 
 
 36 
 
 37 
 
 88 
 
 89 
 
 40 
 
 41 
 
 42 
 
 43 
 
 44 
 
 45 
 
 40 
 
 47 
 
 48 
 
 49 
 
 (68 
 
 54 
 
 443 
 IS 
 74 
 
 65 
 678 
 29 
 
 14 
 
 86 
 1 
 2 
 
 2 
 
 74 
 1 
 
 68 
 
 529 
 
 u 
 
 76 
 
 67 
 752 
 
 30 
 17k 
 427 
 
 193 
 
 107 
 
 811 
 
 Ik 
 
 2k 
 S86 
 
 ts 
 
 ,54 
 
 38 
 
 1:33 
 5 
 53 
 
 40 
 235 
 
 17 
 
 15 
 
 17 
 5 
 
 1 
 
 44 
 
 1 
 
 8$ 
 
 ISO 
 
 5 
 S8 
 
 kl 
 
 279 
 18 
 87 
 
 107 
 
 39 
 
 8 
 
 306 
 
 18 
 
 12 
 
 lSk 
 
 IS 
 
 378 
 
 14 
 
 6 
 1 
 
 1 
 
 2 
 13 
 1 
 
 2 
 1 
 
 4 
 
 16 
 no de 
 no de 
 7 
 1 
 1 
 no de 
 no de 
 
 11 
 
 1 
 
 Sk 
 
 19 
 
 do de 
 
 18 
 tails 
 tails 
 
 91 
 
 2 
 given 
 given 
 
 9 
 
 20 
 100 
 
 5 
 
 19 
 2 
 4 
 
 2 
 
 1 
 
 5 
 
 19 
 
 5 
 
 158 
 
 18 
 
 176 
 
 368 
 269 
 605 
 805 
 
 22 
 141 
 939 
 
 40 
 
 184 
 
 1,139 
 
 65 
 330 
 644 
 838 
 332 
 120 
 1,135 
 183 
 197 
 
 50 
 625 
 
 43 
 
 748 
 
 1,036 
 
 423 
 
 109 
 
 30 
 
 139 
 269 
 
 195 
 58k 
 18 
 123 
 939 
 
 ho 
 
 28 
 1,139 
 
 35 
 2h2 
 628 
 666 
 307 
 115 
 978 
 107 
 197 
 
 49 
 kSS 
 
 S3 
 
 kk6 
 668 
 
 km 
 
 208 
 
 21 
 
 229 
 
 
 
 
 368 
 269 
 605 
 805 
 
 22 
 141 
 939 
 
 40 
 
 184 
 
 1,139 
 
 65 
 330 
 644 
 838 
 332 
 120 
 1,135 
 183 
 197 
 
 50 
 625 
 
 43 
 
 748 
 
 1,036 
 
 423 
 
 
 m 
 
 
 
 
 
 ,05 
 
 
 
 
 
 kol 
 
 221 
 k 
 18 
 
 
 
 9 
 
 
 OS 
 
 494 
 
 17 
 
 116 
 
 90 
 1 
 
 7 
 
 198 
 4 
 17 
 
 23 
 1 
 
 
 
 
 n 
 
 
 
 
 
 
 
 
 41 
 
 1 
 
 tails 
 
 tails 
 
 3 
 
 6 
 
 given 
 given 
 
 4 
 1 
 
 1 
 
 3 
 
 10 
 1 
 
 4,5 
 1 
 
 
 
 
 
 
 
 
 39 
 
 67 
 79 
 
 2 
 2 
 
 69 
 81 
 
 
 
 
 
 40 
 
 
 
 
 
 
 
 
 
 
 84 
 39 
 
 27 
 
 1,011 
 33 
 
 1 
 
 128 
 
 2 
 
 152 
 
 4 
 
 
 
 
 
 
 65 
 
 15 
 
 
 15 
 
 29 
 
 1 
 
 SO 
 
 88 
 
 k 
 
 172 
 
 23 
 
 5 
 
 157 
 
 70 
 
 
 
 
 
 30 
 
 
 
 
 
 
 
 
 M 
 
 392 
 
 185 
 105 
 
 35 
 
 8 
 2 
 
 172 
 
 37 
 8 
 
 25 
 
 2 
 
 17 
 
 2 
 
 1 
 tails 
 
 given 
 
 
 
 
 
 
 
 566 
 
 62 
 
 4 
 
 
 12 
 
 
 12 
 
 
 38 
 
 95 
 4 
 
 4 
 
 
 99 
 5 
 
 1 
 
 
 1 
 
 
 V 
 
 294 
 113 
 
 13 
 2 
 
 22 
 4 
 
 1 
 1 
 
 2 
 
 
 2 
 
 
 20 
 
 
 
 
 
 
 
 1 1 
 
 
 35 
 
 
 
 
 
 
 12 
 
 
 
 
 
 
 
 
 8* 
 
 13 
 24 
 
 i 
 
 16 
 11 
 
 2 
 
 1 
 
 
 
 
 
 
 144 
 12 
 
 7 
 
 151 
 
 12 
 
 63 
 
 1 
 
 13k 
 
 
 
 
 101 
 
 6 
 
 66 
 
 4 
 
 6 
 
 
 6 
 
 
 97 
 
 1 
 
 
 no de 
 
 1 
 
 kit 
 
 tails 
 1 
 
 given 
 
 1 
 
 
 
 
 
 50 
 
 
 
 48 
 
 1 
 
 1 
 
 
 1 
 
 157 
 10 
 
 250 
 292 
 
 
 
 
 
 25 
 
 
 
 
 
 
 35 
 
 52 
 76 
 
 
 43 
 
 28 
 
 
 12 
 
 1 
 
 
 
 1 
 
 
 1 
 
 158 
 
 1 
 
 
 
 
 
 32 
 
 1 
 
 10 
 
 
 
 
 
 48 
 
 
 
 18 
 no de 
 no de 
 
 
 
 6 
 
 
 36 
 
 
 
 
 
 
 
 tails 
 tails 
 
 given 
 given 
 
 
 
 
 
 
 
 
 
 
 
 
 23 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 81 
 
 2,103 
 
 226 
 
 3, 7 ok 
 
 807 
 
 114 
 
 1,826 
 
 56 
 
 9 
 
 IBS 
 
 122 
 
 16 
 
 35S 
 
 303 
 
 13 
 
 513 
 
 305 
 
 22 
 
 33$ 
 
 11,281 
 
 2,961 
 
 344 
 
 8,801 
 
 715 
 
 56 
 
 2.288 
 
 20 
 
 
 192 
 
 11,281 
 
 
 grand totals indicate the sums of items actually given as unknown. The really 
 Der, for whom no entries whatever have been obtained. Compare for full figures 
 
TABLE XV. 
 Capacity of County Jails and Penitentiaries of New Jersey. 
 
 
 Grand 
 Total 
 
 MALE 
 
 FEMALE 
 
 COUNTIES 
 
 AND 
 
 INSTITUTIONS 
 
 Cells 
 
 Rooms and 
 Dormitories 
 
 Total 
 
 Cells 
 
 Rooms 
 
 Total 
 
 
 No. 
 
 Capacity 
 
 No. 
 
 Capacity 
 
 No, 
 
 Capacity 
 
 No. 
 
 Capacity 
 
 
 Burlington " 
 
 Cape May " 
 
 Mercer " 
 
 Ocean " 
 
 Salem " 
 
 Sussex " 
 
 94 
 
 132 
 64 
 
 192 
 33 
 58 
 
 368 
 56 
 
 240 
 12 
 
 145 
 75 
 95 
 37 
 24 
 
 272 
 28 
 56 
 22 
 
 159 
 32 
 
 25 
 88 
 23 
 64 
 
 9 
 
 26 
 
 302 
 
 25 
 
 90 
 
 2 
 
 106 
 
 work 
 
 77 
 
 22 
 
 9 
 91 
 24 
 32 
 10 
 72 
 20 
 
 50 
 88 
 46 
 
 132 
 18 
 62 
 
 302 
 50 
 
 180 
 2 
 
 106 
 house bei 
 77 
 22 
 18 
 
 182 
 24 
 32 
 20 
 72 
 20 
 
 6 
 13 
 1 
 
 1 
 
 i 
 
 3 
 
 2 
 
 2 
 
 3 
 
 ng us 
 
 '2 
 
 '4 
 
 5 
 
 '5 
 1 
 
 18 
 32 
 10 
 16 
 
 2 
 30 
 
 20 
 
 6 
 
 12 
 
 ed temporarily 
 
 ii 
 
 it? 
 
 20 
 
 '9 
 4 
 
 68 
 
 120 
 56 
 
 148 
 18 
 54 
 
 332 
 50 
 
 200 
 8 
 
 118 
 60 
 77 
 33 
 18 
 
 198 
 24 
 52 
 20 
 81 
 24 
 
 13 
 6 
 4 
 
 22 
 
 2 
 26 
 
 3 
 10 
 
 16 
 
 18 
 
 3 
 32 
 
 'i 
 
 36 
 4 
 
 26 
 12 
 8 
 44 
 
 'i 
 36 
 6 
 
 20 
 
 16 
 
 New jail 
 
 18 
 
 '(S 
 64 
 
 '2 
 
 72 
 
 4 
 
 '2 
 
 '2 
 
 1 
 
 3 
 
 to be 
 
 '2 
 
 3 
 
 1 
 1 
 
 '2 
 
 1 
 
 15 
 
 20 
 4 
 11 
 built. 
 
 '4 
 
 io 
 
 4 
 4 
 
 '6 
 4 
 
 26 
 12 
 
 8 
 44 
 15 
 
 4 
 36 
 
 6 
 40 
 
 4 
 27 
 15 
 18 
 
 4 
 
 6 
 74 
 
 4 
 
 4 
 
 2 
 78 
 
 8 
 
 Essex Workhouse.. 
 Hudson " 
 Mercer " 
 
 2,194 
 
 296 
 432 
 124 
 
 1,117 
 
 223 
 180 
 
 48 
 
 1,493 
 
 223 
 360 
 96 
 
 49 
 1 
 
 i 
 
 206 
 10 
 'i 
 
 1,759 
 
 233 
 
 360 
 100 
 
 206 
 
 63 
 36 
 12 
 
 338 
 
 63 
 72 
 24 
 
 18 
 
 82 
 
 435 
 
 68 
 
 72 
 24 
 
 
 852 
 
 451 
 
 679 
 
 2 
 
 14 
 
 693 
 
 111 
 
 159 
 
 
 
 159 
 
 
 3,046 
 
 1,568 
 
 2,172 
 
 51 
 
 220 
 
 2,452 
 
 317 
 
 497 
 
 18 
 
 82 
 
 594 
 
Exhibit C. 
 
 STATISTICS OF POPULATION 
 
 OF 
 
 STATE CORRECTIONAL INSTITUTIONS 
 
 AND 
 
 STATE BOARD OF CHILDREN'S GUARDIANS 
 
Exhibit C — Statistics as to Correctional Institutions. 103 
 
 STATISTICS OF POPULATION 
 
 OF 
 
 STATE CORRECTIONAL INSTITUTIONS AND THE 
 STATE BOARD OF CHILDREN'S GUARDIANS. ' 
 
 1. State Prison; 
 
 2. State Home for Boys; 
 
 3. State Home for Girls; 
 
 4. State Reformatory; 
 
 5. State Reformatory for Women; 
 
 6. State Board of Children's Guardians; 
 
 7. Tabulated Census of Population of New Jersey. 
 
 The data here given have been gathered from the annual re- 
 ports of the several institutions, supplemented and corrected 
 by reference to institutional records. The statistics for the year 
 ending October 31, 1917, are not yet generally available. 
 
 The statistics vary considerably in fulness and completeness, 
 owing to the fact that no general system for keeping and 
 tabulating records of this character has yet been devised and 
 put in operation. But with all their imperfections these figures 
 give a pretty complete picture of the nature of the problem 
 with which the correctional institutions and the related State 
 Board of Children's Guardians are called upon to deal. 
 
 1. New Jersey State Prison. 
 
 Tabulated Census of Population. 
 
 (a) Population at Close of Fiscal Year: 
 
 1912 1913 1914 1915 1916 1917 
 
 1,527 1,506 1,412 1,354 1,225 1,068 
 
io 4 Report of Prison Inquiry Commission. 
 
 (b) Causes of Commitment foe Five Years, Nov. 1, 1912— October 31, 1917: 
 
 Abandoning minor child 1 
 
 Abduction 2 
 
 Abortion 7 
 
 Adultery 9 
 
 Advocating injury to person and property .' 3 
 
 Arson 21 
 
 Aiding in escape '. . . . 9 
 
 Assault 11 
 
 Assault with carnal abuse upon a woman child 21 
 
 Assault with intent to kill 46 
 
 Assault with intent to rob 8 
 
 Assault and battery 152 
 
 Assault and battery and robbery IS 
 
 Assault and battery and resisting an officer 7 
 
 Assault and battery with intent, &c 8 
 
 Atrocious assault IS 
 
 Atrocious assault and battery 171 
 
 Atrocious assault and battery with intent to kill 13 
 
 Atrocious assault and battery on an officer 2 
 
 Bigamy .....' 35 
 
 Breaking with intent, &c 38 
 
 Breaking and entering , 367 
 
 Breaking and entering with intent, &c 33 
 
 Breaking and entering with intent to commit rape 1 
 
 Burning Buildings 15 
 
 Burglary 61 
 
 Carnal abuse 74 
 
 Burglar Tools, carrying 13 
 
 Carrying concealed weapons 44 
 
 Concealing Pregnancy and birth 1 
 
 Conspiracy 26 
 
 Desertion 19 
 
 Driving automobile while intoxicated 1 
 
 Embezzlement 37 
 
 Entering and larceny 26 
 
 Entering with intent, &c 12 
 
 Escape IS 
 
 False pretenses 17 
 
 Felonious assault with intent to kill 4 
 
 Forgery 36 
 
 Forgery and uttering 18 
 
 Forgery and exhibiting 2 
 
 Fornication 1 
 
 Gambling 1 
 
 Grand larceny 142 
 
Exhibit C — Statistics as to Correctional Institutions. 105 
 
 Habitual drunkard 1 
 
 Having, &c, Counterfeit money, &c 10 
 
 High misdemeanor 7 
 
 Highway robbery 20 
 
 Illegal sale of liquor 17 
 
 Incest 21 
 
 Indecent assault 1 
 
 Kidnapping 3 
 
 Keeping disorderly house 49 
 
 Larceny 110 
 
 Larceny and receiving 90 
 
 Larceny from the person 49 
 
 Larceny from the person and receiving 12 
 
 Lewdness 27 
 
 Mayhem 1 
 
 Mailing obscene letters 1 
 
 Malicious mischief 7 
 
 Manslaughter 47 
 
 Misdemeanor 8 
 
 Misconduct in office 2 
 
 Murder 35 
 
 Murder, first degree 36 
 
 Murder, second degree 61 
 
 Obstructing railroad tracks 2 
 
 Perjury 10 
 
 Persuading minor child to leave parents 1 
 
 Petit larceny S3 
 
 Possessing indecent pictures 1 
 
 Procuring females 3 
 
 Prostitution 4 
 
 Public indecency 1 
 
 Rape 55 
 
 Receiving money from prostitute 11 
 
 Rectifying without license 1 
 
 Receiving stolen goods 29 
 
 Robbery 118 
 
 Robbing U. S. Post Office 16 
 
 Seduction 6 
 
 Selling heroin 1 
 
 Setting fire to woods 1 
 
 Stealing merchandise from the mails 3 
 
 Stealing merchandise from interstate commerce 2 
 
 Spirituous liquors in jail 1 
 
 Sodomy 20 
 
 Threats to life and property , 6 
 
 Transporting woman for immoral purposes 15 
 
!o6 Report of Prison Inquiry Commission. 
 
 Uttering forged papers 7 
 
 Unlawfully taking horses 4 
 
 Unlawfully sending threatening letters 2 
 
 Unlawful conversion 4 
 
 Unlawfully selling cocaine 4 
 
 Unlawfully participating in contracts 1 
 
 Unlawfully having opium 1 
 
 Using the mails to promote fraud 9 
 
 Unlawfully pretending to be government officer 1 
 
 Violating election laws 2 
 
 Violating Drug and Food Act, June 30, 1906 4 
 
 Violation national bank laws 1 
 
 Total 2,537 
 
 (c) Previous Convictions. 
 
 1912 1913 1914 1915 1916 Total 
 
 First commitment 1,289 1,245 1,164 1,134 1,029 5,861 
 
 Second commitment 159 173 172 156 140 800 
 
 Third commitment 46 55 46 37 35 219 
 
 Fourth commitment 21 21 15 16 12 85 
 
 Fifth commitment 5 5 8 8 6 32 
 
 Sixth commitment 6 6 6 3 2 23 
 
 Seventh commitment 1 1 1 .. 1 4 
 
 1,527 1,506 1,412 1,354 1,225 7,024 
 
 (<?) Ages When Received. 
 
 Fifteen or under 
 
 Fifteen to twenty 
 
 Twenty to thirty 
 
 Thirty and over 
 
 1912 1913 1914 1915 1916 Total 
 
 3 
 
 3 
 
 1 
 
 2 
 
 2 
 
 11 
 
 131 
 
 112 
 
 106 
 
 101 
 
 89 
 
 539 
 
 653 
 
 656 
 
 636 
 
 633 
 
 575 
 
 3,153 
 
 740 
 
 735 
 
 669 
 
 618 
 
 559 
 
 3,321 
 
 1,527 1,506 1,412 1,354 1,225 7,024 
 
 (e) Color and Sex. 
 
 1912 
 
 White, male 1,137 
 
 White, female 17 
 
 Colored, male 337 
 
 Colored, female 34 
 
 Mongolian 2 
 
 1913 
 
 1914 
 
 1915 
 
 1916 
 
 Total 
 
 1,106 
 
 1,039 
 
 1,013 
 
 921 
 
 5,216 
 
 14 
 
 9 
 
 7 
 
 12 
 
 59 
 
 348 
 
 333 
 
 320 
 
 280 
 
 1,618 
 
 35 
 
 26 
 
 9 
 
 8 
 
 112 
 
 3 
 
 5 
 
 5 
 
 4 
 
 19 
 
 1,527 1,506 1,412 1,354 1,225 7,024 
 
Exhibit C — Statistics as to Correctional Institutions. 107 
 
 (/) Religion. 
 
 1912 1913 1914 1915 1916 
 
 Catholics 274 211 254 239 196 
 
 Protestants 340 293 323 296 231 
 
 Hebrews 14 21 25 26 13 
 
 Other sects 6 3 4 8 6 
 
 (g) Education. 
 
 1912 1913 1914 1915 1916 Total 
 
 Can read and write 1,222 1,189 1,167 1,136 1,017 5,731 
 
 Cannot read or write 251 251 190 163 155 1,010 
 
 Can read only 16 22 18 18 9 83 
 
 Can write name only 38 44 37 37 44 200 
 
 1,527 1,506 1,412 1,354 1,225 7,024 
 (h) Nativity. 
 
 1. Native and Foreign Born. 
 
 1912 1913 1914 1915 1916 Total 
 
 Native born 951 979 943 886 792 4,551 
 
 Foreign born 576 527 469 468 433 2,473 
 
 1,527 1,506 1,412 1,354 1,225 7,024 
 
 2. Nativity oe Native Born. 
 
 1912 1913 1914 1915 1916 Total 
 Born in United States out- 
 side of New Jersey 565 578 555 514 470 2,682 
 
 Born in New Jersey 386 401 388 372 322 1,869 
 
 951 979 943 886 792 4,551 
 
 3. Nativity oE Foreign Born. 
 
 1912 1913 1914 1915 1916 Total 
 
 Asia Minor 110 2 
 
 Australia 2 2 2 6 
 
 Austria 44 29 47 40 30 190 
 
 Belgium 1 1 
 
 Bermuda 1 1 2 
 
 Bohemia 1 1 2 
 
 Brazil 1 2 1 1 5 
 
 British America 11110 4 
 
 British Guiana 111115 
 
 Burmah 1 1 1 1 ° 4 
 
 Canada 10 2 3 3 9 
 
 China 1 2 3 3 2 11 
 
 Corea 112 
 
 Denmark 1 1 2 
 
 East Indies 1 1 ° ° 2 
 
io8 Report of Prison Inquiry Commission. 
 
 1912 1913 1914 1915 1916 Total 
 
 England 
 
 Finland 
 
 France 
 
 Germany 
 
 Greece 
 
 Holland 
 
 Hungary : 
 
 India 
 
 Ireland 
 
 Italy 
 
 Japan 
 
 Lithuania 
 
 Norway 
 
 Palestine 
 
 Poland 
 
 Portugal 
 
 Roumania 
 
 Russia (including Poland) . . 
 
 Saxony 
 
 Scotland 
 
 Serbia 
 
 Sweden 
 
 Switzerland 
 
 Syria 
 
 Turkey 
 
 Wales 
 
 West Indies 
 
 Unknown 
 
 576 527 469 468 433 2,473 
 
 2. New Jersey State Home for Boys. 
 Tabulated Census of Population. 
 
 (a) Population at Close of Fiscal Year. 
 
 1912 1913 1914 1915 1916 1917 
 
 324 310 369 384 366 
 
 (b) Previous Record. 
 
 1912 1913 1914 1915 1916 Total 
 
 Arrested before 248 237 293 310 286 1,374 
 
 Never arrested before 76 73 76 74 80 379 
 
 Total 324 310 369 384 366 1,753 
 
 14 
 
 16 
 
 19 
 
 17 
 
 14 
 
 80 
 
 
 
 
 
 1 
 
 2 
 
 2 
 
 5 
 
 4 
 
 6 
 
 6 
 
 7 
 
 5 
 
 28 
 
 66 
 
 53 
 
 35 
 
 38 
 
 31 
 
 223 
 
 1 
 
 1 
 
 2 
 
 2 
 
 2 
 
 8 
 
 3 
 
 1 
 
 2 
 
 2 
 
 
 
 8 
 
 47 
 
 37 
 
 26 
 
 29 
 
 26 
 
 165 
 
 1 
 
 1 
 
 
 
 
 
 
 
 2 
 
 22 
 
 20 
 
 IS 
 
 17 
 
 15 
 
 89 
 
 261 
 
 245 
 
 233 
 
 211 
 
 218 
 
 1,168 
 
 1 
 
 1 
 
 2 
 
 1 
 
 1 
 
 6 
 
 1 
 
 1 
 
 
 
 
 
 
 
 2 
 
 
 
 
 
 
 
 
 
 1 
 
 1 
 
 
 
 
 
 1 
 
 
 
 
 
 1 
 
 9 
 
 
 
 
 
 
 
 
 
 9 
 
 
 
 
 
 1 
 
 
 
 
 
 1 
 
 
 
 1 
 
 1 
 
 1 
 
 
 
 3 
 
 67 
 
 79 
 
 64 
 
 73 
 
 64 
 
 347 
 
 1 
 
 
 
 
 
 
 
 
 
 1 
 
 8 
 
 10 
 
 5 
 
 6 
 
 4 
 
 33 
 
 
 
 
 
 
 
 
 
 1 
 
 1 
 
 4 
 
 3 
 
 1 
 
 1 
 
 3 
 
 12 
 
 1 
 
 
 
 2 
 
 1 
 
 
 
 4 
 
 1 
 
 1 
 
 1 
 
 
 
 1 
 
 4 
 
 
 
 1 
 
 1 
 
 1 
 
 
 
 3 
 
 
 
 1 
 
 
 
 
 
 1 
 
 2 
 
 7 
 
 6 
 
 3 
 
 5 
 
 6 
 
 27 
 
 2 
 
 1 
 
 
 
 
 
 
 
 3 
 
Exhibit C — Statistics as to Correctional Institutions. 109 
 
 (c) Age When Committed. 
 
 1912 1913 1914 1915 1916 Total 
 
 Eight years 4 3 4 3 7 '21 
 
 Nine years 11 IS 12 10 25 73 
 
 Ten years 17 18 23 23 27 118 
 
 Eleven years 32 39 48 49 43 211 
 
 Twelve years 49 57 48 71 77 302 
 
 Thirteen years 76 54 61 67 60 318 
 
 Fourteen years 73 59 81 72 69 354. 
 
 Fifteen years 46 56 83 73 57 315 
 
 Over fifteen years 16 9 9 6 1 41 
 
 Total 324 310 369 384 366 1,753 
 
 (d) Reugion. 
 
 1912 1913 1914 1915 1916 Total 
 
 Protestant 110 121 128 121 118 598 
 
 Catholic 196 184 237 236 244 1,097 
 
 Hebrew 16 4 4 25 4 53 
 
 Unknown 2 1 2 5 
 
 Total 324 310 369 384 366 1,753 
 
 (e) Nativity. 
 
 1912 1913 1914 1915 1916 Total 
 
 United States 286 278 320 327 304 1,515 
 
 • England 1 1 ' 1 2 5 
 
 Ireland 1 2 1 4 
 
 Russia :. 8 3 3 11 12 37 
 
 Russian Poland 10 1 
 
 Poland 3 2 4 1 5 15 
 
 Hungary 3 4 5 3 6 21 
 
 Italy 16 14 22 25 22 99 
 
 Germany 2 1 3 1 7 
 
 Austria 2 5 6 8 7 28 
 
 Syria 1 1 2 
 
 Other countries 2 3 6 8 19 
 
 Total 324 310 369 384 366 1,753 
 
no 
 
 Report of Prison Inquiry Commission. 
 
 3. New Jersey State Home for Girls. 
 Partial, Census oe Population. 
 (a) Population at Close of Fiscal Year. 
 
 912 
 
 1913 
 
 1914 
 
 1915 
 
 1916 
 
 226 
 
 215 
 
 217 
 
 231 
 
 227 
 
 (&) Cause of Commitment (White). 
 
 Incorrigibility 
 
 Delinquency 
 
 Adultery 
 
 Larceny 
 
 Vagrancy 
 
 Truancy 
 
 Petit Larceny 
 
 Fornication 
 
 Lewdness 
 
 Disorderly conduct.... 
 
 Forgery 
 
 Atrocious assault 
 
 Shoplifting 
 
 Breaking and entering. 
 Larceny and receiving. 
 
 Total 
 
 (c) Color. 
 
 White . 
 Black . 
 Yellow 
 
 1912 1913 1914 1915 1916 
 
 98 
 8 
 2 
 18 
 12 
 4 
 3 
 8 
 1 
 2 
 1 
 1 
 1 
 
 113 
 6 
 
 
 160 
 
 162 
 
 
 
 1912 
 
 1913 
 
 1914 
 162 
 
 55 
 
 1915 
 
 1916 
 
 202 
 
 56 
 
 Total 
 
 217 
 
 258 
 
 (d) Mental Condition. 
 
 Normal . . 
 Borderline 
 Defective . 
 
 Total . 
 
 1912 1913 1914 1915 1916 
 
 White White White 
 
 All 
 
 40 27 
 
 35 
 
 88 95 .. 
 
 98 
 
 32 40 
 
 125 
 
 160 162 
 
 258 
 
Exhibit C — Statistics as to Correctional Institutions, in 
 
 (e) Family Conditions (White). 
 
 1912 1913 
 
 Parents living 
 
 Both parents dead. 
 
 Father dead 
 
 Mother dead 
 
 Parents separated . 
 Parents unknown. . 
 Father unknown . . . 
 Mother unknown.. 
 
 Total . 
 (/) Religion. 
 
 Catholic .. 
 Protestant 
 Jewish 
 Doubtful . 
 
 Total . 
 
 (g) Nationality (White only). 
 
 American 
 
 Irish- American . . 
 Irish-German .... 
 
 English 
 
 Scotch 
 
 Dutch 
 
 Danish 
 
 Swedish 
 
 German- American 
 
 German 
 
 Austrian 
 
 Hungarian 
 
 Slavic 
 
 Lithuanian 
 
 Polish 
 
 Russian 
 
 Italian 
 
 French-Canadian 
 
 Jewish 
 
 Spanish 
 
 Swiss 
 
 1914 
 59 
 
 16 
 29 
 41 
 9 
 3 
 4 
 1 
 
 1915 1916 
 
 
 162 
 
 
 1912 1913 
 
 1914 1915 1916 
 
 70 
 
 76 . 
 
 
 75 
 
 72 . 
 
 
 7 
 
 9 . 
 
 
 8 
 
 4 . 
 
 
 160 
 
 162 
 
 
 1912 1913 
 
 1914 1915 1916 
 
 
 64 
 
 60 
 
 104 
 
 
 12 
 
 19 . 
 
 16 
 
 
 2 
 
 
 
 
 3 
 
 2 
 
 1 
 
 
 2 
 
 2 
 
 3 
 
 
 2 
 
 2 
 
 2 
 
 
 1 
 
 1 
 
 2 
 
 
 2 
 
 2 
 
 3 
 
 
 7 
 
 
 
 
 16 
 
 22 
 
 20 
 
 
 4 
 
 
 
 
 1 
 
 2 
 
 7 
 
 
 3 
 
 6 . 
 
 3 
 
 
 2 
 
 1 
 
 3 
 
 
 11 
 
 13 . 
 
 12 
 
 
 5 
 
 4 . 
 
 6 
 
 
 IS 
 
 18 . 
 
 19 
 
 
 1 
 
 1 
 
 
 
 S 
 
 4 
 1 
 1 
 
 
 Total 
 
 158 162 
 
 202 
 
112 
 
 Report of Prison Inquiry Commission. 
 
 4. New Jersey State Reformatory. 
 Tabulated Census of Population. 
 
 (a) Population at Close of Fiscal Year. 
 
 1912 1913 1914 1915 1916 
 
 363 382 510 S4S 378 
 
 1917 
 
 (b) Age. 
 
 1912 1913 1914 1915 1916 Total 
 
 Under 20 years 174 201 229 262 167 1,033 
 
 20 to 25 " 144 140 198 205 144 831 
 
 25 to 30 " 45 41 83 78 66 313 
 
 Unknown 1 1 
 
 (c) Color. 
 
 White . 
 Colored 
 
 (d) Religion. 
 
 363 382 510 545 378 2,178 
 
 1912 1913 1914 1915 1916 Total 
 
 310 331 429 485 315 1,870 
 
 53 51 81 60 63 308 
 
 363 382 510 545 378 2,178 
 
 1912 1913 1914 1915 1916 Total 
 
 Catholic 187 184 256 277 171 1,075 
 
 Protestant 160 176 220 228 l£? 967 
 
 Hebrew 14 17 29 27 18 105 
 
 Greek Church 2 5 5 13 5 30 
 
 Unknown 1 1 
 
 363 382 510 545 378 2,178 
 
 (e) Education. 
 
 Grammar School graduate. 
 
 Read and write 
 
 Illiterate 
 
 College 
 
 Unknown 
 
 1912 1913 1914 1915 1916 Total 
 
 38 
 
 23 
 
 27 
 
 17 
 
 14 
 
 119 
 
 255 
 
 316 
 
 412 
 
 426 
 
 306 
 
 1,715 
 
 70 
 
 43 
 
 70 
 
 101 
 
 56 
 
 340 
 
 
 
 
 
 1 
 
 1 
 
 1 
 
 3 
 
 
 
 
 
 
 
 
 
 1 
 
 1 
 
 363 
 
 382 
 
 510 
 
 545 
 
 378 
 
 2,178 
 
Exhibit C — Statistics as to Correctional Institutions. 113 
 
 (/) Nativity. 
 
 1912 1913 1914 1915 1916 Total 
 
 United States 277 299 403 407 316 1,702 
 
 Ital y 22 29 32 SS 26 164 
 
 Russia 21 17 19 29 10 96 
 
 Austria-Hungary 31 23 30 21 11 116 
 
 Germany 5 6 13 12 1 37 
 
 Ireland 3 4 2 9 
 
 England 1 1 3 g 5 18 
 
 Norway 1 1 2 
 
 Tunis 1 1 
 
 Australia 1 1 
 
 Canada 2 1 2 3 8 
 
 Greece 2 1 3 
 
 France 1 1 2 
 
 Scotland 1 3 4 
 
 Servia 1 1 
 
 Switzerland 2 1 3 
 
 Sweden 3 1 4 
 
 Roumania 3 3 
 
 West Indies 1 1 
 
 Belgium 1 1 
 
 South America 1 1 
 
 Unknown 1 1 
 
 363 382 510 545 378 2,178 
 
 (g) Cause of Commitment. 
 
 1912 1913 1914 1915 1916 Total 
 Breaking, entering, larceny 
 
 and receiving 108 85 134 171 94 592 
 
 Larceny and receiving 39 18 62 87 32 238 
 
 Grand Larceny 27 29 47 39 35 177 
 
 Larceny 32 47 34 33 26 172 
 
 Assault and Battery 25 32 54 42 20 173 
 
 Atro. Assault and Battery. . 15 18 20 22 22 97 
 
 Carrying concealed weapons 14 24 14 22 25 99 
 
 Arson 12 12 7 4 35 
 
 Embezzlement 8 7 9 13 7 44 
 
 Burglary 8 3 8 22 14 55 
 
 Receiving 8 2 7 9 26 
 
 Robbery 7 22 13 16 9 67 
 
 Assault, battery and abuse. . 6 4 4 10 11 35 
 
 Assault with intent to kill. . 5 3 6 5 3 22 
 
 Carnal abuse 5 3 10 6 8 32 
 
 Burglary and larceny 5 1 6 
 
 Forgery 5 14 5 24 
 
H4 
 
 Report of Prison Inquiry Commission. 
 
 1912 1913 1914 1915 1916 Tola! 
 
 Assault, battery and robbery 
 
 Larceny from the person . . . 
 
 Forgery and uttering 
 
 Manslaughter 
 
 False pretences 
 
 Bigamy 
 
 Highway Robbery 
 
 Assault with intent to rape. . 
 
 Aiding escape 
 
 Malicious mischief 
 
 Uttering 
 
 Lewdness 
 
 Adultery 
 
 Threatening 
 
 Breaking prison 
 
 Escape 
 
 Abduction 
 
 Larceny of fowls 
 
 Indecent exposure 
 
 Viol, auto 
 
 Indecent assault 
 
 Attempted Rape 
 
 Breaking and entering 
 
 Entering, larceny and receiv- 
 ing 
 
 Breaking and entering with 
 intent, etc 
 
 Rape 
 
 Receiving money from a 
 prostitute 
 
 Sodomy 
 
 Desertion 
 
 Seduction 
 
 Burning 
 
 Burglar tools 
 
 Assault with carnal abuse . . 
 
 Secreting lost property 
 
 Entering 
 
 Perjury 
 
 Obstructing railroad train.. 
 
 Attempted suicide 
 
 Cocaine in possession 
 
 Carnal knowledge 
 
 Procuring 
 
 Prostitution 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 2 
 6 
 
 8 
 
 7 
 2 
 
 
 
 1 
 2 
 
 
 3 
 
 
 
 
 
 1 
 
 
 16 
 
 10 
 
 6 
 3 
 
 12 
 2 
 
 
 6 
 
 
 
 
 
 
 
 1 
 
 
 7 
 
 2 
 2 
 
 10 
 5 
 
 15 
 
 10 
 
 29 
 6 
 
 19 
 4 
 2 
 1 
 1 
 
 12 
 4 
 1 
 3 
 6 
 S 
 1 
 1 
 1 
 5 
 1 
 
 16 
 
 10 
 
 20 
 13 
 
 3 
 
 10 
 3 
 3 
 S 
 1 
 1 
 1 
 4 
 3 
 3 
 2 
 10 
 1 
 2 
 3 
 
Exhibit C — Statistics as to Correctional Institutions. 1 15 
 
 Misdemeanor 
 
 Try to wreck train . . 
 Fallse registration . . . 
 
 Disorderly house 
 
 Threat to take life.. 
 Attempt to break jail 
 Attempt to dynamite 
 
 False fire alarm 
 
 Threatening letters . 
 
 Conspiracy 
 
 Opium 
 
 1912 1913 1914 1915 1916 Total 
 2 6 8 16 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 1 
 
 
 
 
 
 
 
 
 
 
 
 
 3 
 
 
 
 3 
 
 
 
 
 
 
 
 
 
 1 
 
 1 
 
 363 382 510 S45 378 2.178 
 
 5. State Reformatory for Women. 
 Tabulated Census of Population. 
 
 (a) Population at Close op Fiscal Year. 
 1913 1914 1915 
 
 1916 
 
 , 1917 
 
 31 
 
 69 
 
 128 
 
 (6) Cause op Commitment. 
 
 1913 
 
 Adultery 5 
 
 Atrocious assault and battery 2 
 
 Bigamy 3 
 
 Disorderly house 2 
 
 Forgery 1 
 
 Grand larceny 8 
 
 Larceny and receiving 2 
 
 Robbery 1 
 
 Incorrigibility 7 
 
 Shoplifting 
 
 Defrauding board 
 
 Murder 
 
 Assault with intent to kill 
 
 Assault and battery 
 
 Fornication ' 
 
 Open lewdness 
 
 Malicious mischief 
 
 , Receiving stolen goods 
 
 Petit larceny 
 
 Larceny 
 
 Larceny from the person 
 
 1914 
 
 1915 
 
 10 
 
 IS 
 
 2 
 
 3 
 
 6 
 
 6 
 
 6 
 
 10 
 
 3 
 
 3 
 
 7 
 
 12 
 
 13 
 
 24 
 
 1 
 
 1 
 
 
 
 
 
 5 
 
 
 
 1 
 
 1 
 
 4 
 
 S 
 
 1 
 
 1 
 
 2 
 
 3 
 
 1 
 
 4 
 
 3 
 
 4 
 
 1 
 
 1 
 
 
 
 1 
 
 
 
 1 
 
 
 
 1 
 
 
 
 3 
 
n6 
 
 Report of Prison Inquiry Commission. 
 
 Larceny and receiving and breaking and entering 
 
 Breaking and entering 
 
 Forging and uttering 
 
 False pretenses 
 
 Obtaining money under false pretenses 
 
 Perjury 
 
 Abortion 
 
 Carrying concealed deadly weapons 
 
 Common scold 
 
 Attempt at suicide 
 
 Kidnapping 
 
 Lewdness , 
 
 Juvenile delinquency 
 
 Conspiracy 
 
 Concealing birth of child 
 
 Disorderly conduct 
 
 Transferred from State Home for Girls 
 
 Total 
 
 (c) Previous Commitments. 
 1913 1914 
 
 17 13 
 
 (d) Age. (Minimum limit 17 years; no maximum). 
 
 1913 1914 1915 
 
 Under twenty-one years 11 27 45 
 
 Twenty-one to thirty years 10 25 55 
 
 Over thirty years 10 17 28 
 
 Total 31 69 128 
 
 (e) Coura. 
 
 1913 1914 1915 
 
 White Ill 
 
 Colored 17 
 
 Total 128 
 
 (/) Gvn, Condition. 
 
 1913 1914 1915 
 
 Single 13 30 58 
 
 Married 18 39 70 
 
 Not living with husband at time committed (11) (18) (42) 
 
 Total 31 69 128 
 
 1913 
 
 1914 
 
 1915 
 
 
 
 
 
 3 
 
 
 
 
 
 1 
 
 
 
 
 
 2 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 3 
 
 8 
 
 31 
 
 69 
 
 *28 
 
 1915 
 26 
 
Exhibit C — Statistics as to Correctional Institutions. 117 
 
 (g) Education. 
 
 1913 1914 1915 
 
 Grammar school and above 9 24 42 
 
 Read, write and arithmetic to fractions 11 18 30 
 
 Read and write 7 12 28 
 
 Illiterate 4 10 21 
 
 Unable to read and write in English S 7 
 
 Total 31 69 128> 
 
 (h) Nativity. 
 
 1913 1914 1915 
 
 American 8 22 61 
 
 Slavish 10 15 
 
 German 8 14 14 
 
 Irish 9 10 12 
 
 Jewish (including Russian and Austrian) 1 2 8 
 
 Italian 3 7 
 
 Dutch 2 3 3 
 
 English 3 3 
 
 Scotch 1 1 
 
 German-Polish 1 1 
 
 French-Polish 1 
 
 Swedish 1 
 
 Norwegian 1 
 
 Polish 2 0i 
 
 Lithuanian 1 0-' 
 
 Total 31 .69 128; 
 
n8 Report of Prison Inquiry Commission. 
 
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Exhibit C — Statistics as to Correctional Institutions. 1 19 
 
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120 Report of Prison Inquiry Commission. 
 
 V. Totae Number oe Children Committed Since the Organizing of the 
 Board, With the Peaces From Which They Were Committed. 
 
 Atlantic County 3 
 
 Bergen County 28 
 
 Bloomfield Town 15 
 
 Burlington County 224 
 
 Camden County 106 
 
 Cape May County 24 
 
 Cumberland County 33 
 
 Dover Township 1 
 
 East Orange City 13 
 
 Elizabeth City S3 
 
 Englewood City 8 
 
 Franklin Township 10 
 
 Gloucester County 37 
 
 Glen Ridge Town 2 
 
 Howell Township 6 
 
 Hillsboro Township 1 
 
 Hudson County 2,911 
 
 Keyport Town (Raritan T'ship) 11 
 
 Lakewood Town 6 
 
 Little Falls Township (West Paterson Borough) 11 
 
 Long Branch City 12 
 
 Millburn Township 3 
 
 Montclair Town 28 
 
 Morris County 24 
 
 Mountainside Borough 1 
 
 Middletown Township : 1 
 
 Manchester Township (Haledon Borough) 6 
 
 Newark City 415 
 
 New Providence 4 
 
 N. Plainfield Township 5 
 
 Orange City 30 
 
 Passaic City 25 
 
 Patterson City 55 
 
 Perth Amboy 22 
 
 Piscataway Township » 5 
 
 Plainfield City 37 
 
 Plumbstead Township 1 
 
 Rahway City 7 
 
 Salem County 42 
 
 Sayreville Township 1 
 
 South Amboy Borough 6 
 
 S. Brunswick Township 3 
 
 Summit City 6 
 
 Sussex County 93 
 
Exhibit C — Statistics as to Correctional Institutions. 121 
 
 Trenton City 98 
 
 Union Township (Union County) 2 
 
 Upper Freehold Township ' 2 
 
 Warren County 59 
 
 Westfield Town 15 
 
 West Amwell Township 2 
 
 Woodbridge Township 15 
 
 West Milf ord Township 5 
 
 Wall Township 1 
 
 Cedar Grove (Verona T'ship) 1 
 
 Borough of Somerville (Bridgewater Township) 15 
 
 Wayne Township 2 
 
 Springfield Township 2 
 
 Union Township (Hunterdon County) 2 
 
 Clark Township (Union County) 2 
 
 Roselle Borough 16 
 
 Delaware Township (Hunterdon County) 1 
 
 Acquackanock Township 2 
 
 Holland Township (Hunterdon County) 1 
 
 West Orange City 1 
 
 Bound Brook 1 
 
 Shrewsbury Township 4 
 
 Linden Township 6 
 
 Belleville Township 2 
 
 Hopewell Township 2 
 
 Montgomery Township 2 
 
 Union County 7 
 
 Monmouth County 8 
 
 Middlesex County 2 
 
 Asbury Park ". 4 
 
 Lambertville 2 
 
 South Bridge Borough 
 
 Red Bank 
 
 Stockton 
 
 New Brunswick 
 
 Clinton Township (Hunterdon County) 
 
 North Plainfield Borough 
 
 Essex County 
 
 Hammonton (Atlantic County) , 
 
 Atlantic City 
 
 Ocean County (Berkeley Township) 
 
 Town of Allendale (Bergen County) 
 
 Township of Union (Bergen County) 
 
 Chrome (Middlesex County) 
 
 Scotch Plains 
 
 Princeton 
 
122 Report of Prison Inquiry Commission. 
 
 Upper Macopin 1 
 
 Caldwell Borough 1 
 
 Kingwood Township (Hunterdon County) 1 
 
 Garwood 1 
 
 Total 4,703 
 
 7. Statistics Regarding the Population of New Jersey (Statistics of 1910). 
 
 Distribution according to color in 1910. 
 
 White 2,445,894 
 
 Negro 80,760 
 
 Indian 168 
 
 Chinese 1,139 
 
 Japanese ; 206 
 
 Nativity. 
 
 Total native born 1,876,379 
 
 Total foreign born 666,788 
 
 Native born of native parents 1,101,182 
 
 Foreign born or of foreign parentage 1,435,985 
 
 Distribution of those Foreign Born or of 
 Foreign Parentage. 
 
 Austria 88,207 
 
 Belgium 2,868 
 
 Canada 19,436 
 
 Cuba and West Indies 1,527 
 
 Denmark 9,667 
 
 England 122,041 
 
 Finland 2,258 
 
 France 13.036 
 
 Germany 333,636 
 
 Greece 1,882 
 
 Holland 27,503 
 
 Hungary 68,699 
 
 Ireland 260,492 
 
 Italy 191,849 
 
 Norway 8,352 
 
 Roumania 3,237 
 
 Russia 146,683 
 
 Scotland 38,091 
 
 Sweden 18,348 
 
 Switzerland 13,759 
 
 Turkey 3,618 
 
 Wales 3,283 
 
 All others 57,513 
 
 Total 1,435,985 
 
Exhibit C — Statistics as to Correctional Institutions. 123 
 
 Iimteracy. 
 
 Illiterates in New Jersey in 1910. 
 
 Native white 12,253 
 
 Native parentage 8,562 
 
 Foreign or mixed parentage 3,691 
 
 Foreign born white 93,551 
 
 Negro 7,405 
 
 113,502 
 The illiterates comprise 5.6 per cent, of the total population. 
 
 Religious Distribution of all Communicants in New Jersey in 1906 (latest 
 census available). 
 
 Catholic 441,432 
 
 Protestant 407,430 
 
 Others 8,686 
 
 Total 857,548 
 
Exhibit D. 
 
 PRISON LABOR AND THE STATE USE SYSTEM 
 
 IN 
 
 NEW JERSEY 
 
Exhibit D — Prison Labor and State Use System. 127 
 
 ■ TABLE OF CONTENTS 
 
 PAGE 
 
 I. Prison Labor in New Jersey, 1798-1911 128 
 
 II. The Substitution of the State Use for the Contract System 130 
 
 1. The Act of 1911 and the Continuation of Contract Work. 130 
 
 2. The State Use System in the State Prison 13S 
 
 (a) The Knitting Industry 135 
 
 (6) Road Work 137 
 
 (c) The Prison Farm 140 
 
 3. The State Use System in the State Reformatory 146 
 
 (a) Building Operations 146 
 
 (6) Farm Operations 147 
 
 (0 Road Work 147 
 
 (d) Shop Production 149 
 
 (e) The Reformatory's Industrial Plan ISO 
 
 1. The School ISO 
 
 2. Industrial Training 151 
 
 3. Wages 151 
 
 III. The Prison Labor Commission and its Operation 151 
 
 IV. The Further Development of the State Use System 154 
 
 1. The Reformatory 154 
 
 2. The Prison 155 
 
 (a) School Furniture Manufacturing 155 
 
 (6) Automobile Tag Industry 157 
 
 (c) Present and Future Assignments of Population.. 157 
 
 3. State Use Market Generally 160 
 
 4. Working Capital 161 
 
 5. Wages for Prisoners 162 
 
 V. Appendix. Number of Inmates, Revenue, Cost, etc., of the State 
 
 Prison, 1900-1916 168 
 
128 Report of Prison Inquiry Commission. 
 
 I. Prison Labor in New Jersey, 1798-1911. 
 
 The industrial history of the correctional system of New 
 Jersey 1 down to a comparatively recently period is summed up 
 in the experience of the State Prison from its opening in 1798 
 to the beginning of the industrial development of the State 
 Reformatory in 1914. 2 In the beginning the sentence to 
 imprisonment "at hard labor" was taken at its face value, and 
 the element of labor was emphasized as an essential part of the 
 punishment imposed by law on the criminal. Accordingly in 
 the act of February 15, -1798, providing for the administration 
 of the first State Prison, it was expressly provided that the 
 prisoners were to be "employed at labor of the hardest and 
 most servile kind". But by 1824 the financial interests of the 
 State in prison labor had come to be recognized. In that year 
 a joint committee of the legislature expressed the growing dis- 
 satisfaction with a system which entailed an annual loss of over 
 $5,000 to the State. One of the arguments urged by a similar 
 joint committee in 1833 in favor of the system of solitary con- 
 finement, which was then coming into favor, was the alleged 
 superior economic, as well as disciplinary, value of individual 
 labor performed by convicts in their cells. It was the disap- 
 pointment of this hope, as much as the demoralizing effects of 
 solitary confinement on the health and morals of the inmates, 
 
 'The story is told in detail in the History of the Penal, Reformatory 
 and Correctional Institutions of New Jersey, by Harry E. Barnes, which 
 constitutes vol. II of this Report. 
 
 2 This whole survey of prison labor in New Jersey has been consciously 
 limited to the State Prison and the State Reformatory for men. No 
 systematic development of industry has as yet taken place in the newly 
 formed State Reformatory for Women. Further, it is obvious that at the 
 State Homes for Boys and Girls the industrial problem should be wholly 
 subordinated to the system of industrial education and should involve little 
 connection with mere temporary productivity. Thus the labor arrange- 
 ments at these two correctional institutions come under an analysis of the 
 general system of administration and management of the institutions and 
 are most intimately related to the task of reconstructing their educational 
 system. 
 
Exhibit D — Prison Labor and State Use System. 129 
 
 which led to the partial restoration of the congregate system by 
 the establishment of workshops under the act of March 22, 
 i860. 
 
 Until the partial installation of the system of manufacturing 
 goods for state use in 19 15, the prison industries were from 
 the beginning operated on the "lease" or the "piece-price" form 
 of the contract system, though there were occasional brief 
 periods when the goods produced in the prison shops were sold 
 for public account. There were years, also, when the prison 
 industries met or came near meeting the cost of operating them, 
 but their general record has been one of large and increasing 
 financial loss to the State. It was in order to meet this situa- 
 tion and provide for a more efficient administration of the indus- 
 tries that the legislature in 1869 created the office of Supervisor 
 of Prison Industries, which still exists under the name of Fiscal 
 Agent. 
 
 But this expedient did little to stem the tide of disaster, which 
 culminated in a deficit of $92,045. in 1876, and, until 1884, 
 resulted in an annual loss to the State of from $50,000. to 
 $70,000. In that year (1884) the legislature took the first 
 step toward the abolition of the contract system, but, as it 
 still permitted the prison authorities to contract for the dis- 
 position of manufactured goods on the "piece-price" system, the 
 act left matters very much as they were. The form of the con- 
 tract system thus instituted has flourished to the great benefit of 
 the contractors and the increasing detriment of the State down 
 to the present time. In 1899 the loss to the prison reached the 
 figure of $93,940., and by 191 1 it had mounted to $178,585., 
 and by 1916 to $233,649. 
 
 This was the condition of affairs when the legislature took 
 a more decisive step to rid the prison of the contract system. 
 
130 Report of Prison Inquiry Commission. 
 
 II. Substitution of the State Use for the Contract 
 
 System. 
 
 1. The Act of 1911 and the Continuation of Contract Work 
 
 The Legislature of 191 1 abolished the private contract sys- 
 tem of prison industry, and substituted therefor the State Use 
 system, by an act of June 7 (Chapter 372), in the following 
 terms : 
 
 1. From and after the passage of this act no contract what- 
 ever shall be made by which the labor or time of any inmate 
 of any penal, correctional or reformatory institution of this 
 State or any political subdivision thereof, or the product or 
 profit of his work, shall be let, contracted for, leased, farmed 
 out, given or sold to any person, firm or corporation, except that 
 the inmates in such institutions may work for, and the product 
 of their labor may be disposed of to the State or any political 
 subdivision thereof, or to any public institution owned, man- 
 aged and under the control of the State or any political sub- 
 division thereof, for the purposes and according to the provi- 
 sions of this act; provided, however , that nothing herein con- 
 tained shall affect any existing contract for prison labor; and 
 provided further, that no existing contract for such labor shall 
 be renewed or extended. 
 
 By the same Act (Sec. 4), a Prison Labor Commission was 
 provided for, consisting of "the warden of the State Prison at 
 Trenton, the superintendent of the State Reformatory at Rail- 
 way, together with two other persons to be appointed by the 
 Governor", which Commission was to have "general control and 
 supervision over the employment of the inmates of all State 
 penal, correctional and reformatory institutions, and the dis- 
 posal of the products of their labor." 
 
 Section 5 of the act made it "the duty of the said Commis- 
 sion to assign the labor and industries to said institutions," 
 while, under Section 7, all institutions supported in whole or in 
 part by the State, and all State departments and "all political 
 
Exhibit D — Prison Labor and State Use System. 131 
 
 subdivisions of the State," were "authorized and directed to pur- 
 chase" through the Commission, such articles or supplies as 
 might be produced by the institutions under the Commission's 
 authority. 
 
 When this law was enacted an average of 853 prisoners were 
 working under nine contracts entered into by the Prison authori- 
 ties in 1909 and expiring as follows i 1 
 
 Crescent Garment Co., Shirts 100 men Expiring Oct. 1, 1913 
 
 Oppenheim & Co., Trousers 100 " " Jan. 1, 1914 
 
 if tt It 
 
 Waist bands 
 
 50 " 
 
 <( 
 
 tt 
 
 is it 
 
 Trenton Whisk Broom 
 
 
 
 
 
 
 Co., 
 
 Brooms & Whisk 
 
 
 
 
 
 
 Brms. 60 to 
 
 100 " 
 
 tt 
 
 « 
 
 it tl 
 
 W. S Rendell, 
 
 Shoes & Cartons 
 
 
 
 
 
 
 100 to 125 " 
 
 " 
 
 Feb. 
 
 1, 1914 
 
 Rancocas Mills, 
 
 Mats 
 
 100 " 
 
 it 
 
 (1 
 
 it tt 
 
 it n 
 
 Matting 
 
 75 " 
 
 tt 
 
 " 
 
 tt tt 
 
 Mercer Brush Co., 
 
 Brushes & 
 
 
 
 
 
 
 Brooms 
 
 100 " 
 
 a 
 
 Mar. 
 
 1, 1914 
 
 J. Schwerin, 
 
 Petticoats 
 
 100 " 
 
 tt 
 
 " 
 
 1, " 
 
 No appropriation was made by the Legislature for the altera- 
 tions in shops or for the equipment necessary when these con- 
 tracts should expire nor was any provision made for working 
 capital for the State use industries which were to supplant them. 
 The Board of Prison Inspectors who, in connection with the 
 projected abolition of the contract system, had presented to the 
 Legislature a statement estimating the cost of installation of 
 the new system at not less than half a million dollars, believed 
 that the requirements of the State would not be sufficient to keep 
 the population of the Prison engaged on shop work and "in 
 order to avoid the chaotic conditions resulting from idleness 
 when the private contracts should expire in 19 14," was of the 
 opinion that "means for recreation must be provided for the 
 prisoners during such periods of the year when they will not 
 be engaged in manufacturing for the State. 2 
 
 'Annual Report of the State Prison, 1911. 
 'Report of N. J. State Prison, 1911. 
 
13 2 Report of Prison Inquiry Commission. 
 
 The Prison Labor Commission, provided for in the Act of 
 June 7, 191 1, was not created until the April following. When 
 organized four months later, in August 1912, the Commission 
 immediately set about gathering from State Institutions, but 
 not from State Departments and political subdivisions of the 
 State, information as to the prison-made goods required by these 
 these institutions, and in general terms ordered the Prison au- 
 thorities to proceed to make such of these supplies as labor in 
 the prison "is now available for, and such as will employ all 
 the labor of the men therein, after January 1, 19 14, not already 
 employed or to be employed on road work ; and in contemplated 
 agricultural and quarry operations, or other State work". 1 
 
 While a beginning in the actual operation of the State Use 
 system was made by furnishing sixteen men from the Prison 
 to the State Road Commission for work on the roads in the 
 vicinity of Trenton, the Commission busied itself more with 
 plans for getting large numbers of men employed in road work, 
 in quarrying and in farming, than in the details of the substi- 
 tution of State Use shop work for contract shop work when 
 the private contracts should expire some fifteen to eighteen 
 months later. On the other hand the Prison Inspectors who, 
 together with the Commissioner of Charities and Corrections, 
 were required by the Act of 191 1 (Sec. 17) "to incorporate in 
 their annual estimates for appropriations from the State, such 
 sums as may be required by each of them for carrying out the 
 provisions of this act", complained that not "having knowledge 
 of what the Labor Commission may consider requisite for 
 State Prison purposes, were at a loss to know what amount 
 of money should be included in their annual estimates." 2 The 
 Governor was urged by the Prison Inspectors to recommend 
 the passage of an act extending at least one-half of the prison 
 labor contracts "for such period of time as the Prison Labor 
 Commission, in its judgment, deems necessary to properly insti- 
 tute the complete State Use System, in the State Prison". Fail- 
 
 1 ist Report of Prison Labor Commission, 1912. 
 'Report N. J. State Prison, 1912. 
 
Exhibit D — Prison Labor and State Use System. 133 
 
 ing such an Act, and in the absence of definite instructions from 
 the Commission, the Inspectors foresaw that a very large number 
 of prisoners would shortly be without employment — "a very 
 serious reflection upon the State, as it is the unanimous opinion 
 of all penologists that nothing is so conducive to insanity and 
 general chaotic conditions in prisons as the influence idleness 
 has on the inmates". 1 
 
 The Legislature of 1912, having before it no request for an 
 appropriation for the equipment of the prison shops for State 
 use purposes, made no appropriation, and, on October 1, 1913, 
 the first of the private contracts expired, that of the Crescent 
 Garment Company, providing for the employment of 100 men 
 in the manufacture of shirts. The Governor had been urged 
 by the Inspectors to extend this contract for a period of six 
 months, but this action the Governor had refused to take, believ- 
 ing that temporary employment on the roads could be found 
 for the 100 men released by the expiration of the first of the 
 contracts, while the Legislature about to convene would make 
 permanent provision by proper appropriation for the men on 
 this contract as well as for the large number whose contract work 
 would cease in the first months of 19 14. 
 
 But although the Road Department was willing to employ 
 many more prisoners than the small number furnished by the 
 Prison, it, like the Prison Inspectors, was without funds where- 
 with to pay the extraordinary number of guards, without whose 
 presence the Keeper of Prisons refused to permit the prisoners 
 in his charge to work outside the prison walls. 
 
 Relief from 'the situation in which the State Use system had 
 thus become involved, was now sought by the Prison Inspectors 
 in an appeal for an appropriation of $180,000 for the installation 
 of State Use machinery. This appropriation the Legislature 
 declined to make. The necessity was now obvious for the con- 
 tinuation of the private contracts. In the closing hours of the 
 session, the Legislature of 1913 passed by unanimous consent 
 an amendment to the Act of 191 1, forbidding future private 
 
 'Report N. J. State Prison, 1912. 
 
134 Report of Prison Inquiry Commission. 
 
 contracts, but permitting the State Prison Inspectors, with the 
 approval of the Governor to "renew or extend such number or 
 portions of contracts for labor of the prisoners for the State 
 prison, as in their judgment may be necessary to keep such 
 prisoners employed, pending the time when, under the provision 
 of any other act or acts of the Legislature the said prisoners may 
 be employed on farm work, quarry work or road work". 1 
 
 The effect of this Act was three-fold. In the first place, the 
 pressure exerted by the Act of 191 1 was at once removed and 
 the State Use system could easily be made to wait indefinitely, 
 while the private contracts from time to time were renewed. 
 And as the Act of 191 1 specifically provided that no private con- 
 tracts for prison labor were to be made in the future, while the 
 Act of 1913, repeating this prohibition, expressly permitted the 
 Prison Inspectors, with the approval of the Governor, to "renew 
 or extend such number or portions of contracts for the labor 
 of the prisoners of the State prison, as in their judgment may 
 be necessary to keep such prisoners employed", the second effect 
 of this legislation was that the private contractors were provided, 
 in a rising labor market, with labor at the price agreed upon when 
 their contracts were originally signed in 1909. Thirdly, as only 
 extensions or renewals of old contracts were permitted, the old 
 contractors were secured against new competitive bidders. The 
 results, if not foreseen at the time, stand out plain enough today. 
 There were operating at the Prison in 1913 the following con- 
 tractors : — 2 
 
 W. S. Rendell, shoes and cartons. . . .Contracting for 100 to 125 men. 
 
 Oppenheim & Co., pants " " * 100 " 
 
 Oppenheim & Co., waistbands " " SO " 
 
 Crescent Garment Co., shirts and 
 
 drawers " " 100 " 
 
 Trenton Whisk Broom Co., brooms 
 
 and whisk brooms " " 60 " 100 " 
 
 Mercer Brush Co., brushes and brush 
 
 blocks " " 100 " 
 
 Rancocas Mills, mats, " " 100 " 
 
 Rancocas Mills, matting " " 75 " 
 
 l Chap. 366, Law of 1913. 
 
 'Annual Report of the State Prison, 1913. 
 
Exhibit D — Prison Labor and State Use System. 135 
 
 Up to September, 19 17, but two of these contractors had 
 ceased to operate, the Mercer Brush Co., which, August 4, 1914, 
 notified the Board of Supervisors that they would suspend their 
 contract; and the Trenton Whisk Broom Company, whose 
 contract was terminated by the Governor June 30, 19 17. 
 
 Indeed, of actual State Use work at the Prison, under the 
 promising legislation of 191 1, there was none except road and 
 farm work until August, 191 5, when a small number of men 
 were assigned to the Knitting Industry then at last installed. 
 
 II. The State Use System in the State Prison. 
 (a) The Knitting Industry. 
 
 (a) The Knitting Industry was established at the prison, 
 pursuant to final orders received from the Prison Labor Com- 
 mission in September, 1914. As soon as the $25,000 appro- 
 priated by the Legislature became available for the purpose, con- 
 tracts were awarded and a modern equipment was installed at 
 a cost of $12,861.92. After experiencing some difficulty in 
 securing a properly qualified instructor and in the selection of 
 operatives among the untrained prison population, work was 
 commenced in August, 191 5. The State House Commission 
 granted the request of the Prison Inspectors to purchase $5,000 
 worth of yarn without advertising, and the Prison Labor Com- 
 mission instructed the various State institutions that in the 
 future they would be required to make all their hose and under- 
 wear purchases from the Prison, instructions so well complied 
 with, that in the following year on knitted goods to the total 
 value of $5,488.78 purchased by these institutions, only goods 
 to the amount of $486.64 were released for purchase in the 
 open market. 
 
 In fact, the difficulty with the knitting industry has been 
 rather its ability to produce more goods, though poorly made, 
 than the institutional requirements. It has at no time employed 
 any considerable force of men for many months at a time, and 
 yet it has produced a surplus which, only with difficulty, the 
 
136 Report of Prison Inquiry Commission. 
 
 Prison Labor Commission has been able to dispose of in other 
 states. Thus, on October 31, 1915 and 1916, there were em- 
 ployed in this' industry 10 and 20 men respectively, and on 
 September 25, 1917, 20 men, an increase of 15 over the number 
 found at this industry when the Prison Inquiry Commission 
 inspected it in February, 1917. Even with a force of 25 men 
 engaged in the latter months of 19 15, the Prison Inspectors 
 found that they were producing a large surplus of goods difficult 
 to store and were using up their capital account. 
 
 The balance sheet showing operating cost of the Knitting 
 Industry is here presented for the year 1916: 1 
 
 Amount of appropriation was $25,000.00 
 
 Cash receipts credited to Prison Labor Account 5,173.10 
 
 Total applicable to Prison Labor Account $30,173.10 
 
 Expenditures charged to Prison Labor Account 
 
 Belting 11.86 
 
 Appliances 250.21 
 
 Yarn 6,345.93 
 
 Needles 94,98 
 
 Oil and Sundries 661.27 
 
 Wages 2,455.17 
 
 Amount requisitioned for Prisoners' payroll 1,740.00 
 
 Packing and transportation 391.18 
 
 Light and Power 108.11 12,058.71 
 
 Balance in Prison Labor Account $18,114.39 
 
 In the first year of its installation at the Prison the knitting 
 industry was thus criticized by the Prison Inspectors : 
 
 "From our observation of this class of work, we believe that 
 an error was made in assigning same to State Prison as the 
 character of the work is such that it requires nimble fingers and 
 keen eyesight, and we believe that greater efficiency would be 
 secured if the knitting was undertaken by an Institution wherein 
 women are inmates, rather than to assign such work to the 
 unskilled and crude handling of the prisoners at the State 
 Prison. We believe that it would be better for the prisoners, 
 
 W. /. State Prison Report 1916. 
 
Exhibit D — Prison Labor and State Use System. 137 
 
 and also for the State, if work less delicate in character, and 
 offering a reasonable chance for similar work at free labor, was 
 provided for the State Prison inmates." 1 
 
 In its report for the following year the Prison Labor Com- 
 mission announced the same conclusion. 2 
 
 (b) Road Work. 
 
 The acting Governor of the State had in part based his refusal 
 to accede to the wishes of the Prison Inspectors in the matter 
 of an extension of the first of the private contracts to expire, 
 upon the belief that there was soon to be a large employment 
 of prisoners upon the roads. It was upon such work and upon 
 other outdoor work at a prison farm or in quarrying stone for 
 road building, that much hope was placed by all who were con- 
 fronted with the overcrowded cell conditions at the Prison 
 and with the impracticability of erecting new shops within the 
 Prison enclosure. 
 
 But the farm and the road work did not, and have not yet, 
 fulfilled the expectations so generally held of them. At first 
 came the difficulty of meeting the expense for guarding the 
 prisoners on road work, for the Keeper, responsible for the safe 
 keeping of the prisoners placed in his custody, would not per- 
 mit assignments to work outside the prison walls except under 
 three times the number of guards deemed sufficient by the Board 
 of Inspectors. This expense, together with that of feeding the 
 prisoners and guards placed upon the Road Department, was 
 heavy enough to interfere with the profitable prosecution of this 
 work by a State department itself required to keep within its 
 appropriations. Sixteen men in 19 12 were put upon road work 
 in the vicinity of Trenton, being taken to and from the Prison 
 each day in cars. In the following year under authority of 
 Chapter 290 Laws 191 3, two road camps were established: 
 
 1 N. J. Prison Report, 1915. 
 
 'Fifth Annual Report Prison Labor Commission 1916. 
 
138 Report of Prison Inquiry Commission. 
 
 Camp Number 1 at Andover, in Sussex County, with 30 men, 
 and Camp Number 2 near Princeton, in Mercer County, with 
 16 men. The whole expense of these camps was borne by the 
 State Commissioner of Roads, who, in the words of the statute, 
 "may expend any moneys available for construction, repair, and 
 maintenance of roads to meet the cost of housing, feeding and 
 guarding the prisoners at work, or any portion of such cost, and 
 for materials, tools, supplies and road building machinery 
 needed." The statute further provided that "the Prison Labor 
 Commission, together with the governing body of the Institu- 
 tion, and the Supervisor, may determine the number of men to 
 be assigned, the cost of transfer, maintenance and compensation 
 of labor, and may enter into an agreement with the Commis- 
 sioners for the payment of said cost of transportation and main- 
 tenance, or any part thereof and that the Board of Prison 
 Inspectors is to fix all rules and detail guards, while the work 
 shall be under the supervision of the Commissioner of Roads." 
 
 In actual operation this system has, as might be expected, 
 proved confusing, costly and inefficient. It has in practice re- 
 sulted in the prison camp foreman claiming and obtaining sole 
 authority in all matters relating to conduct and discipline, while 
 the Road foreman, responsible for the work performed, has 
 been unable to direct the prisoners with any show of authority. 
 If the Camp guard foreman is alert, interested and willing to 
 co-operate with the road foreman, work may progress without 
 undue friction; but, given a guard without these qualities and 
 a road foreman unable under such conditions to get work out 
 of men whom he can neither discharge nor discipline, satis- 
 factory results are impossible. 
 
 Under such conditions as to management and responsibility, 
 the number of men from the Prison and the Reformatory 
 engaged upon road work have been approximately as follows: 1 
 
 ^Report Commissioners of Public Roads, 1916. 
 
 ^or Exact Prison Camps' Census by months, from June 30, 1913 to 
 Sept. 30, 1917, see appendix II. 
 
Exhibit D- 
 
 —Prison Labor and State Use System. 
 
 1912 16 
 
 1913 30 
 16 
 
 1914 42 
 
 men, 
 tt 
 
 n 
 
 it 
 
 16 Vicinity of Trenton i 
 
 Camp 1, Andover 
 46 " 2, Rocky Hill 
 " 1, 
 
 rom 
 
 it 
 tt 
 
 the Prison 
 
 tt tt 
 
 a tt 
 
 102 
 
 " 
 
 
 tt 
 
 2, 
 
 tt 
 
 
 i 
 
 104 
 
 1915 42 
 
 55 
 
 it 
 
 tt 
 
 248 
 
 Vicinity of Trenton 
 Camp 1, 
 " 2, 
 
 tt 
 tt 
 tt 
 
 
 t 
 
 34 
 
 " 
 
 
 if 
 
 3, Elmer 
 
 tt 
 
 a tt 
 
 30 
 1916 45 
 
 tt 
 
 161 
 
 tt 
 
 4, Rahway 
 
 1, 
 
 tt 
 tt 
 
 " Reformatory 
 " Prison 
 
 40 
 
 " 
 
 
 It 
 
 2, 
 
 tt 
 
 u a 
 
 26 
 
 tt 
 
 
 a 
 
 3, 
 
 tt 
 
 " Prison 
 
 30 
 
 tt 
 
 141 
 
 
 4, Rahway 
 
 it 
 
 " Reformator3 r 
 
 139 
 
 The expense of maintaining these camps, including salaries 
 of guards and an allowance to the Prison of fifty cents per day 
 for each prisoner furnished, was carried by the Road Com- 
 missioner up to July 1, 19 14. After that date a new agreement 
 was entered into under which the Prison Inspectors maintained 
 the prisoners and paid the salaries of deputies, the Road Com- 
 missioner paying $1.75 to the Prison per day for each prisoner 
 furnished. In 1915, the rate of pay to the Prison was changed 
 to $1.50 and then to $1.25, remaining at the latter figure until 
 the fiscal year 191 7, when the rate was increased to $1.45. 
 
 The Prison has received from the Road Commissioner and 
 has expended the following sums on account of road work of 
 prisoners : 
 
 Receipts. Expenditures. 
 
 Dec. 12, 1912 to Oct. 31, 1913. $2,650 
 
 1914 31,843 $3,768 
 
 1915 38,403 Maintenance $18,634 
 
 Furniture & Repairs. 300 
 Salaries of Guards.. 13,291 
 
 1916 30,842 
 
 Maintenance $18,743 
 
 Medical care 133 
 
 Furniture 168 
 
 Supplies 3,049 
 
 Salaries 14,178 
 
 32,226 
 
 36,271 
 
140 Report of Prison Inquiry Commission. 
 
 Expenditures made on account of convict labor by the Com- 
 mission of Roads have been: 
 
 1913— $44,683 1915 — $98,980 
 
 1914_ 99_980 1916— 89,926 
 
 The conclusion reached by Colonel Stevens, who, as State 
 Commissioner of Roads, has been energetic in pushing contract 
 road work, is that "Our experience of about four years 
 thoroughly persuades me of three things — first, that work can 
 be done by this means at the same, or less, cost than by con- 
 tract; second, that this class of work is a specially promising 
 method of preparing convicts for a law-abiding and useful 
 career; and, third, that we are by no means availing ourselves 
 of either of the above opportunities. Requests for amendment 
 of the law governing this work have been made every year 
 since its enactment, without satisfactory result. Under present 
 legislation the division of responsibility and control works havoc 
 with efficiency. The work is often delayed for considerable 
 periods on this account. This defect must be cured if better 
 results are to be obtained. The moral improvement of the 
 inmates of our camps is not committed to my department, and 
 I, therefore, do not comment thereon or on the changes desirable 
 for that purpose. I may, however, be pardoned for expressing 
 the belief that the benefits to the men fully justify a continuance 
 of the work even if the return in work performed is a little 
 more costly and is longer delayed than in the case of contracts." 1 
 
 (c) The Prison Farm. 
 
 One of the very first concerns of the Prison Labor Com- 
 mission after its organization in 1912, was to secure other forms 
 of outdoor employment for the men at the Prison than road 
 work. Plans were considered for purchasing a tract of land 
 along the Delaware River upon which was a quarry to furnish 
 stone for road work in the State. The Commission also had 
 
 ^Report of Commissioner of Public Roads, 1916. 
 
Exhibit D — Prison Labor and State Use System. 141 
 
 the intention of offering the labor of prisoners to those who 
 were proposing the Wharton water tract improvement. Other 
 projects were considered, such as co-operating with the State 
 Forestry Commission in the clearing by convict labor of the 
 brush growing along the unimproved roads in the southern 
 counties of the State, the production of bricks for general State 
 institutional use, the quarrying of lime for the farmers of the 
 State, etc. As already mentioned, the overcrowded conditions 
 at the prison and the pressure exerted by the Act of 191 1 doing 
 away with the private contractor, gave impetus to the desire to 
 put prisoners at such work out of doors as was generally con- 
 sidered to be conducive to reform, health and economy. The 
 building and farming operations at the Reformatory, conducted 
 entirely by the inmates, was, moreover, a constant object lesson 
 in what might be accomplished along similar lines by the men 
 from the Prison. 
 
 In 1913 the Legislature authorized (Chap. 289) the purchase 
 "of land for the employment of State prisoners in agricultural 
 pursuits, and in quarrying stone and in the preparation of build- 
 ing and road materials", and appropriated $21,000 for the pur- 
 chase of 1,009 acres of unimproved and almost wholly uncleared 
 land at Leesburg in Cumberland County. The property was 
 turned over to the Prison Inspectors on September 15 and 
 within a month 37 prisoners were at work clearing the land 
 and erecting buildings. 
 
 As in the case of road work, there were great expectations 
 as to the number of men who would find employment on the 
 farm and, as in the case of the roads, the record falls far short 
 of the promise. That record is : 
 
 Prisoners at the Farm, October 31, 1914 79 
 
 Average population 1915 105 
 
 1916 108 
 
 September 25, 1917 92 
 
 At the beginning, difficulties were encountered in securing a 
 competent farm manager. After this was overcome, it became 
 
142 Report of Prison Inquiry Commission. 
 
 more and more evident, as time went on, that the "Prison 
 Farm", so called, was in fact a land improvement project. Trees 
 had to be cut, stumps pulled, deep drains dug and houses built 
 for the working force. Seeing in the first year's development 
 excellent work for prisoners and a good investment for the 
 State, the Prison Labor Commission recommended that "an- 
 other farm of one thousand acres be purchased in the same 
 locality and that another appropriation of $21,000. be made 
 for that purpose", a recommendation which, however, has never 
 been acted upon by the Legislature nor, indeed, reiterated by the 
 Commission. In the Commission's view the results obtained had 
 compelled even the opponents of the scheme to admit that the 
 "Farm" was "one of the best investments the State has ever 
 made. The thousand acres of land cost $21,000. While to- 
 day that portion of it which has been cleared could be sold for 
 as much as it all cost, while the State would have left at least 
 600 acres". 1 
 
 Be this as it may, the productive force of the land in ques- 
 tion under the methods thus far employed have been rather 
 meagre, as may be seen from the following figures : 
 
 1915 1916 
 
 Potatoes, bu 1,856 
 
 Beets, bu 30 
 
 Corn, doz 151 
 
 Lima Beans, baskets 172 
 
 Peas, Beans, Lettuce, baskets. 234 
 
 Tomatoes, baskets.... 90^ 
 
 Tomatoes, lbs 26,974 
 
 Carrots, turnips and onions, 
 
 baskets 202^ 
 
 Cabbage, heads 5,000 
 
 Squash, pumpkins, cantaloupes, 
 sweet potatoes, bbls 4,739 219 22 65 
 
 $2,299 $4,567 
 
 $1,392 
 
 2,543 
 
 $3,377 
 
 15 
 
 60 
 
 30 
 
 19 
 
 767 bu. 
 
 691 
 
 102 
 
 120 
 
 71 
 
 133 
 
 75 
 
 37 
 
 13 
 
 
 
 121 
 
 
 
 85 
 
 155 
 
 88 
 
 200 
 
 1,362 
 
 81 
 
 Report of Prison Labor Commission, 1915. 
 
Exhibit D — Prison Labor and State Use System. 143 
 
 Other products: 
 
 1915 1916 
 
 Milk $1,024 $2,299 . . . $618 
 
 Eggs, chickens, pigs, etc. 318 ... ... 25 
 
 Ryes, corn, hay, lumber, 
 
 etc 1,106 $2,448 ... 1,684 
 
 $4,747 $2,327 $6,894 
 
 The happy confidence that the farm was producing "sufficient 
 potatoes and other farm products to supply the more than four- 
 teen hundred State prisoners" 1 the above figures show to have 
 been in a measure premature. Nor does there seem to be imme- 
 diate prospect of the realization of the aim of the Prison Labor 
 Commission "to increase the product to supply the other insti- 
 tutions of the State beyond what they raise for themselves." 2 
 
 The year following this forecast, the Prison Labor Commis- 
 sion stated in regard to the farm operation: 
 
 "In the Spring of 1916 the Inspectors asked this Com- 
 mission to release the purchase of farm products for the 
 Prison and the Prison Farm. Instead of having pro- 
 duced during the Summer of 19 15 the large quantities 
 of potatoes, tomatoes, cabbage, onions, turnips, beets, and 
 the like, required at the Farm and the Prison, they asked 
 to be permitted to buy them in the open market. As a 
 matter of fact, the Farm was not made to produce enough 
 vegetables to feed the men working on it. It being abso- 
 lutely necessary that the men be provided with suitable 
 supplies, this Commission very reluctantly released to 
 the Inspectors, and permitted them to buy in the open 
 market the produce which they should have produced at 
 
 ^Report of Prison Labor Commission, 1915. 
 
 ^The Prison Labor Commission have collected data from State and County 
 Institutions leading them to the following estimates : 
 
 County Institution 
 above production 
 Annual Consumption of Institutions 
 
 State Institutions. themselves. 
 
 Fresh vegetables $46,078.30 $11,408.74 
 
 Potatoes, corn, oats and hay. . , 85,203.81 
 
 $131,282.11 Total $142,690.85 
 
H4 Report of Prison Inquiry Commission. 
 
 the Farm, but warned them at the same time, that unless 
 in the season of 191 6 there should be a complete crop 
 failure, or unless other sufficient reason could be shown 
 for failure to produce farm products, this Commission 
 would refuse to release in the Fall of 1916, for the 
 Winter of 1916-1917. The State Purchasing Agent, 
 however, informs us that he is purchasing for the Prison, 
 for delivery December and January, their required sup- 
 plies, which include potatoes, onions, a large quantity 
 of cabbage, and many other kinds of farm products. 
 
 "At the present time the Inspectors have quite a num- 
 ber of hogs on the Farm, which they state they intend 
 to kill from time to time, for the use of the prisoners. 
 Last year about this time they had a number of hogs 
 which they sold at 8^2 cents per pound and turned 
 around and purchased pork for the men, in the open 
 market at 13 cents per pound." 1 
 
 As late as the Fall of the present year the prison was still 
 sending in to the State Purchasing Agent requisitions for the 
 purchase of potatoes for its own population and seemed to be 
 no nearer the goal set for it than before. 
 
 The financial operations of the Farm for the years 1914, 1915 
 and 19 1 6 are thus given in the Prison reports for those years: 
 
 1914. 
 
 Sums paid out of State maintenance $5,728.31 
 
 Provisions 1,490.63 
 
 Provisions and furniture 1,999.22 
 
 Salaries of Superintendent and Assistant 1,128.00 
 
 Total maintenance $10,346.16 
 
 Sums paid out of State Prison furniture and repairs 483.49 
 
 Salaries of deputies at farm 5,022.49 
 
 Deficiency salaries 28.80 
 
 Buildings, fencings and fixtures $960.12 
 
 Buildings 4,500.00 
 
 Stock and implements 3,073.65 
 
 Fertilizer, seeds, grain and forage 3,674.81 
 
 Dredging and draining 13.38 
 
 ^Report of Prison Labor Commission, 1916. 
 
Exhibit D — Prison Labor and State Use System. 145 
 
 Medical attendance 198.25 
 
 Implements and harness 648.70 
 
 $28,949.84 
 
 Earnings by sale of wood $153.50 
 
 Earnings by sale of timber cut 1,250.00 
 
 1,403.50 
 
 Total loss $27,546.34 
 
 1915. 
 
 Sums paid out of State Prison Maintenance $8,530.33 
 
 " furniture and repairs 498.52 $9,028.85 
 
 .1 ii ii 
 
 Salaries of Deputies $9,675.55 
 
 Erection of Buildings 8,674.62 
 
 Stock and Implements 1,966.40 
 
 Medical Attendance 286.15 
 
 Fertilizer, Seeds, Grain and Forage 3,960.02 
 
 Buildings, Fencing and Fixtures 552.10 
 
 $25,114.84 
 
 Total loss $34,143.69 
 
 1916. 
 Sums paid out of the State Prison Maintenance $7,331.52 
 
 II u 
 
 " State Prison furniture and repairs.. . 544.46 
 
 Supplies furnished from Prison 2,278.30 
 
 Total $10,154.28 
 
 Salaries of Deputies $9,732.62 
 
 Stock and Implements 1,485.57 
 
 Medical Attendance 165.85 
 
 Fertilizer, Seeds, Grain and Forage 3,928.20 
 
 $15,312.04 
 
 Total loss $25,466.32 
 
 The Leesburg Farm it is evident, is being operated under the 
 following difficulties, over, and above those common to prison 
 labor: 
 
 i. The farm is so far distant from Trenton and so difficult 
 of access that the Keeper and members of the Board of Prison 
 
146 Report of Prison Inquiry Commission. 
 
 Inspectors cannot have intimate personal knowledge of its 
 operations. 
 
 2. Insufficient appropriations have been asked for and insuffi- 
 cient appropriations have been granted for fertilizers with which 
 properly to enrich the soil. 
 
 3. The clearing is done in such a manner that enough acres 
 are not put in condition each year for farm purposes. 
 
 4. Men, money and equipment have been insufficient to clear 
 and drain the land so as speedily to convert a tract of land 
 "covered by timber and briars, and brush, a primeval forest 
 practically" into a "farm". 
 
 3. The State Use System in the State Reformatory. 
 
 The State Use system, the progress of which has been so 
 exceedingly slow at the State Prison, was welcomed from the 
 first at the New Jersey Reformatory. Co-operating with the 
 Prison Labor Commission in its efforts to secure the establish- 
 ment of the new system, the Commissioners and the Superin- 
 tendent at Rah way set about adjusting themselves to the new 
 conditions. With the further advantage of space and modern 
 shops and of a full appreciation on the part of the authorities 
 of the advantages to the inmates of a diversification of industry, 
 the Reformatory has undertaken State Use work along a num- 
 ber of different lines. 
 
 (a.) Building Operations. 
 
 Before the State Use law was enacted in 191 1, building oper- 
 ations and land improvement work was done by the inmates of 
 the institution and, since that date, work of this character has 
 continued and has included the completion of the twenty-five 
 foot cement wall surrounding the Reformatory, the installation 
 of a water system, excavating and grading of lands, the dredg- 
 ing out of an artificial lake for drainage purposes, and the con- 
 struction of the trade school, and disciplinary and stock build- 
 ings. 
 
Exhibit D — Prison Labor and State Use System. 147 
 
 (b.) Farm Operations. 
 
 The farm operations carried on upon the 300 acres of land 
 at Rahway, rented and owned by the Reformatory, have shown 
 . in the past four years the following results, based on wholesale 
 price-prevailing at Newark, N. J. : 
 
 1913 $24,440.78 1915 $27,735.24 
 
 1914 26,333.25 1916 30,293.66 
 
 In the spring of 1917, the Reformatory, undertook, under 
 the direction of E. S. Hoover, further farming operations on the 
 State's property of 450 acres at Annandale, near High Bridge 
 in Hunterdon County. The camp here is in effect an "Honor 
 Camp" and is being developed with modern farming machinery 
 in a way that promises a large and profitable enterprise and 
 which in its first season has produced values estimates at $9,100. 
 
 (c.) Road Work. 
 
 Road work under the Commissioner of Public Roads was 
 undertaken by the Rahway Reformatory June 20, 191 5, thirty 
 men being put at work on the road leading from Rahway to 
 Woodbridge and, as per estimate of the Division Engineer in 
 charge, performing work valued at $12,316, at an operating 
 expense to the Road Department of $7,409.74. The work was 
 continued the following year with about the same number of 
 men, resulting in road values produced (at prevailing contract 
 prices for similar work) of $i5>795-57> at an operating expense 
 of $15,176.93. 
 
 During the year and a half while this work was being per- 
 formed, the men were nearly all of the time under but one 
 guard, returning to the Reformatory when the day's work was 
 done. There was only one attempt at escape — on the part of 
 three men who ran away together. Dr. Moore, the Superin- 
 tendent of the Reformatory, in his report dealing with this Road 
 work, says : "The work has been not only profitable in dollars 
 
148 Report of Prison Inquiry Commission. 
 
 and cents but has furnished healthful employment to the young 
 men. It is vital that there should be an abundance of good, 
 hard, practical and profitable work for any penal institution. 
 The road work has been a valuable contribution to this." 
 
 In October, 191 7, a new agreement was reached between the 
 Road Commissioner and the authorities in charge of the Reform- 
 atory under which fifty selected men from the Reformatory 
 are working upon the road leading to the military encampment 
 at Wrightstown, with twenty-five more soon to be added. The 
 Reformatory maintains the men, and has in charge of the work 
 two inspector-foremen, and will add one more when the addi- 
 tional group is put on the work. One night guard is employed 
 by the Reformatory for the entire camp. 
 
 Two particularly satisfactory and important steps have been 
 taken under this latest State Use enterprise. The Road Com- 
 missioner is paying at the increased rate of $1.75 for each man 
 working a full day, with half pay for days when, owing to 
 weather conditions, work can not be done. This does away 
 with the objection often made to road work, that while the daily 
 cost for road camps is the same in good weather as in bad, the 
 institution furnishing the men and maintaining the camp and 
 its guards, receives no payment when, because of bad weather, 
 no work is done. A similar sensible arrangement would have 
 prevented, it may well be, the irritating and harsh parsimony 
 practiced by the State Prison of having breakfast later on rainy 
 days to the end that the men might get through the day with 
 two meals and thus save something on maintenance cost. 
 
 •A second and more important feature of the new agreement 
 in connection with the Wrightstown camp, is that the men who 
 do satisfactory work are to receive fifty cents a day for each 
 day worked, with half pay for days when work can not be done 
 on account of the weather. This is an extension of the former 
 practice of crediting the road camp men with earnings of fifty 
 cents a day, but of dividing their wages among the whole work- 
 
Exhibit D — Prison Labor and State Use System. 149 
 
 ing force of the institution with consequent actual pay to each 
 man of about five cents a day. 
 
 To summarize here the money income aspect only of that 
 work, the Reformatory has secured for its road work, from 
 the Commissioner of Roads the following amounts: 
 
 *.'. :-*?* 
 
 To November, 1915 $2,404.88 
 
 1916 -. 4,684.88 
 
 1917 4,769.50 $11,859.26 
 
 (d.) Shop Production. 
 
 9 
 
 Shop production at the Reformatory has been as follows 
 since 1914, when the institution, having about completed its 
 building operations, reached the position where it could under- 
 take such production. 
 
 State Use Work at the Reformatory. 
 
 1914 1915 1916 1917 
 
 Carpenter $59.20 $2,107.07 $2,323.90 $1,065.09 
 
 Tin 13.00 1,447.48 1,253.50 847.89 
 
 Printing 26.50 1,806.37 5,325.80 3,859.27 
 
 Tailor 1,047.76 619.44 36.00 
 
 Blacksmith 68.75 3,584.25 3,119.38 
 
 Foundry 139.58 222.96 44.70 
 
 Shoe 101.50 1,594.30 6.807.25 6,831.60 
 
 $268.95 $11,726.81 $19,672.23 $12,684.55 
 
 Unfinished Orders in Process of Manufacture. 
 
 1917 
 
 Carpenter ■' $183.05 
 
 Tin 578.58 
 
 Printing 1,110.40 
 
 Tailor 196.60 
 
 Shoe 4,426.72 
 
 $6,495.35 
 
150 Report of Prison Inquiry Commission. 
 
 Thus the total of shop production and of orders unfilled 
 October 31, 19 17, has been: 
 
 Carpenter $5,738.31 
 
 Tin 4,140.45 
 
 Printing 12,127.76 
 
 Tailor 1,899.80 
 
 Blacksmith 6,772.38 
 
 Foundry 407.26 
 
 Shoe 19,762.37 
 
 Total for trade industries in State Use 
 
 work $50,847.33 
 
 Sale of rags, scrap iron, etc 5,858.91 
 
 $56,706.24 
 
 It is confidently anticipated at the Reformatory that the next 
 year will see a large increase in output on State Use account, 
 since the shoe and printing shops have been re-equipped with 
 modern machinery and large orders in both these lines have been 
 received. 
 
 But important as may be the financial side of these opera- 
 tions and suggestive as it is that the total of State Use shop 
 production in this institution is $56,706.24 as compared with 
 receipts of $5,173.10 for the one State Use shop at the Prison, 
 of far greater importance is the scheme under which this labor 
 is performed at the Reformatory. 
 
 (e) The Reformatory's Industrial Plan. 
 
 (1) The School. 
 
 Compulsory education is the rule at the Reformatory and 
 shop output must give way before it, as half a day at work and 
 half a day at school is the schedule to which the majority of 
 inmates must conform. The school has a highly trained, paid 
 staff, consisting of one Director and six instructors, all college 
 or normal school graduates. The inmates, the majority of 
 whom are below the fourth grade grammar school course, are 
 
Exhibit D — Prison Labor and State Use System. 151 
 
 effectively taught in graded classes, one-half being in attendance 
 in the morning, the other half in the afternoons. 
 
 (2) Industrial Training. 
 
 The work carried on under nineteen "trade instructors" is 
 designed to teach each inmate a trade that will be useful to 
 him upon his release. Whether it be in one of the numerous 
 shops, in construction or road work, in taking care of the cattle, 
 or in raising garden and farm products, the training of the 
 worker is emphasized. But with an average period of confine- 
 ment in the Reformatory of a little over a year, half of which 
 time is taken up in the school, and with no systematized plan 
 of industrial education, the trade training is insufficient. 
 
 (3) Wages. 
 
 All who work on State Use production are credited with 
 fifty cents a day, and, although the wage thus earned is then 
 divided among all the inmates, with a consequent final payment 
 to each of between four and five and a half cents a day, at 
 least some small tangible incentive is provided for industry. In 
 road work, to which assignments are very carefully made on 
 the basis of general trustworthiness and industry, each worker 
 retains for his own account upon release, the full credit received 
 of fifty cents for days worked and of twenty-five cents for 
 days at the Road Camp when unable to work on account of bad 
 weather. 
 
 III. The Prison Labor Commission and its Operation. 
 
 By the Act of 191 1 (Chapter 372), forbidding new private 
 contracts or the extension or renewal of existing private con- 
 tracts, the Prison Labor Commission was created "to have gen? 
 eralcontrol and supervision over the employment of the inmates 
 of all State penal, correctional and. reformatory institutions, and 
 the disposal of the products of their labor." The Commission 
 
152 Report of Prison Inquiry Commission. 
 
 at first (Sec. 4) consisted of "The Commissioner of Charities 
 and Corrections of the State of New Jersey, the Warden of 
 the State Prison at Trenton, the Superintendent of the State 
 reformatory at Rahway, together with two other persons to be 
 appointed by the Governor, by and with the advice and consent 
 of the Senate, who shall serve without compensation." ByJifte^/^ 
 Act of 1914, Chapter 269, the personnel of the Commission was 
 changed by substituting for the Keeper of the Prison and. the 
 Superintendent of the Reformatory, one member of the board 
 of prison inspectors and one member of the commission govern- 
 ing the Reformatory, while "three citizens" were substituted 
 for the "two other citizens" provided for in the original Act. 
 
 The Commission, instituted in April, 19 12, organized in 
 August of the same year and without funds, or office, or staff, 
 set about to carry out the duties placed upon it. 
 
 Weekly meetings were held wherever a room could be found 
 for the purpose. Reports were secured from the various State 
 institutions showing supplies purchased on contract by these 
 institutions as well as the quantities produced by their own in- 
 mates. From that beginning until today when the Commission 
 has a paid Secretary and occupies desk room in the office of the 
 State Commissioner of Charities and Corrections, the Commis- 
 sion has regularly collected data on the State use market and 
 has been active in attempting to further the extension of State 
 use employment. All requisitions upon the State Purchasing 
 Agent (whose office was created in 1916) by State institutions 
 or departments, for articles similar to those produced in the 
 State correctional institutions, are now received and entered 
 up in the Commission's office, purchase of these articles on the 
 market or by contract not being approved by the Purchasing 
 Agent without the written release of the Commission. Thus, 
 as to State institutions and departments, but not as to "political 
 subdivisions of the State" the position has now been reached 
 where the statutory provision (Chapter 372, Laws 191 1, Sec. 
 7) is enforced that such institutions, departments and political 
 
Exhibit D — Prison Labor and State Use System. 153 
 
 subdivisions "shall not purchase any supplies or articles that 
 are manufactured in said penal, correctional or reformatory 
 institutions unless the said Prison Labor Commission shall first 
 certify on requisition made to it that such articles or supplies 
 cannot be furnished." 
 
 The Commission has also made careful and detailed examina- 
 tion of the automobile license tag industry and of the school 
 furniture industry. 
 
 But the expressed intent of the Legislature (Chapter 372, 
 Laws 191 1 ), that the Commission should "have general control 
 and supervision over the employment of the inmates of all State 
 penal, correctional or reformatory institutions" and that it 
 should "assign the labor and industries to said institutions" has 
 never yet been realized. The Commission has neither controlled 
 the labor in any one institution nor has it, except by repeated 
 urgings and in a few cases, been able to assign labor or in- 
 dustries to any particular institution. Many recommendations 
 have been made and orders given, but few of them have been 
 acted on. Not infrequently the recommendations of one year 
 have been materially altered or abandoned the next by the Com- 
 mission itself. Having no authority to enforce its orders, and 
 further lacking authority to ask for the appropriations needed 
 to make their orders effective, or to expend, in the installation 
 of State use industries, money appropriated by the Legislature, 
 the carrying out of these orders is dependent upon the will of 
 those to whom these orders are directed, and upon their general 
 point of view with respect to the State Use system. 
 
 An examination of the orders, recommendations and proposals 
 of the Prison Labor Commission, as set forth in the Commis- 
 sion's reports for the fiscal years 19 12 to 1916, inclusive, gives 
 the following results: 
 
 In the first three months of its operation, to the close of the 
 fiscal year 19 12, the Commission issued three orders and made 
 six requests for appropriations and other legislative action for 
 instituting State Use work, all of which were disregarded, with 
 the exception of the request for funds wherewith to purchase 
 
154 Report of Prison Inquiry Commission. 
 
 the farm at Leesburg. In the fiscal year 19 13, the Commission 
 made three recommendations, none of which was acted upon. 
 In 1914 two orders were issued for the installation of State 
 Use industries in the Prison, one of which, the direction to in- 
 stitute a knitting shop, was complied with in the following year. 
 Two requests for legislation made in the same year were disre- 
 garded. 1^1915, ten orders were issued and five recommenda- 
 tions for legislation made. The only fruit of this activity was 
 the belated establishment, not yet completed, of the automobile 
 tag industry at the Prison. The record for 1916 is one of the 
 reiteration of recommendations previously made and disregard, 
 with no result except the appropriation in 1917 of $3,000 for 
 the purchase of additional land for the Leesburg farm. The 
 Commission has from the day of its organization been per- 
 sistent in its efforts to do away with the contract system in 
 the Prison by putting more men at farm, road and other public 
 work. It has repeatedly issued orders for the installation of 
 specific industries, such as broom and basket-making, the manu- 
 facture of shoes, clothing, tinware and other metal products, 
 in the State Prison, with the results set forth above. 
 
 That the Commission has made no special effort to extend 
 the State Use system of industry to the Jamesburg Home for 
 Boys, which possesses an industrial plant of fair quality, nor 
 to the two institutions for women and girls, may, perhaps, be 
 attributed to the discouragement resulting from its powerless- 
 ness to produce substantial results in the State Prison. 
 
 IV. The Further Development oe the State Use System. 
 
 1. The Reformatory. 
 
 The printing plant about to be equipped with modern ma- 
 chinery and a similar re-equipment of the shoe manufacturing 
 department, will provide the inmates of the Reformatory with 
 opportunities for additional training in modern methods of pro- 
 duction and will bring to the Institution, it may be expected, 
 a satisfactory profit on its industries. The Annandale farm and 
 the road work offer further opportunity for work and profit 
 
Exhibit D — Prison Labor and State Use System. iSS 
 
 if development along present lines are continued. The concern 
 for the immediate future here, therefore, relates to the financing 
 of these operations rather than "to the establishment of any new 
 industries. An adequate provision for working capital is the 
 immediate necessity at the Reformatory. 
 
 2. The Prison. 
 
 At the prison, the matter of the further immediate develop- 
 ment of State Use work is one of finding ways for carrying 
 out with no more delay than necessary the legislative intent of 
 191 1. The probable extension of farm and road work, while 
 making inroads upon the prison population within the walls, will 
 still leave a considerable number with no other occupation than 
 that now provided through private contractors. 
 
 a. School Furniture Manufacturing. 
 
 For some years the manufacture of school furniture at the 
 Reformatory has been advocated by Dr. Moore and the whole 
 subject has received the careful considefation of the Prison 
 Labor Commission. That body has submitted to the Prison 
 Inquiry Commission recommendations for the purchase of ma- 
 chinery, old but reported as in first class condition, for the manu- 
 facture of school desks and seats. It appears that an offer has 
 been made to sell this machinery by a firm which "has sold an 
 average number of desks, and 20,000 assembly chairs, amounting 
 in value to $125,000 annually, which is by no means the total 
 number of desks required by the Public Schools annually". 
 
 It is submitted: 
 
 First. That prison manufacture of school furniture offers a 
 large and profitable market under the State Use system. 
 
 Second. That the manufacture of school furniture presents 
 the needed opportunity for the teaching of a number of profit- 
 able trades to prisoners. 
 
156 Report of Prison Inquiry Cbmmission. 
 
 Third. That this industry could engage the full time of at 
 least 200 prisoners and, at half time, double that number. 
 
 In view of the important bearing of this industry upon the 
 problem in hand, a thorough inquiry is needed to ascertain as 
 exactly as possible, what, in fact, is the market for school fur- 
 niture in New Jersey, what styles of desks are now being 
 demanded by the school authorities, upon what terms as to 
 royalties the patented steel furniture mentioned by the Prison 
 Labor Commission may be manufactured by the Prison, in case 
 cast-iron frames have not a ready market, and what would be 
 the cost for instructors, material and over-head charges. 
 
 The Prison Labor Commission has submitted in this con- 
 nection estimates which are shown below in comparison with 
 estimates made by the manufacturer who is offering to sell his 
 equipment : 
 
 Number of men that Prison Labor Commis- Manufacturer's 
 
 would be employed. sion Estimate Estimate 
 
 200 91 
 
 (under usual factory 
 conditions) 
 Approximate cost of 
 machinery and in- ' 
 
 stallation $22,000 $22,000 
 
 Working Capital ...... $25,000 
 
 Average output of pres- 
 ent manufacturer . . . 25,000 school desks $25,000 
 20,000 assembly chairs 20,000 
 Value of above $125,600 
 
 Estimated cost: — 
 
 Labor $43,527.20 
 
 Materials 32,629.40 
 
 $76,156.60 
 
 It will be observed that the Prison Labor Commission esti- 
 mates that 200 prisoners would be required to do the work which 
 the manufacturer states could be done by 91 men "working 
 under usual factory conditions" as to time, pay, etc. Under 
 present conditions as to pay of prisoners, their lack of trade 
 
Exhibit D — Prison Labor and State Use System. 157 
 
 skill, etc., this estimate of 200 prisoners required to equal the 
 output of 91 men outside is probably somewhat low, but should 
 be counterbalanced — and more, by the wages plan suggested 
 below. If in the development of this plan it should be deemed 
 desirable in the future to divide this industry so that the wood 
 work should be done at Trenton Prison and the iron and steel 
 frames at the Rahway Reformatory, or vice versa, this would 
 be altogether feasible, and in fact in conformity with the usual 
 manufacturing practice. 
 
 b. Automobile Tag Industry. 
 
 The effort of the Prison Labor Commission, begun in 19 14, 
 to secure the establishment of an automobile tag industry, 
 resulted in the signing of a contract in September, 191 7, for the 
 installation at the prison within six months of the machinery 
 required for this latest State Use enterprise. The contract 
 price for this machinery and installation is $38,375, and the 
 annual cost of steel for the plates, points, varnishes, etc., has 
 been estimated at about $75,000. It is expected that 75 men 
 will be kept employed at this new industry turning out the 
 400,000 automobile and motor cycle license tags which the 
 Motor Vehicle Commission will probably require for the year 
 1919. In addition to the making of license tags for automobile 
 and motor cycles, a market probably can be developed for this 
 industry in other metal signs, such as permits issued by 
 Municipal Health Departments, the "safety first" and "keep 
 to the right" signs coming into general use. With the develop- 
 ment of the new State highway system a very large number of 
 signs will no doubt be required. 
 
 c. Present and Future Assignments of Population. 
 
 On September 25, 1917, which may be taken as a typical day, 
 with the reduced population now confined in the Prison, the 
 assignment of the total of 1,026 men was as follows: 
 
158 Report of Prison Inquiry Commission. 
 
 Contract Allowance. 
 
 Rancocas Mills (175) 86 
 
 Oppenheim & Co (ISO)... 88 
 
 Rendell Shoe (100) 84 
 
 Crescent Garment (100) 96 354 
 
 State Use Shop 20 20 
 
 Master Mechanic 35 
 
 Store House 16 
 
 Shop Hall 9 
 
 Yard 25 
 
 Engineers 16 
 
 Cook House 35 
 
 Runners, Wings 65 
 
 Towers and Death House runners 4 
 
 Drs. and P. K'S cooks and waiters 5 
 
 Barbers , 10 
 
 Clerks 9 
 
 Center runners and receiving room 5 
 
 Library 4 
 
 Wash house 18 
 
 Gate 5 261 
 
 Hospital 34 
 
 Tubercular 23 
 
 Cripples and Idle 30 
 
 Quarantine 11 98 
 
 Farm 92 92 
 
 Camp IB 56 
 
 Camp 1 38 
 
 Camp 2 67 
 
 Camp 3 40 201 1,026 
 
 It will be noted that the private contractors at this time were 
 working with 354 men, that the contracts of the Rancocas Mills, 
 employing 86 men, has now been terminated, and that the auto- 
 mobile tag industry, to be installed, will employ after the first 
 of March, 1918, about 75 men. Thus, on the basis of present 
 population, the distribution will be : 
 
Exhibit D — Prison Labor and State Use System. 159 
 
 3 Private contract shops : 
 
 Rendell — Shoes 84 
 
 Oppenheim & Co.— Pants 88 
 
 Crescent Garment— Shirts 96 268 
 
 State Use shop — knitting 20 
 
 Tag Industry 75 
 
 Maintenance 261 
 
 Hospital, tubercular, cripples, and quarantine 98 
 
 Farm 92 
 
 3 Road Camps 201 
 
 Unassigned 11 1026 
 
 Assuming that the maintenance force and those sick and in 
 quarantine are not subject to further reduction, it thus appears 
 that the immediate problem centers in the men at present dis- 
 tributed as follows: 
 
 3 Private contract shop 268 
 
 State Use shop 20 
 
 Farm 92 
 
 3 Road Camps 201 581 
 
 With the establishment of the School Furniture Industry on 
 the large scale possible in view of the market at hand, the 
 employment of 200 men in this industry may be looked for. 
 Farm and road work have now passed through the experimental 
 stages, so far, at least, as the practicability is concerned of giv- 
 ing prisoners the opportunity to work outside the prison walls. 
 An increase of 50 in the men at the Farm would help in the 
 proper development of that project and would not tax the 
 accommodations already provided. An increase of 100 on road 
 work would certainly not exhaust the demand for road workers 
 in the present conditions of the labor market and of the roads 
 in New Jersey. By thus taking 150 more men away from the 
 Prison, and by more carefully supervising the maintenance work 
 in the prison, it is altogether probable that a reduction of at 
 least fifty could be made in the number of men on September 
 25 assigned to this maintenance work. Finally, with the aban- 
 
160 Report 1 of Prison Inquiry Commission. 
 
 donment of the Knitting Industry, for the retention of which no 
 good reason appears, the end desired of taking all men off of 
 private contract work while at the same time providing them 
 with other work, will have been accomplished. Thus : 
 
 Distribution of Population. 
 Present. Proposed. 
 
 Private contract shops 354 
 
 State Use shop - 20 
 
 Farm 92 142 
 
 3 Road Camps 201 301 
 
 School furniture 200 
 
 Auto-tags 75 
 
 Maintenance 261 210 
 
 Hospital, quarantine, etc 98 1026 98 1026 
 
 3. State-Use Market Generally. 
 
 Considering the general characteristics as to age, adaptability 
 to skilled training, etc., of the population of the Trenton prison, 
 the school furniture and automobile tag industries within the 
 prison, the extension of road and farm work outside the prison, 
 along with such skilled and unskilled labor as is called for in 
 the maintenance of the prison itself, would seem to offer all the 
 diversification of industry practicable within the immediate 
 future. But in county and municipal requirements for goods 
 which can be produced at the Prison, there is a large and profit- 
 able market when the necessity arises for further extension and 
 diversification of the State Use system. 
 
 The building up of a complete system of prison industry on 
 the State Use plan, one in which the needs of the inmates for 
 industrial training as well as the economic interests of the State 
 will be adequately provided for, will probably prove to be a 
 long and difficult task. But the demonstration that convicts can 
 be usefully and profitably employed in farm and road work, 
 would seem to have solved the problem of utilizing their labor, 
 to their own advantage and that of the State, in the meantime. 
 The opening up of the picturesque hill country of Essex county 
 
Exhibit D — Prison Labor and State Use System. 161 
 
 by the building of roads and trail's, and the work of reclaiming 
 the vast areas of waste land in the central and southern parts 
 of the State, would seem to furnish the needed opportunities 
 for such useful employment of convict labor. In his testimony 
 given at the public hearing of the Prison Inquiry Commission 
 on January 31st, 1917, the Director of the Department of Con- 
 servation and Development stated that a great part of the mil- 
 lion acres of land lying between the Hackensack River and 
 Cape May — from a quarter to one-third, in fact — is largely un- 
 populated, owing to the prevalence throughout that area of the 
 salt marsh mosquito, and expressed the opinion that a consider- 
 able number of the State's prisoners could be employed for a 
 period of five years in the necessary work of drainage and 
 road building, and the whole area thus rendered available for 
 settlement and cultivation. 
 
 A careful study of our prison population will doubtless show 
 that, while some of them can be put to no better use than em- 
 ployment at manual labor, a large proportion can and should be 
 furnished with skilled industrial training. But until such train- 
 4ng can be supplied for all who can profit by it, public work of 
 the kinds indicated above might well be made available for all 
 who are not usefully employed in State Use industries within the 
 walls and in the maintenance work of the several correctional 
 institutions. 
 
 4. Working Capital. 
 
 The State Use System has never had a sufficient working 
 capital back of it. The original Act of 191 1 establishing the 
 system, provided that the boards of managers of the producing 
 institutions should incorporate in their annual estimates such 
 sums as they each might require for carrying out the provisions 
 of the Act. Thus each institution has secured what its govern- 
 ing board has been able to persuade the Legislature was required. 
 In this way the Knitting Industry was established at the Prison, 
 in 19 1 5, with thoroughly modern equipment, and appropriations 
 
1 62 Report of Prison Inquiry Commission. 
 
 for industrial buildings and equipment from time to time have 
 been made to the Reformatory. 
 
 But a factory, whether inside or outside a prison, cannot 
 successfully operate without sufficient capital. This the Reform- 
 atory has never had. In the case of the Prison, the one small 
 State Use industry, has more than filled its modest orders 
 through the action of the State House Committee in granting it 
 permission to buy yarn in quantity, but in the case of the 
 Reformatory the failure to secure a working capital is a serious 
 handicap to the success of the State Use System. For seven 
 industries with sales aggregrating $50,000. in the last four years, 
 the Reformatory has at its disposal a working capital of $5,000. 
 With such a capital it is impossible to take advantage of good 
 market conditions or to buy in quantity the raw products re- 
 quired, just as production over actual orders and storage for 
 quick delivery are out of the question. Moreover, because the 
 industries must be operated under such a heavy handicap, pro- 
 duction cannot be distributed through the shops in accordance 
 with any plan fitting in to the scheme of industrial education, 
 but must be undertaken with a rush at some times and brought 
 almost to a stop at others. 
 
 In Chapter 370 Laws 191 5 the Legislature provided for a 
 working capital fund by legislative appropriation as well as for 
 a custodian of such fund. What remains is for adequate appro- 
 priations to be placed at the disposal of this custodian, for a 
 uniform system of accounting to be established and for payments 
 to be promptly made upon requisitions properly filed. 
 
 5. Wages for Prisoners. 
 
 The poor quality and the small quantity of the products of 
 prison labor have ever been a strong argument against the State 
 Use System. The "contract" system overcomes the difficulty 
 through putting the responsibility upon the private contractor 
 to secure his money's worth, but the "State Use" like the "piece 
 price" system, since 1884 in force in New Jersey, leaves it to 
 
Exhibit D — Prison Labor and State Use System. 163 
 
 the prison management to secure from each prisoner the amount 
 and quality of work it can. The contractor, having direct con- 
 trol of the shops in the past speeded up production through the 
 payment of bonuses to a few out of many, exactly as the con- 
 tractors at the Prison today are paying in money and tobacco' 
 approximately $2600. a year. But direct and general compen- 
 sation for labor is limited still to two and a half cents a day at the 
 Prison, and is only about twice as much at the Reformatory — 
 except for those now on road work. 
 
 It was early recognized in New Jersey that men in prison will 
 make much the same response to a money incentive as men 
 outside. It has been seen that in the first State prison, and up 
 to 1836, the prisoners were paid in cash on the piece price basis 
 for what they produced and charged for what they cost to the 
 State. And although payments beyond the pittance generally 
 allowed today, have never again been made in the Prison, it was 
 one of the recommendations of the State Commission on Prison 
 Discipline in their able report of 1869, that such payments should 
 be made. Said this Commission, 
 
 "A pecuniary allowance for good conduct and faithful 
 labor would tend to secure order and industry. If, for 
 example, an account be kept with each convict of his 
 expenses and his earnings, and he allowed a percentage 
 of the profits, to be paid to his family if he desire, or to 
 himself when discharged, and some part of it for proper 
 articles during his confinement, it would be a great in- 
 centive to good conduct, and his increased industry would 
 be profitable to the institution. An allowance for over- 
 work, if properly arranged, would induce industry, and 
 if made to depend on proper deportment, would have its 
 influence in restraining from disorder." 
 
 The State Use Act of 191 1, giving expression to this same 
 conviction, provided that 1 , 
 
 "The board of inspectors of the State Prison at Tren- 
 ton, and the Board of Commissioners of the New Jersey 
 
 Khap. 372, Laws 1911, Sec. 16. 
 
164 Report of Prison Inquiry Commission. 
 
 Reformatory at Rahway are hereby authorized, subject 
 to the approval of the Commissioner of Charities, to pay 
 to the wife, children or parents of any inmate of their 
 respective institutions who, by reason of the imprison- 
 ment of such inmate, are thereby made dependent upon 
 public or private charity for their support, a sum not 
 exceeding fifty cents a day for each working day that 
 said inmate is employed at productive labor in either of 
 said institutions, and said inspectors and commissioners 
 are hereby authorized to avail themselves of the services 
 of any organized bureau of associated charities or charity 
 organization society within the district where said de- 
 pendent wife, children or parents may reside, in making 
 investigation of their condition and needs; provided, 
 the expenditures for the relief of dependent families of 
 prisoners as herein provided for shall not exceed in any 
 one year a sum equal to five per centum of the value of 
 all goods or articles manufactured or produced by the 
 labor of the inmates of each of said institutions." 
 
 The proviso is the important part of this law. How far any 
 dependent family would have been from receiving fifty cents 
 a day may be seen from the fact that assuming only 500, or less 
 than one half, of the inmates qualifying under the act, it would 
 have required $91,250 for their daily fifty cent wage, and in 
 order that this payment should not exceed 5% of the prison 
 labor products, those products must have been $1,825,000. No 
 appropriation was made under this Act and nothing was paid 
 to prisoners in wages. The matter was again taken up by the 
 Legislature in the following year, when, in connection with the 
 Act for the employment of prisoners upon roads (Chap. 223, 
 Laws 1912), it was provided (Sec. 3) : 
 
 "The governing body of any institution from which 
 prisoners have been detailed is hereby authorized to as- 
 sign the inmates to such work on roads and highways, 
 and, conditioned upon their good behavior and cheerful 
 compliance with all rules that may be made governing 
 their conduct, may grant additional good time allowance 
 
Exhibit D — Prison Labor and State Use System. 165 
 
 not to exceed one-third of their minimum sentence, pro- 
 vided that no prisoner shall be so assigned who has not 
 a good conduct record." 
 
 But before any governing body had put into effect this method 
 of rewarding prisoners for their labor, this law was repealed in 
 the year following its enactment. 
 
 In 1914 the Act of 191 1 which provided for the payment of 
 '"not exceeding fifty cents a day" to the dependents of the in- 
 mates of the Prison and of the Reformatory, was amended to 
 read (Chap. 269, Laws 19 14) : 
 
 "The board of inspectors of the State Prison at Tren- 
 ton, and the board of commissioners of the New Jersey 
 Reformatory at Rah way shall establish a wage system 
 under which the inmates of their respective institutions 
 shall be employed and may expend or direct the expendi- 
 ture of the earnings of any prisoner for the following 
 purposes or any of them : 
 
 (a) For the care and maintenance of the dependents 
 of said prisoners. 
 
 (b) For the benefit of the prisoner after his release 
 on parole or discharge. 
 
 (c) For the repayment of the cost of trial in an 
 amount not to exceed twenty-five dollars. 
 
 "The wage system herein provided for shall include 
 within its provisions all prisoners employed in any work 
 or service necessary for the maintenance of said penal, 
 correctional and reformatory institution, or their in- 
 mates." 
 
 The "wage system" which the Board of Inspectors of the State 
 Prison and the Commissioners of the Reformatory were thus 
 definitely directed to establish was thereupon put into effect. 
 At the Reformatory all those assigned to State Use work were 
 credited with having earned fifty cents for each day worked. 
 But the wages earned were divided among the whole working 
 population who in one way or another helped to maintain the 
 
166 Report of Prison Inquiry Commission. 
 
 men actually producing the State Use articles, with a consequent 
 credit to each man varying from four to five and a half cents 
 per day. It has been seen above, that in the case of those em- 
 ployed on road work at Wrightstown the wage payable to the 
 individual worker is the total which he is credited with earning. 
 At the Prison a wage scale of two and one-half cents a day was 
 established in July, 19 17, payable to all prisoners, both those on 
 State Use work and those on contract work. This is the "wage 
 schedule" in force at the Prison. 
 
 Wages were once more the subject of legislation in 191 5 when 
 it was provided (Chap. 270, Laws 1915, Sec. 5) that the cus- 
 todian of the working capital fund shall on or before the tenth 
 day of each month render a statement of the amount of wages 
 earned and that said wages shall be promptly applied to the pur- 
 poses set forth in the amending Act of 19 14 (Chap. 269, Laws 
 1914). 
 
 Finally in 1916 the Legislature provided definite warrant for 
 the practice which had been followed of charging. maintenance 
 against earnings, by enacting that (Chap. 246, Laws 1916, Sec. 
 
 "In fixing the amount of wages to be paid to inmates 
 for work done by them, the managers of such institu- 
 tions may add the per diem maintenance of such inmates 
 and upon receipt of the proceeds from the sale of the 
 labor or manufactured products of such inmates the cus- 
 todian may pay to the inmates the wages earned by said 
 inmates, less the cost of his maintenance. . . . " 
 
 Nothing better illustrates the faulty ideas current in relation 
 to the treatment of prisoners than the survival of such a wage 
 scale as the scale of two and a half cents a day as established at 
 the State Prison. Introduced as a halting measure to secure 
 better work from the prisoners, it altogether fails as an incentive 
 and seems rather to arouse a natural feeling of resentment. In 
 India or Japan such pay might bear a sufficient anology to cur- 
 rent wages for sweated labor as to be understanadable by the 
 recipient, but no man in this country whose eight hours of 
 
Exhibit D — Prison Labor and State Use System. 167 
 
 enforced work are paid for at such a rate can justify this scheme ; 
 and when, as at Trenton Prison, this pittance is not paid upon 
 release but only some weeks later, after payments have been made 
 to the Prison by the Comptroller's Department, resentment 
 grows the keener, and it is safe to say the very opposite of that 
 which was contemplated by the law is in fact accomplished. As 
 a measure of justice and as a means toward the industrial educa- 
 tion and general re-shaping of the prisoner so that he will fit into 
 the industrial world outside, wages should be increased to at 
 least that fifty cent standard which the Legislature of the State 
 approved in 191 1. 
 
1 68 
 
 Report of Prison Inquiry Commission. 
 
 APPENDIX I. 
 
 Table Showing Number oe Prisoners at the State Prison, Number on 
 Contract, Revenues from such Contracts and Totai, Expenditures 
 and Net Cost. 
 
 No. of Prisoners 
 Oct. 31, 
 
 1900 1091 
 
 1901 1106 
 
 1902 1021 
 
 1903 1167 
 
 1904 1175 
 
 1905 1206 
 
 1906 1219 
 
 1907 1251 
 
 1908 1402 
 
 1909 1373 
 
 1910 1393 
 
 1911 1420 
 
 1912 1527 
 
 1913 1506 
 
 1914 1412 
 
 1915 1354 
 
 1916 1225 
 
 Av. No. on 
 Contract 
 Work. 
 599 
 629 
 555 
 575 
 578 
 570 
 736 
 764 
 730 
 821 
 834^ 
 853i/£ 
 847 
 884 
 699 
 651* 
 592f 
 
 Revenues 
 from Private 
 Contracts. 
 $75,952 
 
 79,633 
 
 64,963 
 
 71,976 
 
 68,921 
 
 69,935 
 
 87,426 
 102,997 
 
 87,620 
 
 96,586 
 
 96,022 
 
 98,233 
 
 92,478 
 105,070 
 
 78,426 
 
 63,077 
 
 71,380 
 
 Expendi- 
 
 
 tures. 
 
 Net Cost. 
 
 $206,707 
 
 $113,182 
 
 202,896 
 
 112,101 
 
 202,230 
 
 126,064 
 
 209,971 
 
 132,822 
 
 223,460 
 
 140,727 
 
 221,883 
 
 136,527 
 
 213,866 
 
 117,021 
 
 223,652 
 
 114,266 
 
 250,475 
 
 153,271 
 
 268,958 
 
 163,488 
 
 273,627 
 
 173,623 
 
 279,213 
 
 178,586 
 
 278,635 
 
 184,525 
 
 275,604 
 
 166,722 
 
 356,861 
 
 236,909 
 
 360,549 
 
 253,415 
 
 349,866 
 
 233,694 
 
 *No. Oct. 31, 1915. 
 Wo. Oct. 31, 1916. 
 
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