115th Annual Report, 1959

Legislative Document (1960)

STATE OF NEW YORK

THE ONE HUNDRED AND FIFTEENTH
ANNUAL REPORT

OF THE

# Prison Association of New York

135 East 15th Street, New York
1959

PREFACE

‘This is an official report of the Prison Association of New York
to the Legislature of the State of New York, which has been made
annually since 1845, and constitutes the one hundred and fifteenth
of the series,

Paragraph 6 of Article XT of the act incorporating the Prison
Association of New York provides that ‘‘the said executive eom-
mittee” (of the Prison Association) “‘by such committees as they
shall from time to time appoint, shall have power, and it shall be
their duty to visit, inspoet and examino all the prisons of the State,
and anally report to the Legislature their state and condition
and all such other things in regard to them as may enable the
Legislature to perfect their government and diseipline.””

Gertuin Commitments to New Work City Oonrestional Tnatiéons
‘The Peoblew of Aleoholica, Drug ‘Addict, Prostitutes and
“Vagrants

sion of Various New Work ity Gousta' 2217
Ee York State Division of Purole-= Orpanitalion iad iipertios

Conte ener New Corie ‘is

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eurtont to County Tasso fr" Board
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STANDING COMMITTEES FOR 1959

f HUNDRED AND FIFTEENTH ANNUAL REPORT OF
‘THE PRISON ASSOCIATION OF NEW YORK

‘COMMITTEE ON LAW
Coanmens, Aowew, Batox Pebrary 8, 1960

COMMITTEE ON FINANCE How. Maveora Wiisox,

6.0, Avomnetoss, Hocasemia, Ler, Sovuess, Ware Hiewtenant Governor and President of the Senate:

COMMITTEE ON DETENTIONS How. Jose:
Suaw, Mas, Bantavsive, Parcasos, Ricmrosp

"a F, Camano, Speaker of the Assembly.

Sims—In accordance with Chapter 168 of the Laws of 1846, we

com erest ont nntin Toros ‘avo the honor present the One Hundred and Pilteenth Antal
GURU tee ee ter ccies port of The Prison Association of New York, and to request that '

OG as oe oe ae you will lay the same before the Legislature.

‘COMMITTEE ON PROBATION AND PAROLE Respectfully,

Mas. Anum, Curmvs, Mes. Duuiss, Pownua, Witateronie saBGRGSORTERSO LATION. OF WW WORE

‘COMMITTEE ON PRISON ADMINISTRATION By Rowano P, Mvunoon, President
Moznoowny, Ausxaxpen, Bancock, Cross, ScuomsrEy, Traaut E.R, Cass, General Seoretary

EDITORIAL
‘THE NEW YORK TIMES
‘Wednesday, May 27, 1959.

PRISON ASSOCIATION REPORT

‘The 114th annual report of the Prison Associ
tion of New York tells an intoresting story of aetivi-
ties in 1958 and the recommendations made to the
Legislature last January. It also marks the Zorty-
fifth anniversary of continuous servieo to the associ
tion by Edward R, Cass, who bas been its General
Secretary and administrative guide for the past
thirty-seven years—a notable achievement. in con-
staney and useful dedication, ‘The report also shows
that, for all its years, the association itself is youthful
and vigorous in its’ crusading zeal, tempered by a
mature yeuse of the real and possible.

Its objective has always been a penal system neither
purely punitive nor given to sentimental “coddling.”
‘As the report says, merely to keop “lawbreakors
‘within an enclosure and under lock and key * * * is
to subsidize a school for crime’? that makes for a high
pereentage return by those who graduate. Prisons, the
association maintains, should be institutions against
future crime, using’ all the resources of modern
science and techniques to ‘‘return as many socially
adjusted beings to the community as possible’—a
policy more humane and, in the long ran, far less of
& charge on the publie treasury.

‘The report shows the pursuit of this aim in many
constructive ways: @ constant cheek on conditions in
‘the various prisons and on pending legislation, elose
cooperation with government and private agencies
‘working for more enlightened treatment of offenders,
placement aud relief activities for discharged inmates
and help for the families of those still in prison. And
the recommendations for action by the Legislature
contain twenty-four items this year. All of this adds
up to a notable public serviee.

RECOMMENDATIONS*

‘February 8, 1960
To the Honorable Members of the Senate and Assombly:

In accordance with Chapter 163 of the Laws of 1846, we have
the honor to present the following recommendations to the Legisia-
ture og a part of the 116th Annual Report of The Prison Associa
tion of New York, and urge that they receive your serious consid-
eration.

‘Respectfully submitted,

THE PRISON ASSOCIATION OF NRW YORK

Epwann P, Monsoowny, President
Eowano R, Cass, General Secretary

DOES AMERICA STILL LAG?

Thirty-two years ago The Prison Association of New York
through its cighty-fourth onnual report, addressed the Legislature
iin part as follows. The content of the five paragraphs being re-
peated is applicable to present day conditions and utterances and
@ further proof of the aldnese of the now. In essence it is a proof
that despite some progress, which on the whole is spotty, America
does lag and continues to be confronted with the need for a better
solution of the perplesing problems of juvenile delinquency and
“DOES AMERICA LAG?”

“phe student of social problems finds in this eountry evidence
of a deep-seated, persistent, and often thoughtful study and treat
ment of the manifestations of delinquency and erime. Yet, there
is a noticeable lack of Keeping abreast in practice with much that
js urged in special studies and literatare generally. America
industrially is known as a ‘‘doer””, whereas America in treating its
sociologieal problems talks more freely than it performs.

[RESPONSIBILITY DECREASED

“Widespread is the fooling that lawlessness has increased, and
that the sense of eivie and social responsibility on the part of many.
persons has decreased, ‘There is loud clamor for a reversion to

Time Recommendations In mimeographed form wore made available to
a1] Ramer f te Senn and ASnemtly daring the Solon rane of 6

printed

on

rr ‘Taw Prison Assoctasion oP New York

more punitive forms of treatment for Inwbreakers. ‘This has re
sulted in some States in the passage of legislation increasing the
Tength of sentences and other measures providing for more severe
forms of punishmont. The advocacy of the whipping post as a
part of the prison regime, the discontinuance of probation, the
indeterminate sentence and parole, and the urging of substantial
reductions of privileges within the prisons and other institutions,
tare but a part of a public hysterieal view that too great leniency
and too great sympathy for the criminal have been manifest, and
that the time has come to make a change. ‘Those who have appeared
before legislative committecs, crime commissions, and other erime
sindying bodies, know the difficulty of eombsting the many pro-
potals for the destraction of these systems and practices, and the
‘embarrassment eansed by the absence of indisputable proof of their
sucessful operation,

THEORIES ON CAUSE OF CRIME

“Interesting to note are tho various theories on the cause of
crime, It is held to be due to economic conditions, heredity, environ-
ment, mental abnormality, lack of religious infmenee, ‘and old.
fashioned and otherwise defective school system, lack of parental

control, broken homes, unemployment, and so it goes to an almost
interminable list. Some of these contended specifle causes have

@eveloped their proponents in to ultra-enthusissts, Yet the cold
fact is that orime is compler and there is no sweeping eause or
eure, It would not be difficult to find persons who have experi-
fenced some of the above contended causes of crime and yet. havo
escaped becoming criminals. Tt is further true that one or more
ff the above listed contended causes might be found in any one
individual who eomes into conflict with the law.

“cThore are many who think that the erime problem ean be easily
solved. A prominent citizen, spesking at a national gathering
said, ‘I do not know just what anybody else thought at the tim
but my first. impulse Was that the nine or ten of us who met
New York would soon solve the erime problem and dispose of
‘the whole matter.’ This distinguished member of the Bar has
since changed his mind considerably

SHIFTING RESPONSIBILITY

“Perplexing, as has been frequently emphasized hy The Prison
Association of New York, are the attempts to definitely fix respon.
sibility for the crime situation. Campaigns have been conducted
by tho public press, and.a multitude of utterances have been made
by the police, the courts, proseenting attorneys, probation and
parole officers, and others, some in an altitude of self-defense, or
im an attempt (o definitely place the responsibility. Many of these

Recomsesvanons ro mu Lnartarvne as

statements have been misleading, inaccurate, distorted, and other-

unfair. Some have disclosed an appalling lack of reliable
Knowledge or information, and unfamiliarity with procedure, on
the part of those who attempt to reliably enlighten the public.
‘There have been glaring examples of inconsistencies in speech and
practice, that is, some of those advocating severity, and who are
in @ position to put their beliefs into practice, fail for reasons
best known to themselves, and political pethaps more then anything
else, to take advantage of the power given unto them by the law.

A WISE COURSE,

“Therefore, the problem before legislatures and intelligent publie
opinion is to eet wisely and not with headstrong impulsiveness in
endeavoring to meet today’s conditions, The extremes of highly
sentimental leniency and illogical treatment of the inmate withi
the institution, or of the released inmate again at liberty, must be
avoided. Man's conduct is channeled in general along lines to be
recognized and forecast to a considerable degroe by those who have
given greater study to the problems of human behavior. Radical
deviations from probable lines of conduct can hardly be expected,
‘and therefore such methods of dealing with prisoners as are based.
‘upon enthusiastie expectations of exceptional resulta will in the end
necessarily lead to disappointment and failure.

‘There is a wide diforence between the adoption of principles
and the successful working out of methods. Placing a law upon
the statute books docs not ensure its successful application. The
legal recognition of reformative and preventive methods, to be
applied to the problems of crime, has not meant in all instances
the successful working oul of the purposes of the laws. Indeed,
the time is now ripe for frank recognition that fo a deplorably
large extent, our methods of administration of sound reformatory
principles like the indeterminate sentence, parole and probation,
ave been weak, often trivial, and even wretchedly automatic.

“We ought, especially at present, to face our faults and our
failures, We have.too long complacently praised our progress. We
have too long allowed ourselves to believe that beeause we are
doing many things well, and ave ingenious in experimentation,
wwe are doing all things’ well, end that all our experiments are
successes, Fine results have been achieved, but in comparison with
What needs to be achieved, they are inadequate.

"Tq make for real progress, wre must know more about the law-
Ddreaker and those influences which affect his conduct. ‘To this end
the paychologist, the psychiatrist, the social worker, and others must
be wisely and enntiously employed. Specific forms of treatment
must be gradually developed, so that there will be available
remedial treatment which will, to some extent, keep abreast of the

u "Tux Pawson Associanion of New Yor

iscovery of causes. There must be avoided individual or group
exploitation of technique and findings. Extravagant claims and
extremes in procedure must likewise be avoided, as well as the
Gressing up of procedure in high sounding terms suggesting a
lofty intellectualisin and a professional exclusivencss. High stand-
ards of true and thorough seientige research must prevail and the
findings must be brought as truthfully and as elearly as is possible
to ‘the man in the street.” Only in this way ean essential public
understanding end eondence be had

Some American. courts, correctional and penal institutions, are
becoming laboratories, instead of simply places for trial and the
deprivation of the liberty of human beings. It is from such
Taboratories that the newest facts are coming, statistical, psyeholog-
ieal, and physiological, facts extvicated from the complex per-
sonalities of prisoners, after long and sympathetie study. To the
Inboratories the courts and the institutions of the past have rarely
gone, Therefore, these agencies must come closer together, not with
the idea of one’ gradually displacing the other, but very clearly
with the idea of working together, shoulder to’ shonlder, for the
fulfillment of their responsibility to society, to wit, its protectio

In harmony with the observations and philosophy of the above
paragraphs the Association once again makes recommendations
for serious consideration and action by tho Legislature, Sone of
‘these recommendations have been made before but it is the experi-

tc of the Avsteaton that repetition is required for progress
4a example, small compared vith vlher instances but novertales
fraportant, ie the ection during the year 1960 by the Sate parle
tufborities fo reloae some prisoners who were being held for ne
other reson than that they could not oblaia employment.” Our
Tecordt bow that as far back ay 1040 wo wade the proposel sta
eomisdation tothe Leyiture tht thee bea lesentag of the
eid Interpretation ofthe lw so as fo give the innate a contonel
Felese and thereby epportnity to Sed employment on his ovin ot
‘rth eutsde help. In one year wo were istcumental in having
Tegitlation inrediced which was unforuanately vetoed, Dating the
Intervening years und up to the tine ef a change, the wuggetion
ton kept alive and reforred to in our anual reports and ao in
trout study of the parole orguniation and operation tasted
fotoming th w-allad “Lanza Cue." Thi look seventeen year
to begin a practice whichis proving tobe workable, Tis delayed
eso Got the Stave considerable fr bosnding he inmates, helped
Crowd the prisons, and n'a aense imposed an 10d” penalty
because no job was available, * =m

Recommunoations 1 ma LoorstaTuae

[RECOMMENDATIONS
RECOMMENDATION I.— COURT REORGANIZATION

‘That the Legislature continue to recognize the need for the
reorganization, modernization and administrative improvement
of the State’s court structure.

The concurrent resolution approved at the 1959 session proposed
an amendment of the Judiciary Article of the Constitution and
should be altered at this scssion to whatever extent is deemed

visable to clarify, strengthen and expand the initial step taken
to improve the present court situation. ‘The action thus far taken
by the Legislature, even though rogarded as a compromise reorgan-
ization plan, hes won wide acclaim,

RECOMMENDATION I. — JUVENILE DELINQUENCY
‘AND YOUTH CRIME,

‘That tho Legislature give most serious study to the programs
and supplementary bills offered by Governor Rockefeller and Mayor
Wagner to doa) ‘with the perplexing problems of juvenile delin-
quency and youth erime which are daily making for more public
alarms and concern.

The proposals offered reveal an earnest desire to eope with a
serious and difflenlt situation and further reflect a composite of
observations, experience and suggestions coming from official and
lay sources, "Tho proposals are not eonceived as being the complete
or final answer to the problems but we find that thoy are generally
regarded as being in the main headed in the right direstion for
better control and treatment.

RECOMMENDATION JI, —ESTABLISHMENT OF AN
INSTITUTE OF SENTENCING

‘That necessary funds be appropriated, and whatever additional
authority is required be given, to enable the Court of Appeals to
‘establish an institute, or institutes, on sentencing patterned after
Gertein provisions of the bill passed by the Ath Congress in 1958
(now Public Law 85-752)

‘Such an institute would take up the question of sentencing with
particular reference to disparity of sentences. There would be
hho desire to curtail the freedom of the functioning of the Judiciary
but instoad to render assistance such as is provided in the Federal
statute toward more uniformity of sentencing in accordance with
approved standards and recognized criteria, The subject of dis-
parity of sentences has been referred to in the recommendations
of this Association in its annual reports to the Legislature over the

16 ‘Tux Prison Assoctanow of New York,

years and it has been our hope that some progress could be made
through the intervention of the Law Revision Commission. ‘This
hhas mot resulted.

However, we fecl that the example set by the Federal Law is a
‘more logical approach and in the long run should lead to greater
benefit. ‘To give a better idea of what is intended under the Federal
Law the following excerpts are noteworthy”

“To improve the administration of justice by anthorieing the
‘Judicial Conference of the United States to establish institutes
land joint councils on sentencing, to provide additional methods
of sentencing, and for other puzposes.”
“Tho agenda of the institutes and joint councils may include
bout shall not be limited to: (1) the development of standards
for the content and utilization of prosentence reports; (2) the
establishment of factors to be used in selecting eases for special
study and observation in proseribed diagnostic clinies; (8) the
determination of the importance of psychiatric, emotional,
sociological and physiological factors involved in erime and
their bearing upon sentences; (4) the discussion of special
Sentencing problems in unusual cuses such as treason, viola-
ion of public trast, subversion, or involving sbnormal sex
Yehavior, addiction to drugs or alcohol, and mental or physical
handicaps; (5) the formulation of sentencing principles and
criteria which will assist in promoting the equitable admi
tration of the criminal laws of the United States.”

‘The director of the Federal Bureau of Prisons, Mr. James V.
Bennett, in commenting on the passage of the Federal Aet stated
“This legislation represents the first signifleant change in Federal
sentencing and parole statutes since 1910 and is a landmark in the
development of the Federal system of criminal law.”

It would seem reasonable that so sound a formula a
in the Federal statato can likewise be of b
tion of criminal procedure in the State of New York.

Tho pilot institute on sentoncing under the auspices of the Tudi-
cial Conference of the United States, held in July of 1959 at the
University of Colorado, gave definite support to the potential value
of this kind of an assembly of the judiciary permissible in accord
with Public Law 85-752 referred to above,

RECOMMENDATION IV.— CERTAIN COMMITMENTS TO
NEW YORK CITY CORRECTIONAL INSTITUTIONS
‘That there be undertaken hy the Legislature a thorough exam-

ination of the laves and practices whereby certain commitments are
made to the New York City Penitentiary and Workhouse

Recowrmennartons 70 Twa Lucistaroen aT

‘The New York City Department of Correction as the result of
fa special study made by the City Administrator pursues the ques-
jon as to why certain felony commitments should be the respon-
ibility of that department, Also expanded query relates to the
need Tor the continuance of the New York City Reformatory and
the New York City Parole Commission.

Whatever changes are agreed upon will to some extent require
Legislative consideration and approval boeause thore will be in-
volved amendments to sections of the Code of Criminal Procedure
‘and the Penal Law,

RECOMMENDATION V.—THE PROBLEM OF ALCOHOLICS,
DRUG ADDICTS, PROSTITUTES AND VAGRANTS

‘That there be undertaken with Legislative sanction « study of
the whole question as to whether alcoholics, drug addicts, prosti-
tutes and vagrants (including indigent aged persons) should be
Gealt with ina penal atmosphere through commitment to instita-
tions under the control of the New York City Department of Gor-
rection, or eounty institutions within the State; or whether they.
shouldbe better placed in the oustody and under the control of
medical, health and welfare authorities,

‘The City of New York during 1959 made some progress in pro-
viding civil hospital facilities for drug addicts who heretofore
‘would be confined in institutions of the City Department of Cor-
rection.

RECOMMENDATION VI.— OPERATION OF
‘VARIOUS NEW YORK CITY COURTS

‘That the Legislature undertake a study to determine ways and
‘moans to reduco the congestion that develops particularly during
‘the summer months with respect to the disposition of cases by
various courts within the limits of the City of New York,

‘The slow disposition of eases before most of the courts espe-
cially during the sammer months makes for serions congestion in
‘the Houses of Detention maintained by the New York City Depart-
ment of Correction. This congestion and its compressed living
makes for mental, moral and physical deterioration which tends to,
at the very start, handicap all subsequent attempts toward rehabili
tation.

‘The eases referred to especially are in the category of those await-
ing uetion of the grand jury, awaiting trial and awaiting sentence.

‘The following statistics from the records of the New York City
Department of Correction give some idea of the backlog which
makes for long and costly detention.

‘Tue Pxiso Assoctunox op New Your

Awaiting action in New York City Department of
Correction Detention Institutions, December 28, 19

Court of General Sessions or County Courts
Avaiting Indictment 4s
ing Trial
Awaiting Sentence

Toray
Court of Special Sessions

Awaiting Trial
‘Avvaiting Sentence

Toran

Magistrates? Courts;
‘Youth Felony Court
Adult Felony Court
Other Courts

Toran 384

of the Constitution as approved by the 1959 Legislature, with

the dexibility and supervisory powers envisaged should make for
improvement.

RECOMMENDATION VIL — NEW YORK STATE DIVISION
OP PAROLE — ORGANIZATION AND OPERATION

In July of 1957 a5 an afiormath of the 50-0

{incident there was appointed by the Governor a

salled Lanza parole
committee to study

ReooncnvaTions to THs LeowstaTuRE rT

the structure, policies, practices and procedures of the parole sya-
tem and its relation to the Department of Correction. This com
mittee, made up of qualified persons who gave wholeheartedly of
their time, knowledge and experience —and without compensa-
tion, after long and careful study submitted a two-part report to
the Governor in 1059.

Part I of the report, submitted @uring the month of May, sets
forth general discussion and recommendations. Part II, submitted
in October, is devoted to a detailed account of the observations by
the commiitee and its staff of the day-in-and-day-out workings of
the parole organization as relates to the parole commissioners, the
offlee staffs and parole officers. ‘This report was acknowledged by
‘the Governor with praise for the fine work that was accomplished.

Unfortunately no funds were available for the printing of the
report and thus it has not been available for wide distribution
and public information. In order to obtain a full picture of ¢he
parole organization and operations it is neoessary to read not
only Part I of the report but Part IT as well because in the Intter
there is spelled out, as much as it was possible to determine, how
the wheels of parole operation turn and to what extent there are
‘weaknesses of one kind or another,

‘The report deserves Legislative attention and study.

(In the 114th Annual Report of The Prison Association of New
York, for the your 1958, there was contained, consistent with the
Association's identity with the origin of parole in this state and
its never-ending interest, a number of recommendations many of
which parallel those set forth in the report referred to above by
the committee appointed in 1957, Tn making these recommendations
the Association felt it proper to exercise its independenee of action
and, where necessary, of thought, and to alert the Legislature as to
what was likely to come in a more extensive presentation.)

RECOMMENDATION VIIT.— ACADEMY OF
CORRECTIONAL TRAINING

Facilities and funds should be provided for the establishment
of an academy of correctional training in the State Department
of Correction. Tt is being increasingly recognized that satisfactory.
‘correctional personnel is esential for progress in the administra-
tion of correctional departments and institutions and that such per-
sonnel must be of high quality and selected other than as a hit-
and-miss procedure,

‘The State of New York made substantial progress when years
‘ago it placed its wardens and custodial staff under civil service,
However, this has not been adequately supplemented with in-service
training ‘programs and refresher eourses. A good demonstration

20 ‘Tue Prisox Association oF New Yore

was made with the establishment of the Guard School at Wallkill
Prison some years ago but this hes boen long discontinued and as
a kind of substitute there has been some correspandence course

ivity or the efforts of the individual personnel toward self-
improvement and better preparation for service and promotion,
‘The Police Department of the City of New York has long main-
tainod s Police Academy and this has been further developed
through the establishment in 1956 of the Baruch School as a part
of the School of Business of New York University, The Federal
Bureau of Prisons and the State of California have made substan:
ial demonstration along the lines of improving the quality and
funetioning of their wardens aud custodial personnel through
‘courses and supplementary schooling and inspired leadership. ‘The
New York City Department of Correction in 1957 established an
academy for training correction personnol on Rikers Tsland. To
respond t the demand that institations become more places of
rehabilitation than simply places to keep people locked up requires
fa high quality of personnel aud a program of training,

RECOMMENDATION IX.— 4 RECEPTION CENTER
NEARER NEW YORK CITY

It is desirable that there be established closer to New York City
‘reception eenter similar to the oue presently operating at Elmira.

A substantial percentage of the commitments between the ages
of 16 to 21 to the Elmira Reception Center come from the New
‘York City area which requires transportation for more than two
hundred miles to the Ceuter and then following decision as to a
rogram of treatment a goodly number of those reeeived must be
returned to institutions nearer New York City. This procedure
is eostly and constitutes a duplication of movement of population.
A further reason is that the congestion at the Reception Center at
‘imiva and the pressure on the stall there could be relieved throwgh
the establishment of the proposed new unit in Orange County in
the event that the property now known as New Hampton Farm
and owned by the City of New York is aequired by the State

it is noteworthy that when the site for what is now known as
the Elmira Reception Center was being disenssed some years ago
the thinking waa that the unit should be nearer New York City
but unfortunately there were no facilities available then,

RECOMMENDATION X.— ADULT RECEPTION CENTER

We renew our long standing propos that thero be established
a reveption center at Sing Sing Prison and add to it now By ntgin
‘that there be another at Attiea State Prison. yneeing

Rromorexoatioxs vo TE LeomtaTont Be

RECOMMENDATION XI.— EXPANSION OF CAMP
PROGRAM FOR YOUTHFUL OFFENDERS

‘There is noted the renewed emphasis on eamps as a medium for
the housing and treatment of offenders, especially youths. As we
have indicated in previous reports, we favor camps as a part of,
a system of diversifled housing and programming but at the same
time we are reluctant to support the eamp idea unless there is pro-
vided for each unit qualified personnel and a well spelled out pro-
gram looking toward character building and rebabilitation gen-
rally and offering some means of training for post-custodial liveli-
hood. ‘There is unquestionably something wholesome and attractive
about camps but the young offenders, who should be earefully
elected for these units, need more than the benefit of minimam
seenrity, fresh air and sunshine.

‘Foresiey operations are esvential but all city boys will not find
opportunity to work in forests and it is a question whether they
Grill want to do s0 eventually. These operations, however, plus a
broadened program of further study and treatment, of these
selected inmates ean develop the habit of industry, self eomtrot
fand the art of living peacofully with others.

RECOMMENDATION XII,— DEVELOPMENT OF FORESTRY
‘CAMP PROGRAM FOR ADULT OFFENDERS

‘Budgetary support should be given for the development of @
forestry eamp program for adults

While the emphasis has been on youth regarding the renewal
of the camp idea in this State, it is well to think of it in terms

22 ‘Tur Prisox Associumoy of New Your

of those inr other age groups as well. Good work is being done for
all ages in the camp operations of the States of Pennsylvania, Cal
fornia, Wisconsin, Massachusetts, Virginia, the Federal Govern-
ment, and others. Camps can be more cheaply maintained than
Jarge'sized institutions, especially as relates to their physical faeili
ties, and if properly located they offer opportunity for whole.
some activity programs, The camp idea is not new to the State of
New York. It goes back many years prior to the present revival.
tis sound in principle and practieal in operation if given a chance.

Diversified housing, especially in a State as large as New York,
is a necessary part of a correotional department organization.

RECOMMENDATION XII, MAINTENANCE OF
STATE PAROLE VIOLATORS
It is urged that Article 8 of the Correction Law, Section 216,
be amended to provide reimbursement by the State on a reason
able per diem per capita cost for the maintenanee of State parole
violators while in temporary custody in local penitentiaries or jails.

RECOMMENDATION XIV.—PRE-PAROLE CAMPS

As an initial experiment there should be established a pre-parole
facility near the largo industrial hiring areas for preliminary

adjustment and testing as relates to approaching parole. Going
straight from a prison into the community is a severe impact on
Prisoners, especially those who have experienced long imprison-

ment, and the pre-parole facility therefore is suggested as @ kind
of tapering-off arrangement or a shock absorber deviee. Tt is
granted, of course, that release is a joy to practically all prisoners
bbut in many eases there also exists the element of bewilderment.
Parole officers and social agencies know this to be so. ‘There is a
trend in some areas, including the Federal Government, to make
gradual change in prisoners” housing and privileges shordly before
releato not only as a reward but as a kind of steadying influence.
In England, on the Isle of Wight, at the institution at Camp Hill
when it housed adults, there was provided separate quarters out-
side of the institution proper where prospective parolees were
relioved somewhat of the rigidity of the regular institution routine,
again as an easing off ov a balancing infizence,

RECOMMENDATION XV.—AGED PRISONERS

A study should be undertaken to determine more economical
‘and more generally satisfactory means of handling aged. prisoners

At present there are approximately 1,000 prisoners, age 65 or
over, being housed mainly in maximum security institutions of
the Department of Correction. ‘This housing is costly and in some

Recommmnpanioss no 1me LoowLarone 2s

instanees the physical layouts impose a hardship on tho older
prisoners because of conditions of health or various infirmities.
One cxample is Sing Sing Prison and another is Clinton Prison
whore long passageways need to be traveled, as well as stairways.
Im any future planning, thought should be given to the possibility
of providing not only a less expensive type of housing but a design
‘of institution based on the physical considerations of the aged.

RECOMMENDATION XVI.—EMPLOYMENT FOR
INMATES OF CORRECTIONAL INSTITUTIONS

‘The Legislature should examine into the noed of increased pro-
Guctive employment of prisoners who aro being maintained at the
expense of the taxpayers.

‘One of the greatest problems in correctional administration is
full employment of the prisoner body. Monotony and idleness breed
discontent and no State can afford to permit. the presence of a
breeding ground of trouble in prison. It is provoking to observe
able-bodied men idle, engaged in over-manned activities, or ‘‘made
work”, and at a pace that would not be tolerated in outside employ-
ment. "Too frequently this slow pace makes for bad hasio training.
Another side of the piotre is that the dependents of many of
these inmates must seek relief from either public or private sources
thus making for an added charge against public fands and the
00d will of interested citizens.

AVOID CURTAILMENT OF CORRECTIONAL INDUSTRIES

We regret the necessity of again extending to the Legislature
a word of caution lest there be unwarranted attempts on the part
of vested interests to curtail existing correctional industries. It
‘must be acknowledged that the State's correctional industrial pro-
gram is already too limited, and the full constructive employment
(f all able-bodied prisoners is a hope rather than a reality. Certain
‘attempts to curtail the industries are outspoken and cannot be mis-
taken. While there is no argument with the privilege of members
of the Logislature introducing whatever bills they feel to be appro-
priate, this Association will be on the alert to the introduction of
bills that would set back the State's correctional progress, For
more than @ century we have maintained a stand upholding eon-
structive labor for prisoners and have supported wholeheartedly
the principle that prisoners should work and not be tax burdens.
Tt is good business to preserve existing industries, and to expand
the industrial program wherever possible. Further, it serves as
good riot-prevention insurance. Tt has been well demonstrated
{n the Federal prison system as well as in the various State aystems,
that the so-called “‘State-Use-System”” of prison labor makes for
a minimum of competition with free Inbor.

pn ‘Tan Prisox Assocratioy o New York

Prison management is one of the most specialized tasks, and the
best of administrators cannot successfully surmount the problems
resulting from demoralizing idleness. As wo have indieated on
other oceasions, idleness is to be condemned but at tho same time
it should be kept in mind that most prisoners are not idle by choice.
They are idle becanse adequate work outlets are not provided by
the State

RECOMMENDATION XVII. CIVIL SERVICE STATUS
TO COUNTY INSTITUTION PERSONNEL

As a step toward the further removal of penal institution opera
tion from political control, the Prison Association again urges that
civil service provisions be extended to personnel employed in county
operated detention units. County jails should not be manned by
those who secure their jobs solely’ beeause of political considera-
tions. They should, on the contrary, be administered by carcer
persons, From @ wholly practical and realistic standpoint, we
acknowledge that sheriffs, as county officers, will remain as elected
officials, pointing ont at the same time, hovrever, that the Sherif?
‘of New York is a civil sotvice official. We mention this simply to
indieate that it is possible to have a civil serviee sheriff, as wmpopa:
Jar as this thought may be among sberifls generally.

‘There havo beon a suficiont number of unfortunste instances
within county jails during the past several years to indicate that
‘these units lacied trained and experienced personnel. Tt is qui
unlikely that competent personnel, appointed through the merit
system, would have permitted them to occur.

‘The Association is not willing to approve the freering into the
serviee of incompetents or those who hold their positions solely
because of Political connections, We state again that this recom-

nendation strikes at the very heart of the power of county govern-
ment, but we would be unfaithful to the best correctional practice
if we did not make this recommendation. It should be stated
for the record that personnel of the Deparimont of Correction of
the City of New York is under civil service as are those of some of
‘the county penitentiaries,

RECOMMENDATION XVIII. —SEX OFFENDERS

Wo ayuin urge in the light of the increase in the number of sex
crimes that there he a review of the administration and accomplish
‘ments resulting from Chapter 525 of the Laws of 1960.

‘The Prison Association of New York has been interested in the
matter of sex offender legislation for many years and was respon-
sible for the introduction of a bill in 1047. Governor Dewey at

Recomespations no THE LeantaToRi 25

that time veloed the bill on technical grounds but because he was
so concerned about the problem he appointed a departmental com-
tnittes, ‘This committee, of which the Association’s General Secre-
tary was a member, made an exhaustive study and submitted &
report that resulted’ in the passage of a bill that became Chapter
525 of the Laws of 1950,

‘The question prevails as to whether any good has been accom-
plished’ through this last, both’ throngh its application by the
Courts and the anticipated research and treatment activities directed.
toward inmates under the control of the Slate Department of Cor-
rection. An eatlier review indicated a hesitancy on the part of the
courts {o exervise the provisions of the law. It is doubtful whether
this situation has since improved

With regard to the application of the law to inmates of institu.
tions, cursory observation suggests that. there is room for further
orientation and functioning. It is recognized, of course, that the
Department of Mental Hygiene hus been confronted, and still is,
with the problem of qualified and adequate persounel to conduct
research and treatment programs but this condition should not be
permitted to serve as the full explanation of what appears to be a
serious inadequacy. It is recognized that the sex offender is a
balling problem but we cannot stop there and be content with that
observation if we are to give the public the kind of protection it
needs,

RECOMMENDATION XIX. — INCREASED ALLOWANCE
FOR CLOTHING FOR RELEASED FELONS

Article 19 of the Correction Law, Section 484, should be amended
to further increase reimbursement by the State of the monetary
allowance for elothing to be issued to felons upon discharge from
local prisons or penitentiaries,

RECOMMENDATION XX. — REIMBURSEMENT FOR
MAINTENANCE OF MISDEMFANANTS:

Article 7-A of the Correction Law should be amended to provide
that when any misdemeanant or lesser offender has been sentenced
to an indeterminate term and such sentence extends beyond one

Year the full cost of maintaining such prisoner beyond one year
Bhatt be charged aguinst the State

RECOMMENDATION XXT.— REIMBURSEMENT TO COUNTY
INSTITUTIONS FOR BOARD OF STATE PRISONERS

We again unge that there be an additional compensation for the
bourd of State prisoners in county penitentiaries with particular

26 ‘Tum Prison Associaniox o New Yous

reference to per capita costs for maintaining prisoners in institu.
tions of the New York City Department of Correction. ‘here is
need for a flexible seale of reimbursement to be determined on the
basis of actual eosts. Obviously the cost of maintaining a prisoner
in New York City is more than in some upstate county. Costs even
vary between these upstate eounty institutions. The present maxi-
mum amount as authorized in 1956 is inadequate, especially as it,
relates to New York City.

RECOMMENDATION XXII, — PUBLIC DEFENDER SYSTEM

For many years, and thus far without snecess, the Prison Asso:
ciation has urged that there be an exploratory study made of the
advisability of establishing a publie defender system in New Yorks
State, Experience in other areas, such as Omaha, Los Angeles,
Goluabns, Memphis, Providence, St, Paul, St, Louis and San Fran:
isco have made satisfactory use of this deviee to extend full jus-
tico within the eriminal courts. Tho Association was gratified to
note early in 1955 that the Attorney General of the State recom-
‘mended this plan before a hearing of the Temporary Commission
on the Courts. Noting also that legislation was introduced in the
1956 Legislature, with endorsement by the Attoraey General, to
provide State finaueial subsidy to localities to help pay public
Gefenders in juvenile delinquency eases, the Association urges fay-
orable consideration of such legislation,

‘We note further that Governor Rockefeller in his message to the
1960 Legislature urges lowal aid for indigent defendants,

RECOMMENDATION XXIII. — PROBATION SCHOLARSHIPS

‘The correction law should be amended to provide for the estab-
lishment of probation scholarships so as to remove the limits of
‘the amount thereof.

‘This lesislation is proposed with the approval of the State Pro-
bation Commission. ‘The amendment eliminates the present statu
tory restriction of $2,000 on scholarships and permits the Depart.
ment of Correction to set the amount of scholarships subject. to
Budget approval without resorting to statutory changes. ‘The
Mental Hygiene and Welfare departments have a flexible
aystem similar to the amendment proposed. ‘This is made necesary
by reason of the fact that the sum of €2,000 presently allowed by
statutes does not permit @ sufficient stipend to enable probation
personnel to take Ieaves of absence without pay while attending
graduate schools of social work. ‘Tnition costs per year are approxi
mately $900 with the result that only $1,100 is, at the maximam,

ing and traveling expenses. Ta view of the sub:
stantially increased cost of living, and since most of the eandidates

RECOMMENDATIONS 10 THE LovaisLarR a

have family obligations, the existing provisions are manifestly
inadequate. Other State departments, such as Mental Hygiene
‘and Social Welfare, grant full tuition scholarships, plus $250 per
month for living expenses. The proposed Tegislation is aimed to
bring seetion 14-d into line with the practice in such other depart-
ments, This will serve to foster the purposes of the scholarship
grants, to wit, to encourage more probation oflicers to take advan-
tage of the scholarship program and thus increase their efficiency
and bring about a more professional type of service in the proba-
tion departments throughont the State.

RECOMMENDATION XXIV.— CONTRACTS WITH
SCHOOLS OF SOCIAL WORK

‘The correction law should be amended with respect to eontracts
swith sehools of sovial work for reasons set forth as follows:

In 1957 The Special Committee of the State Probation Commis-
sion submitted recommendations to the Commission that on the
basis of experience in the preceding two years in earrying out the
provisions of section 14-e dealing with contracts with sehools of
social work for the development of eurricule particularly applicable
to probation personnel, the granting of the maximum amonnt of
311,000 to each school (which presently can be granted for an
faeademie year) was an unwise arrangement.

‘Actually, some schools provide a more extensive program than
others and it would be highly desirable to grant an amount to each
school which would more nearly represent the cast of the probation
curricula and training that cach of the schools would be able to
develop and eatry out. This matter has heen thoronghly diseussed
‘with each of the schools of social work and they appreciate the
fact that some schools can provide a greater variety of courses and
fa more extensive program than others. Further, field work place-
ment, which is an integral part of any curricula, is more highly
developed and would be more adequately carried out by some of
the schools,

‘Therefore, the Special Committee and the Probation Commission
itself, after deliberation felt that the wisest way to remedy the
above mentioned difficulty would be to eliminate the ceiling of
{$11,000 which can bo granted to each sehool and permit the grant-
ing of different amounts to the various schools in proportion to the
curricula and Zacilitios that could be developed and earried out for
the training of probation personnel. On this basis, the school pro-
viding @ greater amount of service would be granted « larger
amount, while those providing a limited or lesser amount of vervice
would ressive a lesser grant. ‘This method of distributing grants
would result ina muck more equitable allocation of funds. Tn any

28 ‘Tue Prox Assoctamon oF New Yous

event, the total amount that would be granted to all the schools in
fany one year could not exeeed the totsl amount of the appropria-
tion provided Zor eontracts with schools of social work,

DATION XXV.— APPOINTMENT OF
CTIONAL INSTITUTION EMPLOYEES

‘The eorrcetion Tavs should be amended in relation to the appoint-
‘ment of institutional employees and to provide for the repeal of
eertain provisions of the present law

‘The purpose of the proposed amendinents is to harmonize various
provisions of the correction nw with the repeal of Corveetion Law
Section 274, subdivision 2, and the addition of Correction Law See,
tion 296, subdivision 8, aa effected by chapter 803 of the Laws of
1954, sections 8 and 27.

‘The proposed legislation will serve to effect a uniform poliey as
to all the institutions and divisions within the Department of
Correction and implement the basie poliey expressed in Correction
Law Seetions 5 and 9,

RECOMMENDATION XXVI.— YOUTH REHABILITATION
FACILITY AGE LIMITS

‘Tho correction Inv should be amended in relation to the age
Vimits of those admissible to the Youth Rehabilitation Facility

‘The proposal 10 amend Correction Law Section 314 seeks to
Droaden the age group admissible to the Youth Rehabilitation
Facility so as to include those up to the age of thirty. Experienced
correctional officials in this and other States support our viewpoint
that greater stability will be achieved by including the older group.
‘The factor of stability under efreumstanees of minimal security is
obviously of prime importance in making this new development a
success. ‘The proposed increase of the age limit will aid in bring:
ing within the camp inmates of greater oceupational experience
‘which Will enormously facilitate the proposed program of the con-
servation work camp activities, Conservation officials have indi
ceated the need, in order to accomplish the conservation objectives
of the camps, for the inclusion of the older inmates. Of course the
Department of Correction, through careful sereening of such older

mates, will insure that the relabilitative effects of the camp
program will not be impaired.

RECOMMENDATION XXVIL.— CHANGE OF TITLE —
CORRECTIONAL PERSONNEL,

In keeping with the trend to modernige terminology it is desir
able to reclassify the title of ‘matron’ in the State prisons for

Recommmnpations 70 Tae LearetaTuRe 29

vwomen and other correctional institutions to “‘correotion ofler””;
‘nd in the criminal’ hospitals the title “attendant”” should be
changed to “‘criminal hospital correction officer". These changes are
timely and in the interest of a moze diguifed reference,

A PIONEERING AGENCY

Since 1644, The Prion Assocation of New York hasbeen ative
ine artantiag argyle for covrectiocal progress © has
pioneered bad eruded with a reord of accmplutment in the
Ser ove adoqeuts operation of Now York's praons unequalled
Spray ober erp

TEA the cy Private agency Sn New Yor Site sual
esi ato te er i nd amie fe Ba

nm, county flea lock-up and make teoominendations to
Eeouits levrakers ending thelr ave eeentepertion

"There ha ben eter agen for move thin a eontury Wek
tat sprarheaded 0 many feform, improvements i our Prisma
tha ped vo actively the batl agua vine

it han ao ver the sume evi extonded its operations and
influence dhrougbout our non a wll a bread.

Tis work not tcndemio. The Aeclaion oatiues to work
lacy wth prion edminsirators and oly to the end at
thn of ear efertc has bern expresed many tines by Goth he
Etats and City cominionere of crvston, sotto ection thowe
fiat tn eter nate and foci countien who have anked for
Fal packed fur Cat wenger cal evn

‘erwork ith the cours and hor aspocatons tothe end that
there be e prompt, fein end lnpartial bandiing of jai, te
the more efetive handling of prisoners_epedaly the youl
btn who sande onthe resold of ten tmerom's ual
rime

The Asation is Uncaingly motivated by the philoop
that thy Beis function af tie hein i Unt pomeding more Be
ine tian simpy Eoping nis ran ng and doy ack
fd key. Te dh pubsiive a ciel for rime mith he
Tomas the Slate wl have fo pay lion af dllare fo the
Farr, the’proweution and fewdweaton” of ta relaed
Prone

hone fr eime most become schools aginst crime, AI the
router of diene ryhology, paying poly td fst
en im ell ving'aus bo Sool in onder to reture an tan
toll bing t nosey at pile, objet to cach a prowrr™
Eat once objet to atl seeing tach pootacin, and To deny
that prychistey pusehology, religion sud edvention Jad tothe
Onderstanding aa rformation of chamnctt: he flising ower
of the seoohe shop he elite must b furthered our foo

a broader out theAmoiation comers lf wil crime
preveation ative inte oman stat there Wil rally

(301

|A Provermiva Aonvey a

‘result a minimum of need for arrests and convictions. We continue
fas always to support probation as @ sound medium of reformation
in preference to institutional commitment provided, however, that
there exists an adequately organised and properly administered
probation system and that there is in practice a eareful selection
of the persons to be placed on probation. ‘The Association had con-
siderable to do with the writing of the first probation law for the
State of New York and we remain steadfast in our belie? as to its
suitability 28 one of the means of dealing with those who come into
conflict with the law.

"The Association, however, is not satisfied to rest on ite laurels.
‘The problem of crime and delinquency is a constant one which must
be attacked continnally. One approach is through legislation and
the recommendations on the foregoing pages are an evidence of our
always looking forward,

‘THE FOLLOWING ITEMS ARE TYPICAL OF THE VARIOUS
INTERESTS OF THE ASSOCIATION THROUGH THE
‘YEAR 1959.

IN THE AREA OF LEGISLATION

'As has been our custom for decades during the early part of
each year when the Legislature is im session our major attention
is diteoted to those bills having to do with the administration of
criminal justice, A detailed statement of the #2 bills holding our
close jane during the 1950 Season is set forth beginning on
page G5. Of this number we approved 41 and opposed 51,

UNITED NATIONS SOCIAL DEFENCE PROGRAM

“We continued our interest in the activities of United Nations
in the field of soeial defence (orime study and treatment, including
Juvenile delinqueney) beeause the first international meeting con-
‘cerned with this subject, held in London in 1872, was traceable to
the efforts of the then general secretary of The Prison Association
fof New York, At that meeting there was organized the Inter-
‘national Penal and Penitentiary Commission, ‘The work of this
body was taken over by United Nations in 1950. ‘There has been
some uncertainty as to the extent to which United Nations would
fuldll its promise to earry on and expand the work of the Inter-
national Penal and Penitentiary Commission,

‘On April 27 through May 15, 1959 the Social Commission of
United Nations held its Twelfth Session. Below is a summarized
report of what transpired at this meeting and it is indicative of
the fact that there will be continued effort on the part of United
Nations in the field of juvenile delinquoney and crime prevention.
The action taken by the Social Commission was subject to final

32 ‘Tan Prisow Assoctanion oF New Yous.

review during the summer of 1959 at Geneva when the Beonomie
and Social Council of United Nations held its 28h Session. While
the resolution montioned in the report was not as far reaching as
‘some outside of United Nations would prefer it nevertheless indi
cates that the protests registered at a special mecting of delegates
from different countries have been rewarded to the extent of im-
pressing upon the Social Commission the desirability of United

fations continuing, despite budget Vimitations, its interest and
‘activities in the field of social defense.

Excerpt From Summary of Social Commission Meeting,
Social Defense

Under the heading of social defense, the UN Program includes
the prevention of erime, the treatment of offenders, juvenile delin-
queney, and the suppression of trafic in persons and of the exploita-
tion. of the prostitution of others.

United Nations studies have shown that criminal behavior is
increasing and has assumed more series proportions in some of the
highly developed countries. An increase in criminal behavior is
also noticeable in many under-developed countries, especially in
those tundergoing rapid industrialization and urbaniestion

‘The Social Commission adopted # resolution which notes ‘That
despite the efforts at present being made, erime and dolinqueney
are continuing to inerease markedly in many eountries,”” and which
fs dosigned to “‘strengthen UN technical assistance in this fleld,
particularly to the less-developed eonntries,””

While the United Nations would “retain leadership and respon.
sibility in the matter of social defense,"” the Seeretary-Goneral
hhas been asked to continue his consultation with the International
Penal and Penitentiary Foundation and other nongovernmental
organizations on arrangements for associating them more closely
swith the function of the United Nations in the field of prevention
of crime and treatment of offenders.

‘The resolution further requests the Secretary-General to proceed
swith the measnzes to bring into operation two planned regional
institutes on social defense, in Latin Ameries and in Asia and the
Far East

Tn the near future, the Secretariat will concentrate on studios
on practieal problems of adult and juvenile probation, parole and
after-eare, which will be considered at the Soeand United Nations
Congress 'on the Prevention of Crime and the Treatment of
Offenders, to be held in London in 1980. ‘The first such Congress
‘was held in Geneva in 1955, and the third, for whieh the Govern-

ment of Sweden has already offered to act es host, will be held in
ent i 3, Will be held

A Fiowrenme Acenoy

“Action by the Economie and Social Couneil

At the 28th Session of the Eeonomic and Social Council of
United Nations held in Geneva during the summer of 1959 the
faction of the Social Commission Meeting held in April of 1959,
referred wo above, was approved. This decision we welcome and
fare pleased to have played a part behind the scenes, so to speak,
in urging that United Nations continue its interest in the subjects
of juvenile delinquency and crime as a fulfillment of its commit-
ment to earry on after the absorption of the International Penal
and Penitentiary Commission into its organization, and further
because of the seriousness of these two problems in many parts
of the world,

SECOND UNITED NATIONS CONGRESS ON PREVENTION OF CRIME
AND TREATMENT OF YOUTHFUL OFFENDERS

We are further pleased to note the added decision to hold the
Second United Nations Congress on Prevention of Crime and Treat-
ment of Offenders in London, August 8-20, 1960. This Congress,
‘as indicated above, is a continuation of the first oxe held in London
jin 1872 under the auspices of the International Penal and Peni-
tentiary Commission.

‘The Prison Association has been identified with these interna-
tional gatherings from the beginning and has participated in
‘various ways through the years; the last time being at the frst
Gongress under United Naiions auspices in Geneva in 1955. It is
anticipated that the Association will be represented at the 1960
Congress in London.

FEDERAL LEGISLATION

A Public Defender Bill, Senate 895; H.R. 4185

In our Annual Reports to the Legislature we have urged the
providing of a public defender system in the State of New York,
We pointed out that other areas such as Sfissouri, Tos Angeles,
Columbus, Memphis, Providenee, St. Paul, St. Louis and San Fran-
isco have made satisfactory use of this device to extend justioe
‘within the criminal conrts, We have supported the efforts of the
United States Attorney General to provide this arrangement for
Federal cases.

"The United States Senate has already passed U. 8. Senate Bill
895 snaking provisions for the representation of indigent defend-
‘ants in eriminal cases in the district courts of the United States.
‘A companion bill in the House of Representatives by Mr. Celler
js TLR. 4185, The House Judiciary Committee has given the
measure consideration and the outlook for action at the next Cong-
ress is good.

Ey ‘Tae Prison Association oF New Yous’
B. Home Leave Bill, IR, 4493

‘We have shown interest in, although we have not given full
support to, HLR. Bill 4493 by Mr. Celler to provide home leave to
assist Federal prisoners in their rehabilitation. This bill would
allow the Attorney General to extend the limits of the place of
confinement of a prisoner and permit him at no expense to the
Government to visit. his home or other place or places specifically
designated. Sch extension of limits would be granted only when

sch extension of Tints il faclhate his rehabilitation,

Inch a leave would apply also to a visit to a dying relative or
sont fhe aly, fo bin serge o al evn a
with critical domestic problems. Les piven oe

"his measure has some merit and in part, sich as permiaion to
visit dying relative, is in operation in the State of New York.

©. Juvenile Delinquency. Senate 694; H.R. 3464

‘We joined im supporting Senate Bill 604, House Bill 3464, de-
signed to provide Federal assistance for projects whieh will demon-
strate or develop techniques and practices leading to a solution of
the nation’s juvenile delinqueney control problems. ‘This is just
fone more step in an effort to deal with delinquency. ‘Tho bill éalls
for an appropriation of $5 million.

PROBATION SERVICE — DOMESTIC RELATIONS COURT

Duc to the fact that the frst probation law of the State of New
‘York was written in the offlee of The Prison Association of New
York more than Aly years ago we naturally continue 10 be inion
ested in this medium of correctional treatment regardless of age
git tment regardless of ag

‘There is renewed somewhat the proposal that there be established
‘a unified probation system for the Magistrates’, Special Sessions,
and Domestic Relations Courts. ‘The suggestion now comes from
the city’s Juvenile Delinquency Evaluation Project, designated
fe dias) quency sect, designated by

‘This same subject was dealt with in the Seabury Report i

fas dealt with in the Seabury Report in 1942

and1ras at that time rejected by the administration. Ttrwas revived
in 1954, ‘The proposal was opposed by Judge Warren C. Hill, Pre-
siding Justice of tho Domestic Relations Court, mainly on the
theory that the probation services of that court should be main-
tained as a separate wnit because it operates as a highly specialized
court, with its own specialized judges separate and apart from other
courts. He brought this viewpoint to the attention of Mayor Wag
ner under date of January 7, 1959 and sent with it a copy of his

|A Prossexa Acexor 35

letter of May 18, 1954 to the Director of the Budgel, Mr. Abraham
D, Beame.

‘The Prison Association addressed a letter to Mayor Wagner and
Budget Direstor Mr. Abraham D. Beame in support of Justice
Hiil's contention that the probation service of the Domestie Rela
tions Court be excluded from any plan for the pooling of the
Probation services of various courts.

‘COURT REFORM BILLS

‘We continued, espeeially during the 1959 session of the Logis-
lature, to work separately and jointly for the passage of the bill
designed to simplify the court system and the administration of
the courts, We functioned similarly last year but the bill proposed.
by the so-called ‘Tweed Commission’” failed.

‘At the beginning of the 1959 session we gave support to the bill
offered by the New York State Judicial Conference, Senate Int. 1757,
Pr 2650 by Mr. Mitchell, ‘This bill embodied some of the features
Of the legislation proposed by the Tweed Commission and it was
fegarded by ‘The Committee for Modern Courts as the best that
Could be hoped for at this session, ‘This committee is private
ody, outsiandingly active for the continuation of the drive for the
snodernization of the court structure and funetioning,

‘There were three bills offered but we maintained our stand in
favor of the above bill. However, as the session neared the end
the Mitchell bill was sidetracked and there was introduced instead
Senate Tnt. 1650, Pr. 4319, by Mr. Erwin, which we finally sup-
ported, Briefiy, this bill revises the State's court system by:

"Absorbing County and General Sessions Courts in Supreme
Court in New York City.
Combining City Court and Municipal Court into an inferior
chil court, and Speeial Sessions and Magistrate's Court into
fan inferior eriminal eourt in New York City.
Creating a new state-wide Family Court, absorbing Children’s
Court upstate and the Domestic Relations Court in Now York
oi.
Forbidding County judges upstate from engaging in the part-
time practice of law.

Batablishing a District Court system that upstate counties

‘and towns could adopt to replace Justices of the Peace and

police justices as they wished.

Granting the administrative board of the Judicial Conference

igencral poliey supervision of the court system.
| Rejected court reorganization plans that would have abolished

the Surrogates’ Courts, the Court of Claims and the Justices

Of the Peace and set up centralized state-wide budgetary

fontrol of the court system,

36 ‘Tun Prisos Associanioy of New Yors

‘The feeling among most of those interested in court reform was
that while the Krwin Dill was not wholly satisfactory it nevertheless

8 a decided stop forward and indieatod encouraging progress.
Tt is Wkely that when this bill is considered again some changes
will result intended to make for added progress

SPECIAL, LEGISLATIVE COMMITTEE ON REVISION AND
SIMPLIFICATION OF THE NEW YORK STATE CONSTITUTION

‘The General Secretary was requested to examine Staff Report
No, 24, dated December 1958, on Health and Welfare, of the above
Committee.

In this conuestion the General Secretary in a letter addressed
to the Associate Director of the Temporary Commission of the
Revision and SimpliGeation of the Constitution, Mr. John E.
Bobout, under date of April 18, 1959, expressed the hope that the
Commission would study the desirability of a ehange in Article 17,
Section & of the Constitution whieh provides for the existence of
the State Commission of Correction and which at the same time
designates the head of the State Department of Correction as its
chairman. This anomalous situstion has been mentioned in our
various annual reports in the past, the example being given that
it places the chairman somewhat in the position of a bank president
examining his own bank,

In a later communication to the chairman of a subeommittee

‘under date of June 23, 1959, the General Secretary made a re-
newed plea Zor the continued functions of visitation and inspection
on the part of the State Commission of Cozrection, with the added
observation that the unit should be detached at least as affects
the chairmanship from the State Department of Correction. The
gist of it was the opportunity for independent action in the publie

interest. An acknowledgment of appreciation was received under
Gate of June 26th.

APPRAISAL. OF OUR 114th ANNUAL REPORT
In hig letter of June 20, 1959, Mr. James V. Bennett, Director
of the Federal Bureau of Prisons, commented as follows:
“‘As is the ease with all your annual reports, the 1958 report
is comprehensive, interesting and very readable, It covers s0
‘many important problems in the whole field of eorreetions and
institutional administration that it is dificult to select any
ge or to for special comment. In fet, each of your Sent
‘our recommendations is based on sound, progressive principles
and if carried out would represent a significant step forward.
“Incidentally, I want to thank you for your references 10 the
Bureau of Prisons and especially your comments on the nev
sentencing legislation. Our experience in implementing the

A Plowsenixo AgENeY

provisions of this new legislation has so far been most encour
aging. I expect that the first pilot institute on sentencing
which is scheduled for the middle of July will eontribute to
fa better understanding of the purposes and advantages of the
Tegislation and make for a wider use of the provisions of the
law by the judges.””

Worthy of note also is the fact that Commissioner Anna M.
Kross of the New York City Department of Correction in her Pith
‘Annual Report to the Mayor quoted freely from our report as
relates to her Department and also expressed appreciation to the
‘Association and its General Secretary as follows:
“The Department of Correction of the City of New York
expresses its appreciation and thanks to the Hon, Edward B.
Cass, Corresponding and General Secretary, and the officers
of the Association for their counsel, encouragement and interst
fn the administration's overall departmental reorganization
plans, the implementation of its programs and the many prob-
ems yet to be resolved.”

GOVERNOR'S PAROLE STUDY COMMITTEE,
‘This study was a follow-up of the “Lanza Case"’ but not in-
tended as a duplication of the work of two other bodies; one legis.
lative and the other representing the Governor's Office charged
specifically with an investigation of the so-called Lanza Case.

Tnstead the study, with which the General Secretary was identi
fied and which he urged Governor Harriman to authorize, was
interested in e well-ronnded professional review of the organiza-
ton and operation of parole in this state through the State Division
‘of Parole. This study was completed and submitted to, Gove
Rockefeller. ‘The findings are based on many months of intensive
siudy and evaluation of the personnel and the laws, and the
Various operations. The report appears in two parts: one having
to do with « summarization of Sndings and nevessary recommenda.
tions; the second is a detailed account, running into hundreds of
pages, of the study and observations made by members of the
tommittee, and also by those identified with the staff

The General Secretary addvessed a letter to Governor Rocke-
feller on behalf of ‘The Prison Association of New York supple-
menting the formal submission of the report and urged that it, be
tgiven most serious eonsideration and not permitted to become just
‘another volume in the archives of the State.

‘Governor Rockefeller in acknowledging receipt of the report
praised the work of the committee and indicated that the findings
fand recommendations of the committee would be reviewed by mem-
bers of his staf and by the departments and ageucies concerned.

38 ‘Tue Prisox Association oF New Youk

‘This has been done and in a memorandum submitted by the Divi
sion of Parole there is indicated general agreement with the find-
ings of the committee. As was to be expected, of course, there
‘were some honest differences of opinion relating to certain reeom-
mendations,

With respect to participation in the development of the report
the Association should foel a sense of deep satisfaction at the oppor
tunity to once more contribute toward progress,

RELEASE ON PAROLE WITHOUT APPROVED EMPLOYMENT

Tn personal contacts and through discussion in our annual
reports, likewise in our recommendations to the Legislature, begin-
ning in 1942, we have urged that there be a more realistic inter-
pretation of the law so that specially selected potential parolees
could be conditionally released in order to seek employment on
their own initiative, or in cooperation with the State Department
of Labor, Parole Officers aud private agencies, ‘The failure of a
prisoner to take advantage of this opportunity could be construed
2a violation of parole conditioned by his return to imprisonment

Tt is gratifying to report that the Parole Board, having been
for some time concerned gbout the backlog of individuals in institi
tions who were being held because no job could be alfered to fulfill,
the requirement for release, has adopted a procedure recently
whereby about 300 privoncrs have been released without a job
with the understanding that they must exert every effort to find
employment. This is a devided forward step and unquestionably
reasonable procedure. We have reason to believe that our discussion
of this plan aided considerably toward its adoption,

GOLDEN ANNIVERSAY WHITE HOUSE CONFERENCE ON CHILDREN
‘AND YOUTH,

During the week of March 27-April 2, 1960 the Golden Anniver
sary White House Conference on Children and Youth will be
held in Washington, D.C. The first White House Conference on
Children and Youth was held in 1909 a the call of President Theo
dore Roosevelt. At ten-year intervals thereafter similar confer-
fences lave heen held. ‘The General Secretary. participated on the
Part of the State of New York in preparation for the previous
conference held inl

In preparation for the 1960 conferenes the New York State
Youth Commission divided the State into nine regions and meet
ngs under its guidance were held in each. The regional meeting.
embracing New York City was held on dune 16, 1959 and was pre
sided over by Deputy Police Commissioner Alexander Aldrieh. This,
Meeting was confined to correctional matters, ‘The General Secre
tary was pleased to participate in this gathering for the submis
sion of material to the over-all New York State Committee

A Proneeriva Agrxey 39

‘The Governor appointed General Secretary Cass as a member
‘of the New York State Committee for the 1960 White House Con-
ference, ‘The committee mot in Albany on October Sth and 6th.
‘There was included in this assembly a conference of representative
youths from different eounties of the State. ‘They disoussed various
‘aspects of social life and welfare in the State and made recom-
mendations to the New York State Committee. This committee gave
consideration to the proposals coming from the various regional
meetings plus what was offered by the delegates to the Youth
Conference. Finally there resulted a statement of principles and
recommendations for submission to the White House Conference
‘as a report from the New York State Committee.

‘The General Secretary served as a member of the Subeommittee
‘on Correetive and Protestional Care of the New York State Com
mittee.* This subcommittee’s contribution was approved by the
State Committee as a whole and dealt with various items under the
following captions:

Personnel Probleme

‘The Police

Children's and Youth Courts

Placement of Children and Youth

Religion, Moral and Spiritual Gnidanco and the Clergy
Probation:

Psychiatrie, Paychological, and Case Workers
Custodial Personnel

Cottage Parents

Group Therapy

Vocational Education

‘The Treatment of Families

Pacilities

Parole and After-Care

Long-Term Planning

Tmplementation

At this writing General Secretary Cass is in ressipt of an invita.
tion from President Bisenhoyser to be in attendance and participate
in the proceedings of Golden Anniversary White House Conference.
Similar invitations of course were sent to the other members of
‘the New York State Committee as well as reprasentatives of all the
States.

STANDARD AGT FOR STATE CORRECTIONAL SERVICES

The project for the development of a standard correctional act

which is being undertaken jointly by ‘The American Correctional

“The eonplete report of thie rubsommlttee appears aa Appendix A, begine
ing on page

40 ‘Tue Pasco Assocamios or New Yous

Association and the National Probation and Parole Association
continues to move toward final conclusion. Mr. Cass represents
both The Prison Association of New York and The American
Correctional Association as a member of the committee

‘During the summer @ meeting was held to review the various
opinions submitted by members of the committee relating to the
extent and general subject matter of the proposed act. Upon its
completion this act shonld provide a standard piece of legislation
suficiently flexible to moet the problems of the various states,
especially where there Js need to strengthen or expand existing
correctional media or to provide for reasonable integration and
control, The variety of legislation now existing is not always for
‘the maximum of publie welfare nor in accord with modem think.
ing and experience. ‘Thus there results confusion, overlapping
‘and general inefilciency.

‘THE FREDERICK A, MORAN MEMORIAL INSTITUTE, JULY 26-91, 1969

Again the General Secretary was selected as @ consultant and
participant for this Institute, held in cooperation with St, Law-
renee University at Canton, New York. ‘The Institute is sponsored
jointly by St. Lawrence University and various State agencies
Aealing with delinquents smd criminals, prineipally the Depart:
ments of Social Welfare, Mental. Hygiene, Correction, the State
Youth Commission and the State Board of Parole, ‘The faculty of
this nationally known Institute is composed of correctional experts
Grewn not only from public and private agencies in New York
State but also from other parts of the United States.

There were 500 correctional workers from all regions of the
State enrolled and. it was noted again this year that there is a
decided tendenoy by the student body to take this opportunity
seriously. The General Secretary presided at the general session
on Thursday evening, July 30th. ‘The subject was ‘Problems in
Integrating the Correctional Process."” Speakers were The Honor-
able Peter T. Farrell, Senior and Administrative Judge, Queens
County Court; Dr. Walter B. Martin, Warden, Attica’ Prisons
‘The Honorable Russell G. Oswald, Chairman, New York State
Board of Parole. Participants in the Institute included ropresen-
tatives of law enforcement, preventive serviees, probation, juvenile
and adult institutional care and treatment, and paral.
COMPLETION OF ‘THE REVISION OF “MANUAL OF CORRECTIONAL

STANDARDS"

‘The revised edition of the Manual of Correetionat Standards
published ly The American Correctional Association in August
1959 was @ monumental undertaking and refleets the experienee
fand knowledge of many correctional workers in different parts of

A Pronuxuna Acunoy a

tcp af ay Wh he
a harris Se cep ak a os mene

oe sara rae, Sen Tn
eee

me Annie Gympie st Youn ofedae
‘Fiseal Management and Control Adult Probation
Rhinos rte, Coumanfsac oe ecu
ae Parole and Other Release Proce
Sousa eS caw
a

Raucation

Women’s Tatitutons

B91 ANNUAL CONGRESS OF CORRECTION,
‘AUGUST 20-SEPTEMBER 4, 1059

‘This Congress, the planning and administration of which has
been a major activity of the Association for many years, was
snceessfully held this year in Miami Beach, Florida, August 30-
September 4th. There were dolegates from forty-three States,
‘The District of Columbia, Puerto Rico, Canads, Japan and Yugo-
slavia, ‘The theme of the Congress was ‘Correctional Growth
‘Through Cooperative Effort.””

‘There was a very carefully prepared program, participants
being persons of recognized standing and varied experience in the
correctional eld from numerous states. These Congresses lave the
Value of projecting not only new thinking and planning but the
Keeping alive of desirable objectives in the interest of progress.
‘Tho Congress eannot eompel the states to conform with the deeisions
arrived at through special presentations and discussions but on
the other hand, it cannot be said by those present who desire to
‘make for progress in their respective states that they did not bave
the benefit of wide opportunity to learn of worthwhile activities
and achievements in other states

Tt should always be kept in mind that our Association played

ey ‘Tae Prasox Assocumox or New Yor

1 conspicuous part in the beginning of The Ameriean Correctional
Association and its Annual Congresses, dating back to the first one
held in 1870, Although our interest has never ceased in these
gatherings and tho work of the national Asociation throughout the
‘years, we have nevertheless since 1922 been pretty much the eore
‘in guiding its affairs and thereby enhancing its usefulness, At the
same time we have gained for ourselves a prominent place in the
national picture.

REPORT OF THE COMMITTEE ON MENTAL, HYGIENE, NEW YORK

STATE BAR ASSOCIATION

We noticed with interest the report of the Now York State Bar
Association on the revision of the MeNaghten Rule relating to the
defense of insanity. The present New York statute was adopted
in 1861 and based on the rule for the defense of insanity formu-
lated by the judges of England in 1848 at the request of the House
‘of Lords. Known as the MeNaghten Rule, it requires that a de-
fendant be able to prove he didnot know Ne ermal ach was
a "before a court can absolve him of responsibility for it.
‘The mame came out of the cam of a Scotsman by the name of
Daniel M’Naghten who shot and lkiNed the secretary to Prime
Minister Sir Robert Peel on the mistaken assumption that his
‘ietim was Sir Robert. He was acquitted on a finding of insanity.

‘Tho report of the Bar Association recommends a revision of
the Rule so 9s to take into consideration advances made in the
wider studies of human behavior. There are those who favor a
change and there is also opposition. Our interest in the subject
of the report naturally relates to the question of not only the
Aetermination of insanity, but what is it that makes people engage
{in criminal aets; to what extent are they responsible in view of
‘what is revealed as uncontrollable compulsions in the realm of
human behavior?

SURVEY OF PRISON INDUSTRIES

In our recommendations to the Legislature we have urged over
the years that hinprovement he made in the organization and opera
tion of the prison industries, We have suggested that the whole
area be cestndied and it is therefore gratifying to report that such
a study is under way with the approval of the Governor and the
State Department of Correction. This project is in the hands of
experienced people who are giving service to the state without
cost and it is anticipated that there will be worthwhile results,
at least to the extent of pointing various ways for betterment,

GRAND JURY SESSIONS

A bad situation frequently noted by the Association in its annual
eporis relates to the infrequeney of grand jury sessions prinel-

A Proxuzaine Aceney 43

pally in upstate counties, Tt happens, for example, that a grand
{jury will meot some time during the month of May and not convene
‘again until September or October. This means long detention of
‘thase who have not been indicted. It makes for moral, physical
and mental deterioration particularly as relates to young offenders,
some of whom are turned loose by the grand jury

‘We have urged throngh the Commission of Correction that the
Aistrict attorneys of the state become more interested in this prob-
jem and move in their respective jurisdictions for additional ses-
sions of the grand jury. This ean bo done through au existing
provision of tho Code of Criminal Provedure, In the New York
City area the problem does not’ exist because there are frequent
sittings of the grand jury and the distriet attorney ean at any time
‘move for the convening of a grand jury upon request to the eourt.

NEW YORK COUNTY CIVIL JAIL

For years we were highly critical of the situation relating to the
Shorift’s, or Civil, jails in the City of New York. In the course of
time these jails were reduced to two, With our continued protest
there finally resnlted the designation of one Civil Jail, lated now
for some time on West 37th Stroct in Manhattan.

‘The protests reyarding the civil jail situation were voiced by the
General Secretary and another member of our Exeoutive Com-
mittee, the late John L. Schoenfeld, enhanced through their joint
identity with the State Commission of Correetion.

‘The West 87th Street Civil Jail while never entirely suitable
physieally, nevertheless made for economy and centralization of
administration. Our objections continued to be voiced and these
wore emphasized by the demand of the sheriff for new jail facilities.
‘This was brought to the attention of the City Planning Commis-
sion—Project PW-10with the apparent favorable attitude on
the part of the chairman. However, it is discouraging to report
that the 1860 Capital Budget males no provision forthe contrac.
tion of a new efvil ji

“WHITE PAPER”, (ENGLISH REPORT ON CRIME)

‘Through the interest of our prineipal English contact, Sir Lionel
Fox, head of the English Prison System, we reecived a copy of
the so-called “white paper”? entitled "*Penal Practice in a Chang-
ing Society." ‘This document was made available to Parliament
by the Secretary of State for the Home Department in February
1959. Its reading indicates that the problem of erimo has not been
solved in Britain and that they are confronted with increased
numbers, particularly in the juvenile and youth brackets, beyond
the experience of years past and to a degreo that causes consider-
able alarm. Nevertheless the document indicates a determination

“4 Tax Puison Associarios oF New Yous

not to return to some of the so-called harsh methods employed in
England but instead to continue experimentation particularly
relating to younger offenders. Further, to improve existing facili-
ties and quality of personnel,

Tn many respects the situation is similar in this eountey so far
as numbers are concerned and the thinking of those of us who
do not believe in coddling but at the same time are anxious to try
in varying ways to reduce juvenile delinquency and ctinae in the
communities, as well as to ent down the rate of recidivism through
better understanding and handling of those who are finally eom-
mitted to institutions,

ASSISTANCE TO BUFFALO, N. ¥. COUNCIL OF SOCIAL AGENCIES

A committee of the Couneil of Social Agencies of Buffalo and
Erie County sought information about county penitentiary pro-
Grams with particular reference to the possibility of change at the
Hrie County Penitentiary lovated at Wende, ‘The General Secre
tary replied in some detail and supplied related literature which
the Secretary of the Council acknowledged with thanks and appre-
lation,

SERVICE T0 THE NEW STATE OF ALASKA
In response to a request for assistance from Mr. Charles W.
ie

Advisory Group, Anchorage Juvenile Action
SS gave general guidance relating to the prob:
lems of juvenile delinqueney and the design and need for certain
types of institutions to deal with young offenders. ‘This was
regarded as a unique opportunity for service to the newly estab.
lished State. A portion of Mr. Péeiffer's letter which prompted
special attention reads:
“As a new state, Alaska contemplates many changes and re-
visions in most programs. Actually, in the field of correction
‘and rehabilitation, there is very little in existence; so we hope
for some sound néw programs,””

We also nnd opportunity to he of fasther assistance to the new
Sinte of Alaska trough a request for lp from the Mental Teal
Section of the Alaska Departivent of Health and Wella, This
was in the form of a response to theic liter sopanding plane for
the rehabilitation of juvenile offenders in Alaska. z

COOPERATION WITH SUPREME COURT OF NEW JERSEY
_In response to two requests from Judge Francis of the Supreme
Court of New Jersey we furnished considerable material on the

subject of sentencing procedures together with personal comment
All this was duly acknowledged with appreciation,

A Proxpxena Acrxoy

GUIDANCE TO AFL-CIO COMMUNITY SERVICE COMMITTEE

‘Upon request we took advantage of the opportunity to assist
the Commanity Service Committes of the AFIL-C1O’ regarding
Statistical material relating to the population of both state and
federal prisons and reformatories and also in the discussion of the
twend and meaning of these statistics, ‘This guidance was of value
to them in the preparation of literature to be made available in
pamphlet form for the edueation of the membership of the com-
bined Iabor groups.

COOPERATION WITH JUDGE SAMUELS. LEIBOWITZ, KINGS COUNTY
‘COURT

Judge Leibowitz sought the adviee and guidance of the General
Secretary rogarding the problem of finding employment for re-
leased prisoners; also the problem of employment of those in
prison, and tho inequalities resulting from present sentencing.
processes. He also sought guidance on the desirability of bringing
representatives of labor end management together on the whole
question of jobs for ex-prisoners and adequate work and training
for men in prison.

Regarding all of the above items the Judge was liberally sup-
plied with information based on our own knowledge and experi-
ence, together with helpful literature. All of this he accepted
with noticeable appreciation. Subsequently he received eonsider-
able newspaper publicity relating to these items.

‘CONFERENCE OF LABOR AND MANAGEMENT

Jn onr recommendations to the Legislature we have repeatedly
urged that there be a getting-together of labor and management
relating to the problem of inadequate employment of prisoners,
and also trade training activities. These recommendations each
‘year have been brought not only to the attention of tho Legisla-
Sure but the various Governors, and particularly to the State
Department of Correetion.

‘Lt now seems that the idea is beginning to take hold because
it is understood that Governor Rockefeller is planning to bring
Jabor and management together and also ropresontatives of the
Stato Civil Service Commission, It is fair to assume that our
recommendations and eorrespondence and conversations, all in line
with the above, have contributed to the action that has been taken
by the Governor together with his Commissioner of Correction.

‘Here again is another example of the kind of service that the
Association renders which requires time, patience and full under
standing for fulfillment.

46 ‘Tun Puisow Association of New Yous

STATE AND CITY RESPONSIBILITY TOWARD CARE OF FELONS AND
‘OTHERS

On this subject we continued with others in preliminary dis:
ceussion during the year both in New York City and Albany. The
City authorities are anxious to be relieved of the eare of State
felons, prostitutes, vagrants and alcoholics in institutions of the
New York City Department of Correction.

The position taken is that felons should be cared for in State
institutions and that those in the other classifications should be
treated in a non-penal atmosphere, ‘To some extent, as indieated
in our annual reports, we are strongly sympathetic 10 @ review
of the whole situation. ‘There are indications that those in State
government are not unmindful of what might result if the City
should take certain action that would cause certain felons to become
1a full State responsibility

REPORT OF THE STATE OF NEW YORK JOINT LEGISLATIVE
COMMITTEE ON ANCOTIC STODY
We continued our interes in the work of this committey and

cooperated to whatover extent bawible. The comics nopst i
tallghening although i ofers no panacea. Seventeen sceningly
Well founded recommenations aro contained at the close of the
por; the dln of whih give slue not eny to the suhjert,
Tater Dut the expunsiveness of the coverage af the port, the
titles are: ov LN

Reevalaation of Supreme Court Decisions

Hospital Facitin

Riverside Heapital

Vocational Hehabitation

5. New York City Commumtiy Agencies

Unofficial Agencies. vA

The Phyrician and the Addie,

Beveation

Resareh,

Pavole Department

Penal Lave

‘he Nallne est

‘The Narcotic Offender in the State Prisons.

Triplote Presets,

Rapore to the Nantotie Control Section.

Nateot Commision,

2 Continuing Bead

hore is alo an interesting section ented: “Responsibility
for Nareotie Matters in the State.”” ms "7

A Piovenasa Aanvey a

STUDY OF THE BRITISH NARCOTIC SYSTEM

For the purpose of further information and guidance and in
ino with our intorest in the problem of drug addicts the General
Sccretary obtained 2 copy of the report submitted to Governor
Nelson A. Rockefeller entitled ‘‘On the Site Study of the British
Narcotic System." This is an interesting and valuable report since
‘the question is often raised as to how the problem oP narootics
is dealt with in England and to what extent the problem exists.
Following is a brief summary of the report:

“A comprehensive report of the British narcotic system, made
in that country last Fall by Dr. Granville W. Larimore, Deputy
Commissioner of the State Heaith Department, and Dr. Henry
Brill, Assistant Commissioner of the State Mental Hygiene Depari-
ment, has been sent to Governor Rockefeller. The report states
that "the British system is ‘not so dissimilar as is commonly
believed” in comparison with the American system, but that the
situation is different ‘with only 350 known addicts among a British
population of 50 million,’ adding that in Britain ‘addiction is
not eonneeted with organized crime, but is largely medical.” The
report adds, ‘Tt should be pointed out that (1) the proseribing of
narcotic drugs in England is earried ont with just ax many safe-
guards and much the same restrictions as in the U. S.; (2) every
effort is made to uncover addiets just as soon as possible and to
‘sce that thote discovered are placed under effective. trentm
(8) only in those instances where all treatment efforts have failed,
and then only after consultation, are drugs supplied to an addict;
(4) the number of such instances is extremely small, by any eri
teria, for a population of more than 50 million,”

“The report also notes that an English patient ‘ean only go to
fone physician under the National Health Service . .. while in this
country (i2 the British narcotic control system were adopted),
all the addiet would have to do in a large eity would be to visit one

physician after another".
FACILITIES AND TREATMENT FOR DRUG ADDICTS IN NEW YORK
cry

Mayor Wagner finally gave support to the idea that drug addicts
aro not a correctional but, instead, a medical problem. his has been
our contention for some time, To this end he announced on June
5th that the ety would set up special wards in three of its hos.
pitals for drug addiets and that the Riverside Clinie on North
Brother Island would be moved to another location by the Depart
ment of Hospitals thus making the site available for the Women’s
House of Detention, We commended the Mayor in a letter. under
date of June 5th for his decision in what we rerard es a logical and
Torward step.

48 ‘Tan Prisos Assocrarios: ov New Yore

GOVERNOR ROCKEFELLER'S INTERDEPARTMENTAL TASK FORCE
‘ON YOUTH AND JUVENILE DELINQUENCY
‘The Association offered its cooperation and at the same time
expressed brielly some of ils views relating to the problems in an
approach to Mr. Eli Whitney Debevoise, Chairman of the Task
Force. There were also supplied documents identified with the
Association. This action was gratefully acknowledged.

LETTER TO THE NEW YORK TIMES RE: ANTIQUATED JAIL
STRUCTURE:

‘During August there was a disastrous fire at the Ocean County
Jail at Toms River, New Jersey, resulting in the death of a number
Of prisoners. There was the usual observation following  eatas-
trophe of this nature of public astonishment and a grand jury
investigation,

In support of an editorial appearing in The New York Times
under date of August 25th entitled ‘Tragedy at Toms River”,
the General Secretary wrote a letter to The Times emphasizing
the point that conditions ai the jail at Toms River were well-
known within and outside of the State of New Jersey for a long
time. However, nothing was done to correet them until there devel-
‘oped a catastrophe with loss of nine lives. He then drew a parallel
between similar situations in New York State resulting in sudden
publie astonishment and demand for action; namely, the Triangle
Shirtwaist Factory fire in 1911 and the prison riots in 1929,

CORRESPONDENCE WITH HOWARD A. RUSK, MLD.,
OF THE NEW YORK TIMES
Dr. Rusk, in The New York Times of Sunday, September 20,
1959, made some very exeellent observations on the subject of
juvenile delinquency and crime. The General Secretary wrote
him in commendation of the clavity and soundness of his state-
ments and in reply received a letter which contains a very signifl-
ant paragraph reading. as follows:
“The point I wanted to make in these articles is that there is
no unilateral approach to the problems of juvenile delingueney
and crime. ‘Tho many approaches which must be utilized if
effective results are to be obtained all require far more finan-
cial investment than most such programs are receiving at the
resent time.”

CORRECTIONAL CHANGES IN CONNECTICUT
‘We became interested in a survey made in the State of Con-
nestient in 1957-58 to ereate a State Department of Correction

and also provide for the State to take over the jurisdietion of the
county jails.

A Piowzeeove AczNcY

e plan to establish a Department of Corrostion has met with

Picfon dap'in part to the fact that members of the boards
Pr usnes of diferent institutions in the correctional Held. ate
Csiling to give up, or share, responsibility. ‘he legislation ix
[EMT pending and has Governor Ribiol™'s warm support. However,
“Tal Moai pasted to abolish county governaent control as relates
forthe aperation of the county jails and this too has the approval
Sf the Governor, thus making for ene notable gain as the result
Of tho study referred to above.

Tho Assocation’ continued interest fx the elort toward prog-
reat in Connertigut was communicated to Governor Ribico in a
Teter under date of May Sth, o wich he replied expressing appre-

ation for our invest in bis efforts to make for progres.

SPECIAL ENGLISH PRISON PROJECT
‘At to request of the chaiman of the Prison Commision of
sogland andl Wales the General Beretary met in Now York City
BEE aim Rinaed Hanser, whove husband je engaged In an experi
wna projet a: Wandeworth Prien in Bogland. Both Mr, aud
Me'iduse nave been Devmitied to work with Sh iomates of one
Mi of the prion, The theory of the project in their words i
Stein based entirely on the presumption, very much Dome
Gut the ror so fay hat jany prlonery have no feling
wea goa evil vob last no far as thelr acfons age om
Mtrted ale commiting the evtne--and ile impact can be
Sind withthe old principle of gut and sin. What we found
aaa important is tei deep emetional resentment — although
wnat agreeing and proposing. that while actally com
TingtE The “osme' thoy are around fons years old as social
age watever tele mental age tnght normally be, Tn this sit
Geis ahey may even Tall deeper don he sale i using bra
TIS” (ter own evaluation of this was a two year socal age)
TAY (cde they claim applies to most of he prisoners st
Wandeworth :
Only Hf one con snake people think can this four year situa
ting Be voided: "Par of work consis in eonsiderebly
HOliag fhe social age of the Dertcpants diectiy (and per
SoeI'Soner Indira). ss Thuy our work fs based on
Bang writ well gorasce and not evil or wrongdsng.
subsequently the following etter was recived trom Sir Lionel
Fon, Chaleman of the Bnglith Prion Commision:
«oT was inioested to hear that yon had met Mrs, Richard
‘aster She end hor lngband were here few days ago, and
Phnd'c most ntreting ta th them. Mhe work they havo
been deing at Wandsworth prison as had remarkable resis
tere ite THensr hos just made long seport which T am

‘Tue Patsox Assootamoy of New Yor

studying. I gather that Mrs, Hauser is just about to g
the United States again, so you may be having anotit
meeting.”

CIVIL SERVICE PROMOTION EXAMINATIONS, NEW YORK STATE
DEPARTMENT OF CORRECTION

Im our annual reports and in earlier minntes we have discussed
the question of whether promotion examinations in the State

Department of Correction should be limited to members of the

‘uniformed force. We have opposed this limitation successfully in

the Degislature, ‘The present Commissioner of Correction agrees

‘with our position and recently prevailed upon the Civil Serviee

Department to permit the coming examination for warden to be

participated in by a limited uumber of Correction Department

Personnel in addition to certain ranks of the uniformed foree.

This gives a better balance to the sitmation and does not make

Yor too much inbreeding and a restricted interpretation of the

duties and responsibilities of a warden. It is well to keep in mind

‘that if our institutions are to be rehabilitative as well as custodial

they are also entitled to leadership and dircetion by. those who

have had special training in the fields of education, medicine, social

‘welfare, bnsiness administration, et cetera

CORRECTIONAL INSTITUTION DESIGN AND CONSTRUCTION

In Iine with the interest of the Association and as the duty of
a member of the State Commission of Correction, the General
Secretary during the year studied plans and gave approval for
various types of institutions, namely eounty jaila and police lockups.
Sample locations are Niagara Comnty, Wayne County and Schuy-
ler County Jails; and lockups at Kast Hampton, Long Beach and
Endicott,

The enlargement of Sullivan County Jail is nearing completion.
‘This is the result of long-standing criticism. Progress is noted in
the design of a new jail in Monroe County.

Improvements such as these have been a major interest of the
Association ever since its heginning,

WARREN COUNTY JAIL

Following an effort over a number of years in which the State
Commission of Correction and The Prison Association of New
‘York have participated, separately and jointly, it has finally been
voted, as a result of referendum in the last election, to construct
a new jail in Warren County. ‘The jail will be part of the new
Civie Center for Warren County and will be located outside of
Lake George. Here is another trinmph in the interest of progress
and a reward for persistency and patience,

A Pronzmuxa Aarxox ‘I

[NEW COTTACES AT WESTFIELD STATE REFORMATORY FOR WOMEN

‘Although this project has been too long delayed, despite agita-
tion not only on the part of The Prison Association of New York
Dut numerous sources — official and otherwise—it is now a fact
that contracts have been let for the construction of two new cot-
tages at the Westfield State Reformatory for Women at Bedford
Hills to climinate two old cottages: Huntington and Gibbons. The
1960 Budget will provide for two more cottages. This is only a
start toward much nevded improvement in order to make for satis-
factory modern living quarters and remove a very serious fire
hazard due to the age and outmoded construction of these old
cottages which go back to 1903.

RECEPTION CENTER, ELMIRA

‘The establishment in 1945 of the Reception Center at Ehnira,
‘an important classification and distribution unit in the State De-
partment of Correction for those between the ages of 16 and 21,
is in lime with the thinking and recommendations of this Associa~
tion over a period of years.

Jn response to a request that we review a study made of the
Center by the Juvenile Delinquency Evaluation Project of the City
‘of New York, we took exception to some of the observations and
certain omissions, at the same time giving a kind of overall
approval to the report. A copy of our letter of June 23, 1959 to
the Assistant Director of the Project was sent to Dr. Glenn St.
Kendall, Director of the Reception Center, and in his letter of
acknowledgment he stated in part:

“"T appreciate, too, your words of commendation with regard
to the job the Center is doing, We are, of course, aware of
our numerous shortcomings, but we try to measure up to the
best of our ability with what we have to work with.”

PSYCHIATRIC SERVICES IN STATE CORRECTIONAL INSTITUTIONS
During the Institute at St. Lawrence University the General
Secretary took advantage of the opportunity to discuss with Dr.
Richard V. Foster, Assistant Commissioner of the New York State
Department of Mental Hygiene, the present situation with respect
to the need for more psychiatric service in the institutions of the
Department of Correction. The Commissioner was frank to admit
certain inadequacies and referred to them in a communication
under date of August 7th as follows:
“We have nowhere reached our desires in connection with the
amount of psychiatric and psychological services we are giving
to the institutions of the Department of Correction. We have
to more or less ration the use of our part-time service funds
0 that the imited number of experienced psychiatrists and

52 ‘Pan Paison Association or New Yous

paychologists give the institutions the most effective use of
their time as the amount of available moneys permit. We are
striving to get additional fall-time personnel, and just today,
Dr. Saper, our Director of Psychological Services, and I were
talking over the prablem of reernitment of psychologists, Not
only are we confronted with the fact that relatively Zew prop-
erly trained and desirable men want to undertake this work
bat we have the additional problem occasioned by our needs
‘to atay well within onr budgetary economy.

“Notwithstanding the handieay
atrie services to the Deparim

an analysis of the psychi
3t of Correction indicates that
during the year 1958-59 a total of 2,270 inmates reovived
individual therepy and an additional 515 inmates were given
the benefits of group therapy. During the year there were @
total of 11,141 individual psychiatric interviews in the various
mental hygiene elinies of the institutions of the department.
‘The number placed under psychiatric observation was 824.
A higher percentage of interviews took place at the personal
fequest of the inmates themselves.
“During the year, 3302 inmates were examined for elassifiea-
tion and 2494 were examined preparatory to parole. Of those
committed under Chapter 525, Laws of 1950, all were regulatly
interviewed. During the year the total number of interviews
was 1060, In addition to the above, the professional personnel
in the mental hygiene clinies arranged for transfers to Dan
mora State Hospital and to institutions for defective delin-
quents. The overall figures indieate inereased usefulness of
the clinies in the everyday work and responsibilities of the
State's correctional institutions.”
_ While the above picture ix nol ax bright as we would like to have
it in Reoping with our interest for many decades in providing
professional study and treatment of offenders there is some eatis-
Faction in knowing that the Department of Mental Hygiene is
warmly interested in the problem and is doing the best it can under
the cireumstances considering the many demands for similar service
‘among institutions in its own department.

25 CENTS ON RELEASE

Rikers and Hart Islands and the House Detention for Women in
Manhattan twenty-five cents on release, This is a long standing
complaint, voiced not only by this Association but Commissioner
Kross of the New York City Department of Corzeetion, and others.

Despite all the efforts made toward rehabilitation while in eus-
today the fact remains that many of these prisoners need assist.

A Prowesue Aarnor 53

ance on release, especially at a time when a telephone call or &
Subway ride consumes all, or a major portion, of the paltry allow-
ance of twenty-five cents.

"Phe financial and other assistance given by this Association
and others is not always adequate, However, the money aid given
by the Association to individual parolees exceeds many times the
amoant given by the city. We, together with others, have not
Jpeen successful up to now in persuading the eity to be more liberal.

DEDICATION OF P. $616 AT RIKERS ISLAND

‘On December 16th the General Secretary attended the dedica-
tion of P.S, 616 at Rikers Island, ‘This is one of the ‘*600 Schools”
operated by the New York City Board of Education for problem
‘youths, and was established for the benefit of the 16 to 21 age
gronp who in the main were formerly lodged at New Hampton
Farms but now for several years have been housed separately at
the Penitentiary,

"There was present a very substantial group representative of
‘various organizations, high ranking officers of the Armed Forces,
Mayor Wagner, Commissioner Kross, and others

In connection with the ceremony there were drill mancuvers by
a group of the inmates between the ages of 16 and 21 who had
Teecived! some military instruction. ‘The military drill is a definite
rehabilitative medium and has obvious benefits

‘The school embraces academic aud vocational training. There
are fourteen regular Board of Education teachers, The vast change
that has come over this whole approach along edueational lines is
ost impressive not only because of the improved class room facili-
ties, but also the enthusiasm and the background qualifications of
{he teacher personnel. ‘They are especially equipped to deal with
the problem youth group.

‘The Mayor was very attentive to the ceremonies and following
the military drill eddressed the inmates, as did the General Secre-
tary. Later ie, together with Commissioner Kross, the General
Secretary and others, made a tour of the institutions and leisurely
‘observed the operation of the new school

‘Subsequently the General Secretary addressed a letter of appre-
ciation and commendation to Mr. John J, ‘Theobald, Superin-
fendent of Schools, and also to Deputy Superintendent Jacob
Greenberg.

(COURT DETENTION FACILITIES, 100 CENTRE STREET,
NEW YORK CITY
‘The New York City Department of Correction through its First
Deputy Commissioner, sought and guidaneo regarding the
need for more suitable facilities for the temporary detention of

cs ‘Tue Paisow Associwtion of New Youe

youthful offenders. Quarters on the sixteenth floor proved to be
‘unsatisfactory. ‘The proposal was made that the inmates be trans-
ferred to the third floor, then used for women, and that the women
bbe transferred to the sixteonth floor, ‘This seemed to be au improve-
‘ment over the situation and General Seorctary Cass agreed.

Finally, an even better solution was found with the help of
Judge Mullins of the Court of General Sessions, in that the women
‘will be retained on the third floor and the quarters reserved for
‘the Supreme Court on the thirteenth floor (both Court and deten-
tion facilities) will be used for youthful offenders, This makes for
a more dignified and secure arrangement,

‘QUEENS HOUSE OF DETENTION FOR MEN
In the dual discharge of his responsibilities both for The Prison
Association of New York and the State Commission of Correction
‘tho General Sceretary was requested by the New York City Depart-
ant of Public Works to past
ion and detailed equipment,
tion for Men,
During the visitation at the site of the new construction the
General Secretary made various suggestions regarding the door
arrangement, of ihe cells to eliminate unnecessary noise and the
need for the installation of a protective wire grille to be attached
to the front of the colls so that in the operation of the doors
prisoners would not be injured. ‘The need for this has been demon-
strated in other installations

‘TYPES OF DETENTION WINDOW DESIGN

On August 26th the General Secretary participated in a meeting
called by the New York City Department of Publio Works to
iseuss the types of windows to be used on new construction on
Rikers Island (enlargement of the Penitentiary and a new Work-
house) and also the extension of the Broux House of Detention
for Men. The problem related to the need of decision on an awaing:
or louvre-type of window constructed of aluminum or tool-proof.
steel, or hardened steel, so that competitive bidding would be pos-
sible ‘The aluminum louvre type of window with a somewhat con-
cealed tool-proof bar arrangoment met with general approval but
there was hesitancy to make this decision final heeanse of the
damage that could be done to the alominnaa facing by inmates who
‘would be in close contact with the windows loeated in the rear of
their cells or rooms. It was finally agreed that in order to reduce
the cost of maintenance and to allow for competitive bidding an
awning or louvre-type of window fashioned out of hard steel be
recommended.

‘To be active in a mecting of thi
standing interest in i

ind. coincides with our long-
stitutional design,

A Prowemuna Acrxer 55

‘PROTEST — WINDOW SCREENS, ADDITION TO PENITENTIARY,
'RIKERS ISLAND.

‘The General Secretary, in harmony with the progressive attitude
of this Association relating to institutional design and through
his membership on the State Commission of Correction, vigorously
protested the proposal om the part of some members of the staff
of the New York City Department of Correction to place a
narrow-ganged sereen on the outside of the windows of the new
cells or rooms to be added to the existing penitentiary. The addi:
tion to the penitentiary is intended for the benefit of specially-
selected inmates and a Righly-geared rehabilitation program, ‘These
cells or rooms are to he of the outside type; that is, not built as
a centrally-located inside cell blocic and are to have a window at the
rear looking out on a fenced-in area, The position taken was that
the sereens were unnecessary because of the security louvre-type
window to be used and would reduce considerably the entrance
of air and light. Further, they would serve as dirt collectors and
nally be harmful to the outside appearance of the buildings.
Another fine point of protest was that the screened-in_arrange-
‘ment would be diametrically contrary to the philosophy developed
by the Department for the handling of these specially-selected
inmates,

‘This protest was communicated to Commissioner Kross in a
strong letter by the General Secretary. She quickly agreed and
informed the New York City Department of Publie Works and
the architects that no sereens were to be attached to the outside
of the windows. They ware pleased to receive this decision.

ARCHITECTURAL DESIGN: HOUSE OF DETENTION FOR WOMEN:
‘ADOLESCENT REMAND SHELTER—NEW YORK CITY

‘The new House of Detention for Women (Capital Project 0-73)
is to be located on North Brother Island in the Bronx and the
Adolescent Remand Shelter (Capital Project C-74) in Brooklyn
‘on the site formerly used for years by the House of Good Shepherd
fon the property hounded by Atlantic Avenue, Dean Street, Hop-
kinson Avenue and Rockaway Avenue. On North Brother Tsland
some of the existing buildings will be retained and new buildings
erected, On the Brooklyn site most of the existing buildings will
be demolished and a new structure provided.

‘At a meeting at Commissioner Kross’ offiee on Friday, August
‘7th, there was discussion relating to the architectural design of
oth institutions, ‘There was representation from The Prison Asso-
tion of New York, the State Commission of Correction, the New
York City Department of Correction, The New York State Depart:
ment of Correction, the New York City Board of Correction and
the New York City’ Department of Public Works.

Tt was agreed that the Department of Publie Works undertake

Tue Prisos Associamox or New Yous

several exploratory studies to determine the results that could be
oblained at a minimum cost and in keoping with modem thought.
relating to cell or room arrangements and an improved type of
dormitory installation, ‘The advantage of this preliminary discus.
sion is the bringing together of various minds and experiences and
thereby better protest the Iuture development.

‘The 1960 Budget will permit completion of Stage T for the
enlargement of the Rikers Tsland Penitentiary, including funds
for additional power facilities. Stage IZ, howeve
1962. So too is construction of the Workhouse be
of fands,

Coustruction of the Institntion for Female Prisoners on North
Brother Island cannot be budgeted until 1963, which means it
‘will not be possible to remove the women from the present institu:
Hon until 1965 at least. Construction of the Adolescent Remand
Shelter in Brooklyn is delayed until 1964. Funds have been pro-
vided for preliminary architectural work for the Institution for
Female Prisoners on North Brother Island and the Adolescent
‘Remand Shel

‘These projects have held our attention for a long time and for
their fulfillment we have worked steadily with the New York City
Department of Correction. It is diseppointing of course that there
is necessary somo further delay because of the lack of funds but at
any rate it isa decided forward movement.

eause of shortage

FINANCIAL AID TO PAROLE SERVICES

‘We continue to make funds available for parclees to the New
‘York City Office of the State Division of Parole and the New York
Gity Parole Commission. This frst takes the form of giving priority
to their referrals to us. To the New York City Office of the State
Division of Parole we farnish a saa of money for emorgoney situa-
tions,

“While we respect the theory and practice of ease work proce-
dure we nevertheless know that in order to have shelter, food and
clothing, a job fee, or transportation, money is required. As ex-
prisoners often eay’to us, “What can we do without some money ?"*
‘This subject is further pursued in the section of this report under
the caption ‘Employment and Relief Burean”” beginning on page
58,

ASSISTANCE TO STUDENTS AND RESEARCHERS

‘We continue, as do others, to receive requests for information
from high seboot and college students, candidates for various de-
ares, and college profeeors undertaking various researc projets
‘These aro sometimes too numerous to handle but we do the best
we ean. It is an important servieo and at times requires the undi
vided attention of one person. Our sympathy is with these requests

A Piowxxaixe Agrey 5T

ecause they tend toward better public information and under-
standing.

FOREIGN VISITORS AND CONTAC:

An important service indicating breadth of vision and operation
cxisting slmost irom the Amocation’s inception ia the making of
contact with correspondents and departmental and institutional
administrators in foreign lands, Ae 2 result there is in many
countries the knowledge of our existence and location. There
follows useful consulistion and information exchange through
correspondence and sometimes personal contact. Also assistance is
given to visitors, both to this country and to Americans visiting
other countries. ‘This relationship through the years has been most
cordial and highly regarded in all directions and from our experi-
ence we kmow it to be of inestimable value. Just as 10 Downing
Street is known throughout the diplomatic world so it is true that
our address, 185 Hast 15th Street, New York City, is well known
as a focal point in the penologieal world not only among the coun-
tries of Europe but those in the Par Hast and Afriea as well. Tt is
pleasing to note that during the year 1959 there was no eessation of
this relationship.

‘THE ASSOCIATION'S BUREAUS
EMPLOYMENT AND RELIFF BUREAU

IE. . . $0 infinite the word—but oh—so profound the signifi-
cance! “If only I hadn't done it,” laments the inmate in the
penal institution. “‘If only f might be granted a second chance,””
he further vows. And society—How shall it give answer? “TE only
you hadn’t let yourself weaken in the face of adversity !”—
—If only you had been half the man that I am?” But what good
now to weigh the one against the otkert Yet, nor may it be too
late. To the individual newly delivered from the bonds of social
debt, there still remains that one final straw of salvation—If only
T might be granted a second chance. . . ."" And somewhere within
that vast society so darkly frowning and forbidding, there ill
be those who readily enough will pull back their doors but only s0
‘wide as to permit the passage of the few paltry crumbs of charity
Mich have been tosed in the form of a handout ov sympathetic
phrases that nonetheless add up to total rejection. But then
happily again there surely must be the outstanding individual
who will be the first to oxtend himself all the way, sincerely
desirous of proving himself to be twice the man he likes to believe
himself to be, and he shall fling fully open the door to gainful
employment and bid welcome to the weary wayfarer who yet has
a long, lonely road to trod before arriving finally at his destination,
rehabilitation, and at whieh point he shall find ultimate
haven. And this employer shall he twice-blessed for he will fad
the exinmate a willing and good conscientious employee spurred.
onward by earnest gratitude, and beyond that will himself feel
glad to have dared to permit himself to be twice the man he had
prayed to be!
The Prison Assocation of New York slf-dediented to the wel-

institutions awaiting release, deeply appre

tion and sincere efforts on the part of those employers who will-
ingly avail themselves of the services of these men. It is this
demonstration of faith and sheer understanding that helps to
shoulder the otherwise too heavy burden of placement. To those
others seho hat yet ventured to act accordingly, the Associa-
tion extends an earnest plea for them to do so in the near future.
Tt can safely promise they will find their faith could not have
been better placed,

‘Rehabilitation, the means to the end, represents sight from its
very ontset, a long, hard trek over a rongh course closely strewn
with every’ conceivable obstacle. Many get safely through—and
many—all too many—drop by the wayside. ‘The drive to suecced

(38)

‘Tue Ascocumiox’s Bureaus ov Seevice oo

‘must rest solely upon the traveler, however it is only humane for
the zest of us to march alongside, ever prepared to extend a steady-
jing hand should the need arise. "Thus having regained firm foot-
hold, the traveler will resume, walking erectly toward his goal.
‘Once having arrived, he then will seck to establish anew bis rightful
place in society. Hl will reacquaint hisaself with the almost for-
gotten sweet flavor of freedom and equality, and his rights and

Privileges, the precious ingredients he never again will permit
Bimself to 7m out of Ie will fal eternally gratefal to the em-
ployer who has made st possible. "What further illustration need
‘we to depict the vital role played by gaintul employment?

For the past seventeen years the Employment and Relief Bureau
hhas been winder the able supervision of Mr. Harry Schwartz, who
js credited with more than forty-five years" experience in the
fold of crime treatment und prevention in New York City. Mr.
Schwartz’ activities inelude among others, personal contacts with
employers, entailing numerous visits throughout extensive and
widespread areas and fields of practice, comprised of commercial
houses, factories, mills, garages, laundries, stores, ete. We are
pleased to note that where no actual placement materialized, our
representative nonetheless was received with utmost respect and
feaciousness on the part of all those visted

‘The Bureau is more than an employment exchange. Tt constantly
is confronted with recursing problems of financial stress, inade-
uacy of proper clothing, the absence of necessary transportation
to job locations, proper tools, union dues, Sees, ete. In each instance
the required aid is granted to the deserving—and only after
careful investigation. ‘Those clients whore means of self-rustenanoe
Ihave been curtailed by prolonged illness, enlist the services of the
Bureau which in tum provides financial assistance and guidance
firoughout the critical period of readjustment, “Our program as
ell dets with faites and teends of eins and where news

‘with referrals to the welfare agenies equipped to extend

Jonglrange and permanent fngncial aid and support. ‘The wide
extent of the Bureau's intercst in its elients is well illustrated in
‘the following group of excerpts borrowed from an interchange of
correspondence between our Direstor and ono such individual

Deas Ma, Souwauea:

Tam at the Raymond Strost Jail and have no one in Brooklyn nor
New ork City ta balp ms, ase oath T was in lags County Hospital
otam

medal -
Youre tly,

AD Ghitias are fittious

60 ‘Tun Prisos Associanion oP New Yous

Duan Ox*
T have erage fo hae your gern telngings sent to
wis gla to be of soryze to yous Pleas deep me lin, whan hey
dave been delivered.»
Youre truly,
Hamme Soman

“Daan Mx Somwast2":

ine fo expat my since tanh for the Delp you
rendered. -» T setalved theat intact pesterdny. 1 Te gave sm great
esi t co Sat at mye hae not ben kan wit the ota

‘Very truly yours,
OKs

Numerous clients, grateful for our servions, seek to make some

reimbursement and cheerfully do so—to whatever degree they can

manage. Almost invariably they never fail to express the warm

wish ‘to help the next fellow"” even as they themselves had been

san is constantly deluged with endless pleas and requests
—and for the most part, truly worthy of eonsideration. Our efforts
‘are well rewarded when we know they have not been in vain, Verbal
and written expressions of thanks are always gratefully accepted
however the greatest measure of satisfaction is derived from let-
ters such as the following, whieh, we feel, speak clearly for them
selves...

“Dean Mi. Sonar,

Tam enclosing a money order in the amount of $1500, This is in

Sincerely yours,

“Dean Sem
1 jst win could personaly ive yo he money. yo loaned ma
whet Tw in nol, Tan tore thee you enough fo lpg so oot
"or giving te the strength to contnin tn my elo that thor ar 8
iit of rll refute people St waking aru s for everything.”
‘Sincerely yours,
ROMs

ota, Semwannes

T would liko to express my gratitude of thanks for loaning me the

rponey fm onder for me to got employment, Thenke you trom the deepest

Sincerely yours,

All initiate ere Aottious,

‘Tux Assooumox’s Bureaus or Service 61

‘The above represent only a tiny fraction of the vast army who
have kept their faith. It is for these and the countless number who
will follow their fine example that we feel proud to exert our com-
bined efforts and shall eontinue to do so,

Statistics for Employment and Relief Bureau for 1959

Office interviews 2am
‘Telephone consultations® 1,162
Different persons interviewed 2133

‘Men released from

‘New York City penal institntions 1329

Men released from New York State penal institutions. '599
‘Men released from out-of-state penal institutions 56
Men released on probation 93
Relatives of prisoners concerning employment 5

Meals provided 324

Night lodgings provided 4514

Employment contacts made by personal visits (approx.) '500

‘Men placed in employment. 502

Men given eash relief 1,256

‘Total amount spent solely for relief (includes cash, meals
and lodgings) ** $9,871.80

“Tneindes tients, parole and probation oficers, agency and Snattutionsl
ela bi bs =

s* Inckades ontlayn in the sum of $2,097.66 from the Grand Strest Boye
Fund,

FAMILY SERVICE BUREAU

yx 38 2858 he Pamity Service Brean undee the diretion of Mm
Marlo Lovejoy baa remained faithful to one af the basic purpeses
of The Prison Assooiation of Now York, namely the eave of the
families of men incarcerated in loca, state and federal prisons,
This has been achieved by providing financial assistance, Zriendly
and wise counsel and guidasce tothe mothers and wives of inmates
oF correctional institutions
Though there are innumerable family service agensies in New
York City, there ate extremely few that work exclusively With
the families where the breadwinner i inearecrated. Despite the
fact, that, public assintane agencies carry’ the major. financial
Burden of ling range east for the familie, an agency eh
1 Prison Aatociation and its Family Service Bureau is equipped
by more than a half a century of understanding and experience
6 apply ite to the unusual problems resulting from the heed
of a family being in prison
y Years of The Prison Association’ existence there
in prison and this hat as a senait been ‘one of out unceasing
interests. There is no. question that the impact of arrest and
inprisoument is too severe om the wives aad children in man
instances to moet without wise and sympathetic ond rationalised

guidance, The man in prison deprived of one of the most precious

things of life, namely freedom, is nevertheless certain, good oF
bad as it might be, of fo0d, shelter and clothing. ‘These essentials,
for every day living are not in many instances guaranteed to his
family. ‘The plight of those wives and children is unbelieveably
dificult. “The youngsters especially are of great concern to our
Family Serviee Bureau to the end that they not only be given
the needs for duily living but be surrounded with wholesomences
and decency in the home and community so that they can be
protected from the possibility of delinquency. Then there is the
added observation that there is some justice in saving these fami-
Ties from the ridicule and seorn of unkind people who take ad-
vantage of the fact that the father is in prison

‘The first important requirement is that a shocked wife or an
elderly mother will mest with someone who understands her pre-
Gicament and ean give her immediate material assistance where
required, and guide her to the extent that she can adjust in her
new and difficult situation. This problem is sometimes complicated
by the hostility of other members of the faimly, either related to
the man in prison or to the wife herself. Tt is amazing to note
hhow in some instances in-laws in a feeling of bitterness and shame

82)

Fanwr Smavion Bureau 6s

are quite willing to remove themselves from any identity with
their strieken relatives. Many times these unfortunate wives begin
to feel themselves a part of an ostracized group and will say to
our worker that it is so helpful to them to be able to sit down and
talk with someone who understands their postion.

‘The Family Service Burcau, in the respect of financial needs,
is a shock absorber during the period when the impact of arrest
and imprisonment is first experienced. ‘These situations are of a
kind that require the immediate payment of rent, gas, food, ele.
tricity hills, insurance and frequently emergency medical aid.
Te should be kept in mind that most of the families that. come to
our attention are in the group of small wage earners and rarely,
if over, are they able to live except on a day-by-day basis, ‘There
are of course some exceptions to this but they are rare. ‘These
Zamilies are in the group also that frequently require a kind of
steadying hand even under ordinary eireumstaness.

By summertime our Family Service Bureau has worked for
months making reservations for eamp to get the mothers and
children off our sweltering strocts. The wives of prisoners ire
quently tell us thet it is the only vacation that they or their
children have ever had away from their congested slam areas.
One little boy was known to say, “I wish we could live like that
all the time.””

‘At Christmas time the families are given money for Xmas
dinner and toys for the children. The wives of prisoners fre-
quently tell us afterwards, that they spent the money on clothes
and shoes as the children could not have gone back to school with-
‘out these items.

"To those friends of the Association who are particularly inter-
ested in the families, and here again the children, of men

3, we take this oecasion to record our deep thanks and appre-
ciation on behalf of those who have benefted through their interest
through the year.

‘The following statistical report falls short to reveal the real
benefit of the warmth of understanding and feeling exercised by.
those of our staf who come in daily contact with many of these
people in the office and in the Lome, and who meet with Social
Serviee Department of Hospitals, institutions and schools in their
behalf.

‘Tar Prsow Associamox oF New Your

Statistics for Family Service Bureau for 1959
amilies in active eatogory January 1, 1959

New cases avcented

Cases reopened

‘Total number of cases during year
Cases closed

Familios in active category December 31, 1959 68
‘Total amount of financial assistance 312,741.70
Families provided with Christmas dinner and toys

(total of 215 persons) 66
Children and mothers sent to summer camps a
Office interviews, home and ageney visits aggre

soc Ti doe not include tanamersbe tetphone contac with fami, agen

LEGISLATIVE ACTIVITIES — 1959

It bas been typical of the Association through its long existence
and as a part of one of the purposes for which it was established,
to eoneern itself with bills presented at the annual session of the
Legislature. Through @ paid legislative service we received copies
of all bills embracing our fleld of interest. Following study, our
support or opposition is registered with individual members of
the Legislature and with the chairmen of various committees
‘Where required, the support in the direction of approval or oppo”
sition is sought rom other bodies and branches of the state gov-
ernment,

‘When bills are passed and sent to the Governor we continue
with written approval or protest and it, has been our experience
that this is a vital time for hopeful action.

During the 1959 session there were 3,777 bills introduced in the
Senate and 4438 in the Assembly, making for a total of &215.
OF this number, 515 Senate bills were sent to the Governor and
687 Asiembly bills, making for @ total of 1,202 presented for the
Governor's consideration and final action. A few of these bills
were sent to the Governor prior to adjournment of the

Assembly making for a total of 880 new
laws for the year 1959, On the other hand, he vetoed 113 Senate
bills and 209° Assembly bills, making for a total of 322 which did
not meet with the neeessary approval of the Executive.

‘The Prison Association of New York gave particular attention
to 92 bills of which we approved 41 and opposed 51. OF the total
approved, 12 were passed and 29 failed to meet with the approval
of the Legislature or the Governor. Regarding the 51 bills opposed,
fone was passed and 90 failed of passage. It should be noted that
‘we had more success this year in our opposition to bills than with
those which we thought: Would be suitable for enactment into law.

FEW CRIME BILLS

Taking into consideration the total of 8,215 bills introduced
‘and considering further the number of bills in the field of eorree-
tion that held our attention, there were, on the whole, compara.
tively fow Dills introduced relating to the subject of rime sindy
and treatment. ‘Those bills introduced fell into various categories
embracing proposed amendments to penal Taws, Code of Procedure,
the onganization and administration of probation and parole, cor.
reetional organizations and administration, court reform on a

05)

state-wide basis, numerous bills relating to the treatment of youth-
Zul offenders, the Gnal action in this respect being again postponed
for another year the operation of the Youth Court, Act. The over
all picture lays emphasis on the attention that the Legislature gave
to the Budget bill 2nd the Court reorganization proposed consti-
tutional amendment. ‘The Supplemental Appropriation Bill con-
tained mimerous provisions whidl

sh held the attention of the Asso-
Giation such as the decision to not enlarge the facilities at the
‘Wallkill Stato prison, whieh we consider most wise. Tho providing
‘of $54,000.00 for the services and expenses for foster homes and
hostels for the care of certain minors on probation or parole is a
forward-looking move. The authorizing of $400,000.00 for the con-
struction of two new eottages in the roformatory part of Westfield
State Farm; this provision is long overdac and we have been
among the many who have eriticized the continued use of the
antiquated cottages with their high potential fire hazard. We con-
sidered it wise to delay the establishment of additional prison
camps until the two existing ones could be further expanded
and streagthenod to demonstrate their value.

Generally speaking, we were pleased to again participate in
Gefeating the perennial brash bill having as its purpose the cur-
‘ailment of a prison industry. We aided in the defeat of a bill
fas an opening wedge to house children in jails upstate. We again
‘opposed the appointment of a Probation Dizector in Suffolk County
without recourse to Civil Service procedures. The bill having this
arpose was vetoed last year. While it was before the Governor
this year, we continued ‘our oppesition but the bill was finally
signed because as the Governor pointed out, a Court decision given
4 few days before the end of this thirty-day period in which the
Governor was obliged to dispose of all pending bills, gave assuz-
ance that the Dizeetor of Probation would need to meet Civil
Sorvieo requirements.

Again we opposed—and succosstully—a bill intended to restrict
promotion examinations to the uniformed foree of the State De-
partment of Correction,

‘With the above general summary we now proceed with a detailed
Listing of those bills whieh held our interest during the 1959 ses.
sion including first those approved and then those opposed, with
a notation as to the final disposition either by the Legislature or

Approved

Pusu Devexnans, Senate Int. 150, Pr. 1057. Amends the
county law, in relation to the appointment of public defenders in
cities having a population of one million or more and eertain
counties. Approved in prinoiple, Failed of passage.

Lortanive Acrivirtrs — 1959 or

Fosren Hours. Senate Int, 189, Pr. 189. Amends the correction
law, in relation to providing for foster homes or hostels to care
for eertain minors on probation or parole, to inelnde minors under
the eontinuing jurisdiction of the eourt and parolees from privately
maintained custodial institations and state training schools.
Approved in principle, Failed of passage.

‘Avout Remasuranon Vactary, Senate Int. 286, Pr. 286,
Assombly Int. 887, Pr. 887. Amends the correction law and the
conservation law, in rélation to ereating an adult, rehabilitation
facility consisting of conservation eamps for males over the age
‘of twenty-one. Approved in principle, Failed of passage.

Pnowanion Soxonansuus, Senate Int, 90, Pr. 490, Assembly
Int. 712, Pr. 713, Amends the correction law, with respect to the
‘establishment of probation scholarships, so es to remove the Timit
fon the amount thereof, Approved in principle. Failed of passage.

Lars Tomssonnert. Sonate Int. 641, Pr. 644, Amends the cor
rection law, in relation to parole of prisoners senteneed to life
imprisonment, Approved in principle. Pailed of passage.

‘Compensarios, Canrain Paisowens, Senate Int. 840, Pr. 840,
Assembly Int, 1648, Pr. 1049. Amends the penal law, in relation
to amount paid by the state for imprisonment in a penitentiary
fof persons convicted of a felony. Approved. Failed of passage.

Usiwonus, Connzcrton Ovpioua. Senate Int. 856, Pr. 856, Assem-
bly Int. 1285, Pr. 1286, Amends tho correction law, in relation t0
uniform allowance 10 certain employees of the correction depart-
ment, Approved in principle. Failed of passage.

Catounarixe Taxus Inrrasoxnens. Sonate Int. 971, Pr. 971,
Assembly Int, 1306, Pr. 1206. Amends the penal law, in relation
to calculating terms of imprisonment. Chapter 328.

Cunmmvat, Inentrmroation. Senate Int, 972, Pr. 4427. Amends
the code of criminal procedure and the correction Jaw, in relation
to criminal identification, records and statistics. Chapter 647.

Ustromss, Connsoviox Orricer. Senate Tnt. 1078, Pr. 1096.
Amends the correction law, in relation to uniform allowance to
‘ertain employees of the correction department. Approved in
principle. Failed of passage.

Foster Hoxes on Hosrmzs. Sonate Int, 1940, Pr. 1579, Assembly
Int. 979, Pr. 979, Amends the correction law, in relation to pro-
viding for foster homes or hostels to eare for certain minors under
probation or parole, to include minors under the continuing juris-
diction of the court and parolees from privately maintained ous-
todial institutions and state training schools. approved én principle.
Failed of passage.

Catomnannea Teams oP Intrmisonatewr, Senate Int. 1449, Pr
1491, Assembly Int, 1951, Pr. 1968. Amends the penal code, in

68 ‘Tux Puisox Assoctation oF New Yous

relation to ealeulating terms of imprisonment in certain cases
Approved in principle. Failed of passage

Prosarrow Reronts Cowmmenniat. Senate Int. 1454, Pr. 1496.
Amends the code of eriminal procedure, in relation to making.
reports of probation officers confidential and privileged. Failed of
passage,

Sneeuirmp Srars-Wine Courn Systm. Senate Int. 1650, Pr.
4319. Proposes a new Article VI to the Constitution in relation
to the establishment of a simplified state-wide court system and
the repeal of the Article VI of the Constitution presently in foree.
‘The effect of this bill was of major concern during the legislative
session as was also true of other proposals during the 1958 session.
Likewise there were numerous court-reform bills introduced during
the 1959 session but the bill identified numerically above was finally
passed and submitted to the Scerctary of State for consideration
again during the 1961 Session.

Snupnarten Srane-Wipe Court System. Senate Int, 1757, Pr.
2650, Proposed amendments to Article VI of the Constitution in
relation to the simplification of the court system and the adminis.
tration of the courts, This bill introduced early in the session and
sponsored by the state judicial eongerence we considered preferable
‘to bill on the same subject listed immediately above as Senate Tnt
1650, Pr. 4319 and as shown again above, was finally passed. How.
ever, after eousiderable conference and diseussion in various areas,
Senate Int. 1757, Pr. 2650 went down in defeat.

Retease raow Iuesoxwex. Senate Int. 1998, Pr. 2062, As
sembly Int, 2731, Pr. 2768, Amends the correction lay, in relation
to deeming date of release from imprisonment to be preceding
Friday when it falls on Saturday or Sunday. Chapter 286,

‘Taansrens, Marrewan Suara Hosprnan, Senate Int, 2391, Pr.
2462, Assembly Int. 3114, Pr. 3165. Amends the correction law,

in relation to transfer of patients from the Mattewan state hospit
Chapter 264

LaceNsn, Wonk Canes. Senate Int, 2813, Pr. 2947, Assembly Int.
9952, Pr. 4077. Amends the conservation law, to exempt inmates
of conservation work eamps trom requirement of fishing Heense
while fishing on stata conservation lands. Chapter 389.

Consacts, ScHo0L8 oF Sociss Wonk. Senate Int, 2914, Pr.
2948, Assembly Pr. 3845, Pr. 3990. Amends the correction law, in.
elation to contracts with schools of social work. Approved in
principle. Failed of passage.

Arronimenys, InsrvruniowaL ExtrLovans, Senate Int, 2890, Pr.
2054, Assembly Int. 3847, Pr, 3992. Amends the eorrcetion lam,

Leasnarrve Aorivims — 1959 e

in relation to the appointment of institutional employees and re-
pealing certain provisions of such law relating thereto. Failed of
passage.

Cuoranse, Paisoxens, Senate Inf. 2978, Pr. $138. ‘To amend
the correction law, in relation to the cost of clothing furnished
convicted felon upon discharge trom eounty penitentiary which
Shust be reimbursed by the state. Failed of passage.

Sauanr Ixcnzase, Stare Ewvcovess. Senate Int, $696, Pr. 4908,
Assembly Int. 4351, Pr. 5023. Amaends the civil service lav, the
‘ucation lav, the exaestive law, the correction law, and the mil
tary law, in relation to salary increases for certain state officers
tnd employees. Chapter 200.

Tesiornt Propatiow Facuuiry vor Yourm. Senate Int. 3699, Pr.
4812, Assembly Tat, 4858, Pr, 4986. Amends the code of eriminal
procednre, in relation to conditions of probation of eertain minors,
nd to amend the correction law, in relation to establishing in the
department of correction a resident probation facility for youth.
‘Approved in principle. Failed of passage.

Manvnsxance, Panos Viouazons. Senate Int, 3709, Pr. 4332.
[Amends the correction Taw, in relation to reimbursement by the
state to localities of expenses for maintenance of parote violators
in temporary custody. Failed of passage.

‘Temporary Sara Cosnemssox. Senate Int, 3744, Pr. 4365.
Creates a temporary state commission to study the government,
operations of the elty of New York and making an appropriation
therefor. Chaptor 308

Sorrusaumran Buoavr. Senate Int. 3770, Pr. 4492, Assembly
Int. 4414, Pr. 5099, Amends chapters sixty-five, sixty-six, sixty
seven, sixty-eight and ono hundred seven of the laws of nineteen
iiundfed fifty-nine, in relation £0 making appropriations for the
support of goverament. Chapter 196

Bxrenpixe Paxous Surmxvisox, Sex Ovemsns. Senate Int
106, Pr. 106, Assembly Tnt, 84, Br. 64. Amends the correction
lay, in relation to extending and providing for the continuation of
parole supervision over persons hereafter convicted of sex offenses
Involving children, Approved in principle. Failed of passage

Croruima ano Cane or Parsoscns. Assembly Int, 488, Pr. 488.
‘Amends the penal law and the correetion law, in relation to state
reimbursement of expenses by counties and ‘cities in conneetion
‘with the maintenance, clothing, transportation and eare of felons
{nd misdemeanants oF lesser offenders. Pailed of passage

Baxnems or Rrxannsraviox. Assembly Int. 497, Pr. 497.
“Amends the education law, in relation to permitting any inmate
‘af a correstional or penal institution to share in the benefits of
rehabilitation. Failed of passage.

70 ‘Tam Paisox Association or New Your

‘Temumwanion ov Panowx. Assembly Int. 613, Pr. 513. Amends
the correction law, in relation to period and termination of parole.
Approved in principle. Failed of passage

Pubuic Dersnpens. Assembly Int. 757, Pr. 757, Crentes a tem=
porary state commission to organize and hold state-wide and
regional conferences on the advisability and need of establishing a
public defender system througkont the state, to make all arrange
ments for and work in eooperation with such conferences, to make
a report of the findings, conclusions and recommendations of such
conferences, and making an appropriation for the expenses of the
commission and the conferences. Approved in principle. Failed
of passage,

Pusu Derenpens. Ascombly Int. 1368, Pr. 1369, Senate Int,
1836, Pr. 1896. Amends the county law, in relation to the election
of public defenders. Approved in principle. Failed of passage.

Sncunry Prasonnet. Assembly Int. 2986, Pr. 2419. Amends
‘the correction law, in relation to the titles of certain security per-
sonnel. Approved. Failed of pascage.

Panoz, Coxviorions o Ronpney. Assembly Int, 2963, Pr. 3010.
Amends the penal law, in relation to the eligibility for parole of
persons convicted of robbery in the second degree as second and
third offenders. Approved. Failed of passage.

Conauissiox To Stuvy Sexascrs. Assembly Int, 3514, Pr. 9621.
Creates & temporary state commission t determine whether oF
not penalties provided for violating criminal laws provide for too
‘much discretion with rexard to the sentence that may be imposed,
make recommendations in connection therewith and making an
appropriation therefor. Approued in principle, Failed of passage

Resraicrmon or Euvtoraenn, Assembly Int. 3647, Pr. 4785,
Senate Int. 1593, Pr. 2923, Amends the aleoholic beverage control
law, in relation to the restrictions upon the employment of certain
persons by licensees under such lave. Approved in principle. Failed
of passage

Countsssion 10 Ruvise, Srepuiry Pear Law, Assembly Int
3800, Pr. 3945. Oreates @ temporary state commission to revise,
simplify, consolidate and recodify the penal law, the code of erin.
inal procedure and all other eriminal laws of the state, and making
an appropriation’ for its expenses. Approved in principle, Fai
of passage,

Hosrey axp Fosmr Hox Cans, Mixor Pxowariowens axp
Panourrs. Assembly Int. 3846, Pr. 3991. Senate Int, 2519, Pr.
2953. Amends the correction law, to transfer responsibility for
supervision of hostel and foster home eare for minor probationers
and parolees irom the division of youth to the division of probation.
Chapter 413.

Lworsnanive Acrivirres — 1959 a

Moxnys Par 10 Prisoxums, Assembly Int, 3848, Pr. $998.
Sonate Int. 2818, Pr. 2952. Amends the correction law, with respect
40 moneys paid to prisoners discharged from Dannemora state
hospital after expiration of terms. Chapter 854,

Occurationan Taxnapy. Assembly Int, 3849, Pr. 3994. Senate
Int, 2816, Pr. 2950, Amends the correction law, the state inane
Jaw, and the general business law, in relation to authorizing the sale
of products of ocvupational therapy made in penal or correctional
Institutions, Chapter 881,

Promanios, Czeraix Mixous. Assembly Int. 4358, Pr. 4984.
Sonate Int. 3699, Pr. 4312, Amends the code of criminal procedure,
jn relation to conditions of probation of certain minors, and to
amend the correction law, in relation to establishing in the depart-
ment of correction a resident probation facility for youth. Ap-
proved in principle, Pailed of passage.

Opposed

Carcunarmea Teams or Tuvnisoxumnn. Senate Int. 53, Pr. 53.
Assembly Int. 41, Pr. 41. To amend the penal law, in relation to
calculating terms of imprisonment following a vacated sentence,
Failed of passage.

Cory on Tpstimoxy — Crmrary Non-Carimat, Casi. Senate Int
184, Pr. 184. To amend the code of criminal procedure, in relation
to furnishing daily eopy of the testimony and the employment of
experts as witnesses in certain non-capital eases. Failed of passage.

Guano Jury Mixvres, Senate Int. 198, Pr. 198. Assembly Int
641, Pr. 641, To amend the eode of eriminal procedure, in relation
‘to availability of grand jury minutes to defense attorney. Failed
of passage,

Sumuussiox, Mepicat, Rvenor, Centar Cases, Sonate Int. 224,
Pr, 224, To amend the correetion law, in relation to giving prison-
ers serving indeterminate life sentences an opportanity to submit
medical evidence to the parole hoard, in certain eases. Failed of
passage.

Pnonarion Diszcror. Senate Int, 291, Pr. 291. To amend the
code of criminal provedure in relation to probation in eourts of
Suffolk county and certain counties, Chapter 791. We opposed the
same bill in 1958 and again in 1959 because no specific provision
twas made for the seleetion of a Director of Probation through Civil
Servies proceduse, ‘The bill was vetoed in 1958, In 1959, Governor
Rockefeller approved the bill supported by « late court decision to
the effect that Civil Service procedure for the Director and other
positions would be required.

Duvistos oF Reseanc. Senate Int, 22, Pr, $22. Assembly Int
325, Pr, 325. To amend the eorreetion lave, with relation to the
Tunetions of the division of research. Failed of passage.

2 ‘Tue Pusow Association of New York

Compuxsanion, Pasunawaiany Guano, Senate Int, 422, Pr. 422.
‘To amend the correction law, in relation to providing for the com.
pensation of penitentiary guards and correction ofleers employed
by the civil divisions of the state. While it is recognized tant
adequate compensation is desirable to achieve, this bill was opposed
fn the grounds that it was an item for local authorities to decide.
Failed of passage

Fuuony Munbsn, Senate Int. 789, Pr. 789. Assembly Int. 66,
Pr. 66. To amend the penal lav, in relation to recommendation by
jury. Under the present lay, a recommendation by a jury that life
Imprisonment be imposed instead of the death penalty may be fol-
Towed by the court. In the proposed bill discretionary action by
the court would be removed and instead the court woul be obliged
‘ww adhere t0 the recommendation of the juny. Pailed of passe

Yours Couur Aer. Sonate Int. 885, Pr. 835. Assembly Int. 1135,
Pr. 1116, To repeal chapter eight hundred thirey-eight of the laws
of nineteen bondred Aéty-sis, constituting the youth court ac.
Peiled of passage

Crmaars’s Court Aor, Senate Int. 836, Pr. 896, ‘To repeat
chapter eight hundred thirty-nine of the laws of nineteen hundred
Steyn, ented An at to ainend the code of eriminal procedure,
the children’s court ael of the state of New York, the New York
city eriminal courts aet, the education lave, the penal aw, the public
eth ny andthe iia Ii lation t eon fog provisions
of these laws to the provisions of the youth coust act" Failed of
passage

Annvesry, Piast Orvexoxes. Senate Int, 889, Pr. 939, ‘To amend
the civil rights law, in relation 0 the amnesty of frst offenders
Failed of passage

Possession op Haxpcures. Senate Int, 904, Pr. 901, Assembly
Int. 988, Pr. 959. To amend the penal lav, in relation to prohibit.
ing the manufacture, sale, possession and use of handeufts by wt
futhorized persons. Failed of passage

Resmuicrio, Promonion Bxaxaxarions, Senate Int, 1098, Pr
1075, Assembly Int. 1387, Pr. 1358. To amend the correction law
‘with respect to the creation of @ uniformed foree of the departizent
of correction and rules governiug. eligibility for promotion exam-
inations. Failed of passage,

Snepuirtep Snaxe-Wine Covne Svermae. Senate Int. 1242, Pr.
1896, Assembly Int. 2111, Pr. 2129. Proposes a uew article six of
fhe constitution, in relation to the establishment of @ simplified
sate-ride court system, and repeal of article six of the eonstituion
presently in force. Paited of passage

Panoun—Cmarary Prisoxsns, Senate Int. 1179, Pr. 1199, As
sembly Int, 2208, Pr. 2226. Amends the eorreetion law, in rela-
tion to prisoners subject 0 parule. Failed of paseage

Luostarive Acmvrms — 1959 B

Rusracions —Puowomow Bxamivariona. Sonate Int. 1242,

Assembly Int. 1502, Pr. 1508. Amends the correction
law, with respect to the ereation of a uniformed force in the depart-
ment of correction, and eligibility for promotion examinations
Failed of passage.

Carcunarisa Teens oF Incrmmoxwman, Senate Int. 53, Pr, 53,
Senate Int, 2740, Pr. 2861, Senate Int. 1273, Pr, 1299, "These three
Dills relating to the same subject proposed an amendment to the
penal law in relation to calculating terms of imprisonment follow.
ing a vacated sentence, AU throe failed of pascage

Civ, Senvice, County Jai. Barszovees, Senate Int, 1356, Pr
1395, Assembly Int. 3485, Pr. 3592. To amend the county Taw, in
relation to providing civil service status for eounty jail employees
{in counties ontside the city of New York. We again opposed this
legislation boeause of its carte blanche provisions whereby present
incumbents would be possibly retained, Failed of passage,

MamTsxaNce Fon Cerra Comucniox Prasoxmut, Senate Int
4419, Pr. 1461, Assembly Int. 1953, Pr. 1970. Amends the correc:
tion law, with respect to maintenance for eertain officers. ‘The pur-
pose of this bill was to provide the principal keeper or assistant
superintendent. maintenance salary to some extent similar to that
now allowed wardens. Failed of passage.

Reruny or Puorocsarus axp Frsorneancrs, Senate Int, 1511,

1 1558, Amends the code of eriminal procedure, in relation £0

fe return of photographs and fingerprints after acquittal. Faited
+ passage.

Powsn o» Macisraeres Bart, Ozetaix Cases, Senate Int, 1528,

*r, 1570, Assembly Int. 1256, Pr. 1257. To amend the code of
sriminal ‘procedure, in relation to the power of magistrates to
sdmit to beil upon arraignment before him of a defendant charged
With erime, Failed of passage.

Baustr-Maxme 1 Prisos, Senate Int. 1567, Pr. 1609, Assembly
Int. 676, Pr. 676. Amends the correction law, in relation to brash-
‘making.’ This perennial bill is intended to curtail brush-making
in state prisons. Failed of passage.

Fanuuy Covrr. Senate Int. 1711, Pr, 2490, Assembly Int. 2250,
Pr. 3402. Proposing an amendment to section eighteen of article
six of the constitution, in relation to the establishment of a family
court, proseribing its jurisdiction, and providing for the diseon-

nuance of existing ehildren's courts and eouris of domestic rela

ns, Failed of passage.

‘Warver, TRIAL ay Juny. Senate Int, 2089, Pr. 2158, Assembly
Int. 359, Br. 859, Amends the code of criminal procedure, in rela
tion to Waiver of trial by jury. Failed of passage.

“ ‘Tux Parsoy Association of New Youu

Puss, Founra Coxvioniox of Fexoxy. Senate Int. 2091,
Pr. 2160, Assembly Int. 557, Pr. 557. To amend the penal Tavr, in
relation to punishment for fourih conviction of felony. Pailed of
passage,

Sewraxce, Moun Coxvicrions. Senate Int, 2098, Pr. 2162,
Assembly Int. 554, Pr. 554. Amends the penal law, in relation to
‘sentence on two or more convietions or two or more offenses. Failed:
of passage.

Panouz, Lire Prisontns, Senate Int, 2922, Pr, 2298, Assembly
Int, 2500, Pr. 2537. Amends the correction law, in reletion to the
parole of prisoners sentenced to life imprisonment, Failed of pas
sage.

Smuruinen Stazp-Wior Coven Systest, Senate Int. 2389, Pr.
2460, Assembly Int. 3155, Pr. 3206. Proposing a new article six
of the constitution, in relation to the establishment of a reorganized,
‘mplified and integrated state-wide court system, and repealing
existing article six of the constitution, relating to the present judi-
cial system of the state, Failed of passage.

Pouicr Onaaxwarion, SurroLx County. Senate Int. 2490, Pr.
4076, Assembly Int, 3103, Pr. $707, To amend the Snffolk county
charter, in relation to the police organization in such county and
the finances thereof, Failed of passage,

Viowaniox or Panoue, Senate Int. 2970, Pr, 3130, Assembly Int
, Pr. 2568, ‘To amend the correction law, in relation to viola
tion of parole. Pailed of passage.
Concresanion of Bax Bons. Senate Int. 2008, Pr. $188, As
sembly Int. 9673, Pr. 9818, ‘To amend the code of criminal proce

dure, in relation wo premiums or compensation for bail bonds.
Failed of passage

Txraapimios, Conran Cincuasraxces. Senate Int, 3079, Pr.
9256, Assembly Tat. 378, Pr. 3923. To amend the code of criminal
procedure, to specify state department responsible for cost of extra-
ition under certain cireumstances. Pailed of passage,

Consouiparion, Caarars Counts. Senate Int. 3248, Pr. 4152.
‘To provide for the consolidation of the court of special sessions
and the magistrates’ courts of the city of New York. Failed of
Passage.

Rncomursnatios wv Jury. Assembly Int, 46, Pr, 66, Senate
Int, 789, Pr. 789. To amend the penal law, in relation to recom:
mendation by jury in felony murder eases, ‘The bill proposed re.
moving the diseretionary acceptance of a jury recommendation by

the court thereby making the reeoramendation final. Failed of pas-
ange,

TLrorstanive Activites — 1959 %

Buract or Provation. Assembly Int, 102, Pr, 102, To amend
the correction law, in rélation to breach of probation. Failed of
passage.

Panoue, Larn Pursonen. Assombiy Int. 706, Pr. 706. To amend
the correction law, in relation to parole of prisoners sentenced to
life imprisonment. Failed of passage.

Pasour, Sex, Orrexsss. Assembly Int. 809, Pr. 809. To ameud
the correction law, in relation to denying parole to persons who
have been convicted three times or more of sex offenses. Failed of
passage.

Gnuore Towann Senrexcn, Assembly Int, 1518, Pr, 1519, Amends
section 2193, Penal Law, to provide that where judgment of eonvic-
tion is vacated and sentence is then imposed for lesser term than

‘al term, time spent under original sentence over subsequent
sentence shall be dedneted from and credited to term of any other
sentenee which person may be thea curently serving with respect
to any other convietion. Failed of passage.

Puonatiox, Lure Prisowens. Assembly Int. 1585, Pr. 1541. To
amend the penal law, in relation to probation of persons sentenced
to life imprisonment. Failed of passage.

Crrunums —Praces or Devention. Assembly Int. 1599, Pr.
‘To amend the children’s court act, in relation to place of
jon, Failed of passage.

Rroncasizarros— Suave JUDICIARY. Assembly Int. 1827, Pr.

4841, Senate Int. 1266, Pr. 1289. Proposing the repeal of article
ix of the constitution relating to the judiciary of the state of
New York and substituting therefor a new article six to provide
for the reorganization thereof. Failed of passage.

Panour, Cenrans Prisonmes. Assembly Int. 2043, Pr, 2001. To
‘smeud the correction law, in relation to prisoners subject to parole.
Pailed of passage.

Snuprivum Seare-Wipe Cover Sverms. Assembly Int, 2111,
Pr, 2120, Senate Int. 1142, Pr. 1296. Proposing a new article six
of the constitution, in relation to the establishment of a simplified
State-wide court system, and repeal of the article six of the consti-
tution presently in force, Failed of passage

Retumn, Proroamarus axp Fivczareirs. Assembly Int. 2118,
Pr, 4778, "To amend the code of criminel provedare, in relation to
the return of photographs and fingerprints after acquittal, Vetoed.

Faster Court. Assembly Int. 2249, Pr. 3400, Senate Int. 1712,
Pr, 2491. Proposing an amendment to section vighteen of article
six of the constitution, in rolation to the establishment of a family
court, preseribing its jurisdietion, and providing for the diseon-
finance of existing children's courts and courts of domestic rela-
tons, Pailed of passage.

16 ‘Tue Prison Association of New You,

Paxour, Lure Paisonens. Assembly Int, 2863, Pr. 4417, To amend
the correction law, in relation to prisoners subject to parole. Failed
of passage.

Reatsreanion, Convicren Prtoxs, Assembly Int, 2881, Pr, 2098.
‘To amend the penal lave, in relation to registration of convicted
felons. Failed of passage.

Cuassipicanion of Prisoners, Assembly Int. $936, Pr. 4081
To amend the correction law, im relation to elassifeation of pris
oners. While wo strongly advoeate classification of prisoners, we
do not feel that it is scientifically correct to classify and treat pris-
‘oners on the basis of the number of their offenses. This bill again
this year provides for the segregation of first offenders whieh is
not sound in principle or practice. So-called “first offenders”
‘means 100 often first time caught and convieted, Prisoners in this
lass also pose, from time to time, more difficult problems, Failed
of passage.

Resrrrotion, Cearaiw Cases, Assembly Int. 4161, Pr. 4363,
To amend the’ penal law, in relation to return of defendant for

further disposition by the court in eases where the defendant is in
custody and desires to make restitution. Failed of passage.

CORRECTIONAL PROGRESS IN NEW YORK

It was @ gratifying experience during 1959 to continue our
interest and support of the earnost efforts made by Commissioner
Paul D. MeGinnis of the New York State Department of Corree-
tion and Commissioner Anna M. Kross of the New York City
Department of Correction to improve the administration and pro-
grams of their respective departments and to inereuse their ef
tieney in harmony with the purposes for which they were estab-
lished, to wit, the protection of the public and the rehabilitation
of offenders.

Fortunate it is that both departments have these conscientious
and devoted leaders. ‘The result has been markedly notable.

We aze pleased to record below first, some of the progressive
action in the New York State Department of Correction and
secondly, beginning on page 80, highlights of some activities in
the New York City Department of Correction.

NEW YORK STATE DEPARTMENT OF CORRECTION
New Release Procedures

Barly in 1959 the Department of Correction in cooperation with
the Division of Parole initiated a program to expedite the release
of prisoners generally and to emphasize the release of thos

wrving on an ‘‘open date or eatlier’” status.

‘The Division of Parole amended certain provisions of their
rules and took the important step that vertain selected inmates
could be released without employment opportunities. As «coopera
tive effort they also initiated a progr
the placement opportunities for
men! of the Department of Labor was brought in to assist the
placement efforts of the Division of Parole and a more vigorous
program in this area was initiated, Certain barriers had existed
over the years with the employment of former inmates in eonnec-
tion with the licensing of bathers and besuticigns and rules have
recently been approved by the Department of State, the Division
of Parole and the Department of Correction whereby certain
selected inmates who have recaived this type of training will be
granted licenses by the Department of State. They are also work
ing with the Aleoholie Beverage Control Board for the purpose of
releasing some of the old-time regulations which prohibit the em-
ployment of former inmates on premises where alcoholie beverages

xe sold. or dispensed. ‘They hope to provide a more realistic pro-
ram which will enable somo inmates to be employed in certain
categories where aleoholic beverages are not actually handled or
dispensed.

om

18 ‘Tux Prison Association of New You

A program for the employment of former inmates in certain
types of Civil Service positions in the Stato departments is also
presently being worked upon and it is hoped that a reasonable per-
centage of prisoners released may be employed in the exempt and
non-competitive classes of Civil Service in the various State depart
‘ments, A special committee was appointed by the Governor headed.
by Doctor T. Norman Hurd, Director of the Budget, and composed
of Russell G. Oswald, Chairman of the Board of Parole, Elliot
Kaplan, Chairman of the Civil Service Commission, and the Com-
‘missioner of Correction, to study into the whole matter of the
‘employment of inmates. ‘This committee will make certain reeom-
‘mendations to the Governor which wwe believe will greatly expedite
the employment of released inmates:

Study of Industrial Operations

A complete study has been made of the industrial system of the
Department of Correction by one of the outstanding prison indus:
‘rial firms in the country. This report has not been submitted
in final form but some very definite steps have been taken. 10
improve the overall industrial picture in the department. ‘The
consolidation of the woodworking shops within the department
is underway and a new metal furniture shop and soap plant have
heen approved for the Great Meadow Correctional Institution,
Budget approval for these two plants has been secured and the
department is now awaiting plans and specifications which will
in turn be submitted to the Division of Standards amd Purchases,
for bid purposes. Tt is hoped that both of these plants will be
installed early in 1960. ‘They have also diseussed the possibility
of establishing a feed mixing mill and a new road sign plant, in
one of the institutions. Tt is hoped approval will be granted to
manufacture zone paint for highways, ‘This would he a complete
now Industry: | new sewing plant was started inthe retormatory
section at Westfield State Farm with the idea of training female
inmates for placement in the garment industry. {While the plant
is comparatively new, it seums to be making good progress in this
area, ‘They feet that much progress has been made in the overall
industrial picture of the department and will continue efforts to
bring about the above outlined new program as well as the renova
ton and improvement of some equipment in the existing industries
of the department

Conservation Camps

‘The department was successful in enlarging the two Conserva

tion Camps, namely Pharsalia and Monterey. Both additions have

been completed. Most of the eqnipment has been received and

they hope by February 15 to ineresse the inmate capacity of Camp

Pharsalia from 50 to 80 and Camp Monterey freq 60 to 80, This
Sp

ConrzomiowAt, Progness 1x New Yous 9

enlargement will provide the State with a total camp eapacity that
‘vould about equal that of a third proposed camp eliminated from
the 1959-60 Budget, All of this has been done at an expenditure
of approximately $75,000 rather than a eost of approximately
{$475,000 which would have been necessary for a new camp facility.
Tt is hoped that the expansion of the two existing camps will also
reduce the per capita cost from more than $2700 to a figure of
approximately $2,000.

‘The expansion of the eamps will afford the opportunity to initiate
fa secondary program in the camp settings, At Pharsalia a new
duilding has been construeted by the inmates at practically no
cost to the State and a voeational wood-working program will be
‘established early in 1960, Pienic furniture such as benches, tables,
Signs, ele, will be manufactured for the Conservation Department
to coincide with their expanded outdoor facility program. Work
js about completed Zor the installation of a saw mill and a dipping
plant which will enable the Camps to produce and process tele-
graph poles, fence posts and similar products for State agencies.
‘AIL of this will be done as a vocational program and the depart-
ment already has the approval for a new position of Vocational
Instructor to supervise the training.

"A new procedure has been established for the placement of
inmates in the camps. This will allow the transfer of selected
inmates direetly from the Reeeption Center to the eamps. It is felt
that there are certain inmates who after being processed through
the Reception Center are ft material for the camp setting. The
previous procedure ealled for their serving a portion of their sen-
tence in one of the reformatories of the department,

Hostels

‘The department has been successful in establishing a bostel in
the City of New York for probationers and parolees. The parolee
hostel will permit the paroling of inmates who do not have proper
home surroundings to be returned to the New York area for the
purpose of job placement and more quickly returning them to
Society. ‘This program will further assist us in redueing our ‘‘open
date or earlier” eases within the institutions. Parolees at this
facility will be under the supervision of parole officers. ‘The proba-
tion hostel will provide care for persons who have been adjudicated
by the court, who should be removed from their community or
environment ‘but who have not offended seriously enough to be
‘committed to the institutions of the department. While in the
facility they will be under the supervision of probation officers
fand probation authorities from the courts will be responsible for
their supervision and subsequent placement in 2 job opportunity
and rehabilitative program in the community rather than in @
departmental institution.

‘Tue Paigon Association or New You

‘Training Programs

‘The department has established a more effective training pro
gram within the institutions and the 1950 Moran Institute st St
Lawrence University was geared along the Imes to provide a
nucleus for the training of employees in the various institutions
who would in tum set up in-service training programs within
the department. At least two of the new in-serviee training courses
as a result of the program have been staried and are presently
being carried on.

Evaluation of the Department

A complete evaluation of the department was made for the
purpose of determining the efficiency pertaining to (1) custody:
‘and security, and (2) the treatment program. From this study it
has been determined that many improvements can be made to pro-
‘vide better efficiency from custodial and safety standpoint and
even more so in the treatment areas, Due to budget limitations
it has not been possible to implement many of the proposals. How.
ever, the department has @ very good blueprint to improve both
of these categories when funds are available

Service Unit Facilities
Discussions have been held with the Division of Parole and
Budget officials about the improvement of the Service Unit facili
tice presently operating within the department and the establish-
meni of Service Units in institutions where they do not exist at
the present time. It is their feeling that the department should
have centralized eontrol of the Service Units in the various instivu-
tions to make more uniform the procedures followed. It is hoped
in the early part of 1960 that funds will be made available to carry
out these plans. 2
Crime Reporting System
‘The dep ended the establishment of @ new
cerime reporting system in the Division of Identification. Presently.
a pilot project in connection with this study is being earried on
in Schenectady, Orange and Warren connties, Tt is hoped that as
a result the new system can be inaugurated in 1960. ‘This would
greatly improve our erime reporting system and would bring more
eflcieney to thé other law enforcement agencies including police
departments, district attorney's offices and the courts,

SOME HIGHLIGHTS OF PROGRESS IN THE NEW YORK CITY
DEPARTMENT OF CORRECTION
Population
First admissions received in this department's institutional de-
tention facilities for the year 1959 totalled 111,091 (101,824 males

Conascrioxan Procenss mv New You 81

and 9,770 females). From this group there were sentenced to our
time serving institutions 28,116 persons (28,007 males and 2,109
females).

When se compare the 42,599 prisoners remanded to our deten-
tion institutions in 1945 with those recoived in 1959, namely,
{11,091, we note an increase in population of 161% without ony
commensurate increase in new housing facilites

‘Phe average daily census during 1959 was §,105 and the year’s
population high was §,622 on April 27th, the highest ever recorded
in the history of this department.

In comparing the overall inmate intake with combined custodial
and civilian personnel, we find in 1945 a ratio of 83 to 1 in contrast
to 49 to 1 in 1959, In the custodial group the ratio in 1945 was
48 to 1 as compared to the eustodial ratio of 65 to 1 im 1959,

New Legislation Passed

[A Bill sponsored by the New York City Department of Corree-
tion effecting a change in week-end discharges for prisoners, passed
by the New York State legislatare effective April Ist, was signed
by Governor Nelson A, Rockefeller on April 8, 1959

‘The amenduent to the Correction Law was in relation to deem-
ing date of release from imprisonment to be on the preceding
Friday when it falls on Saturday or Sunday.

Under the present practice of discharging sbort term inmates
from the Workhouse, Hart Tsland, it was noted that approximately
onethird of the inmates were regularly discharged on Saturdays.

While this Amendment will effect all penal institutions
throughout the State, the department looks forward to « finan-
tial saving to the City of New York in that civilian skeleton
working staffs will not be required to perform duty on Satur-
Gays, thereby reducing an accumulation of overtime.

‘Hr'will aid in reducing the cost of transporting these inmates
to the Separation Center for discharge on Saturdays.

Discharging of inmates on Friday (who would otherwise
be discharged on Saturday) will give them an opportunity
to seek and obtain the serviees of the varions welfare and other
fagencies which are usually closed on Saturdays.

Capital Budget 1960

C271 Roxens Istano—The Bronx, Alterations and New Buildings

at the Penitentiary to Establish Vocational and Industrial
‘Training Institutions.

Budget allotment for this project is $9,858,-

515,608.00 is a renewal of 1959 funds and

$2,849,000.00 is for additional funds. The 1960 Capital Budget

Provides funds for the completion of Phase I of the project

Cy ‘Tax Prison Associaton oP New Yous

(Housing) and Phase I-A for ths modernization of the Power
House Plant. Phase I for additional housing facilities will provide
accommodations for 496 prisoners in 16 units, each unit containing
31 rooms; also administration facilities, messhall facilities, kitehen
and gymnasium. Phases I and I-A are scheduled for completion
in 1960. ‘The architeetural plans for the entire job which imeludes
Phases TI and ITI are scheduled for completion by the early part
of January 1960. However, construction fands for Phases IT and
TIT (Industries, Laundry, Bakery, Diagnostic Rooms, ete.) have
Deen postponed’ until. 1962,

‘Th Department of Corzeetion takes the position that the inter-
ests of the City are not served by the postponement of a portion
of this planned construction work to a later date

The Department, looks forward to completion of this project by
1968,

C73 Instrrvrion For FEMALE. ager North Brother Island

This is one of the top priority ss of the City Planning
Commission and the Department of Carreetion, Architects. are
scheduled to be obtained in the early part of January, 1960, to
prepare necessary architectural plans. It should be noted that
construction funds are not echediled to be allocated until 1963 and,
under the most ideal conditions, depending on the Department of
Hospitals officially relinquishing North Brother Island in time for
construction, a new institution would not be ready for occupancy
by the Department of Correetion until about 1965,

C4 Avousscexr Rew anv SuetteR, Brooklyn, Vie
‘and Hopkinson Avenues, Including Site

On December 17, 1959, a Resolution was adopted by the Board
of Estimate authorizing the Budget Direetor to expend $1,050,-
000.00 for the acquisition by private purchase of the House of
Good Shepherd property in the Borough of Brooklyn,

Project C-74 has been classified as one of the top priority projects
f ty Planning Commission and the Department of Corree
tion. ‘The architeets will require approximately 18 months te make
8 comprehensive sucvey of the institutional requirements, and sub-
mitting preliminary and final plans before actual eanstrnetion ean
take place,

Construction funds will not be available until 1964 and a new
institution would not be available for occupancy by the Depart-
ment of Correction until about 1968,

€-76 Wonxnouse ov 1H Crry of New Yorx, Rikers Island, the

‘The location of this institation on Rikers Island was the result
of the combined planning and decision of the representatives of
the City Planning Commission, City Administrator's Ofice, Depart.

Conenoriowat, Proonuss 1x New Yous a3

tmnt of Pubic Work, Budget Director's Ofice and the Depart
ment of Goren,

The original tine table wt up forthe construction of hits
tim hye Ofer of the Cy Adminator wan for “completion
Sein cnmraction by Tune 1988 and sestpuney uly, Tat”

Tale cdnicaton hae given kn projet hgh rig beens
of the satan af the sbdlre condemned srutnts on Har Isand
Sid he eel need fora now nsution,Archtvotira plane ae
tow 159 completed, yt there ware no consrvtion fund aloated
"ie lado Coptal Budge Thay bids could not be obtained at
Sigaly plonsed. for aboot Maveh 1900, ‘Tve tetbacs now
2atanee the date for completion af ths inition to 296,

Tulse suchy the World's Fair for Now York City i
sated te Ge held 1864 andy from experience gained In he
S's en the last ‘World's Pair nan held rey we ea expt an
mpreclanel fecreass in oar nme ppslati
C80 Howmme Anornan, Brows Touse or Derexrion ron Bx

ES River Avenue, the rons

Due to overornlng and limited available housing are it was
ecoary Lo ill deable-decker beds nella origaly bull
oon one ect, andor prevent emerganty hws ara have
Mow'hoen ineresed te 401 Eke hooking addon of Sven soir
tetas present instituin’ yl provide for 240 addtional bed
SKedeltura plane re 90% complied and conerwtion ba wil
fe eectercd athe eevly pact of 1900 wo that somacion ny
fiat in the latter part of 200

The date set for completion of this projet i 396
PW. 130 — New Gunnat Cours Butane ano Paisox, Quvans

‘athe Capital Budget Project umber inate, these Qooes
Moun of Brenton fo Men oa Deprament of Babe Works pro
Ee'tnd ine port of the new Griinal Canvas Building group i
7 ‘The section in the rear of the court, Buildings contains the eight
(gh ory a whieh, with fs mezauine fry, makes ‘the fal
ome aiaten to a tren story bulding Te capciy of ti
Soe ula 000 cel length 4, width 6°, ght 90") ad
454 os fn’ drutone) fora tl of 4 oesupant. Im aiion
{econ vrvca sneha adminitration, eho, ing, re
owe wer abharge, vite rin, medial and deal

odin the foe of J0 day rooms (cas room nie), rary
rp chayel-“eymoadion, and suaitarm, fro outdot
Meneses ant nen foot for ostupatoal herp?

“Wile ttl enim eos of the combined Csimina Court
Bulline and ‘he Pron sc $21,650,000 the prion ot Jo eat

rate €8,000000, The etoated prison ost

Py ‘Tur Paisox Assocrarion or New York

per unit for 360 cells plus 154 in dormitories for a total of 514
capacity will average about $15,000.00 per unit
‘The date set for completion of this project is 1961

Correction Academy

‘The Correction Academy which was ofleally dedicated on July 8,
10957 is located on Rikers Island, The Academy which is utilized
for the training of new recruits in the correctional service and the
restraining of experienced personnel, has undertaken an ambitious
curriculum of reorganization. Under a newly appointed Director
of Training (formerly Director of Rehabilitation), a progam with
two-fold objectives his been set up:

(2) To bring the level of instruction and materials utilized in
‘the training of correction personnel up to the level which would.
result in eoiloge accreditation for courses offered by the Academy’
Negotiations are in an advanced stage with one of the city’s eom-
munity colleges to achieve this end, This would mean that a college
level specialization program in correctional science would be estab-
lished by the community school and that correction personnel
would be eredited with work taken at the Correction Academy in
this specialization program,

(2) An inereased focus on human relation aspects of correc
tional work rather than on mere custody orientation. This goal
hhas been established with the realization af the importance of the
correction officer as @ leader and supervisor of disturbed inmates
rather than merely as an individual to count and lock in numbers
of men.

‘The In-Service Training Course instituted for those correc
tion officers who had been employed for a minimum of three
years was started on February 8, 1958, Since that time, 579
feustodial officers (520 Male and 50 Female) have completed
40 howe training program, During 1959, 285 custodial em-
ployees (253 Male and 30 Female) received in-service training.
‘We have now found, through experienes, that the allotted 40
hhours is inadequate for the proper completion af the prescribed
training curriculum and it is the consensus that the training
period should be extended to 80 howrs

Program of Recruit Training. ‘There were 213 custodial
employees (194 Male and 19 Female) who completed a 4 week
(260) hours course. Sineo its inception, a total af 427 eor-
rection ofllcers (364 Male and 63 Female) received recruit
training.

An Orientation Course (15 weeks —3 hours per week) was
extended to the 12 Board of Kducation employees who were
to teach in the new P. 8, 616 School at Rikers Island.

Connzerionan Pyocmess ny New Yous 85

Special Fivearms Qualifeation Training ix being extended
to the personnel in order to determine whether” personnel
tsiged to posts that may require use of firearms aze qualified
to do so and to provide requited training to those who do
not qualify.

Psychiatric and Psychological Personnel Rzamination. A8
a part of the department's long-range objective of raining and
tneintaining persoanel standards, she practice of requiring all
Mew prospertive employers to undergo peychologieal and. ey-
chistric examinations continued. Administered by members
St the Mental Health staff, these paychological examinations
Nave helped the departatent to soreen Out emotionally disturbed
applicants for positions
During the past year, 404 applicants were tested in thie pro-
eam

Adolescent Group Peycho-Therapy Project

Daring 1959, the Department of Correction's Mental Health
staff was faced with te basio problema. - Approximately one-
third of its profesional personnel funds had been curtailed. from
previous year's allotmenia. An additional fanue which had to
Fe'Teoed ras the constant query ax to the validity and efieency of
the remalning dlagnovtie and therapy programs "

"to determine the efectiveness of is tubabllitaion program, it
was deemed necessary to sot up an Bvaloation Pilot Study auuong
Tesucted yroup of sentenced adolescents (1621 years) at Rikers
Tslond, where au experimental program in group peycho-herapy
wan initiated in February, 1968. ‘Two groups of sentenced adol-
Cseents were organized on a randows, sampling, selective bass and
{eated during. their institutional stayin identiesl fashion. with
‘only one important dierence — that of programming.

‘One group of sixty adolescunts was subjected to proup eropy
for apprositately tizee hours per week for each youth while te
ther matched group received no therapy.

Four basie goats were kept in viows

"To gather some knowledge of adolescent delinquents

2 To determine if group therapy could assist the adolescent

inmate in making’a better institutional adjustment.

To determine if group therapy could efeet measurably posi

tive changes in personality patiems of the adolescent.

"To determine whether group psycho-therapy could be helpful

to the adolescent inmate in terms of his making a better
fijjustnent 1 the community pon his release

‘This program was begun tnder diieult conditions and many of
the adolocents were distrustful and resentful about being placed

86 ‘Tax Prisox Association of New Yous

in group therapy. Intensive diagnostic testing was undertaken at
the beginning of the therapy sessions and at the same time of each
youth’s discharge to ascertain changes in attitude and personality.
strueture.
Findings
At the close of the project, research statistics indicated:
That 71.4% of the individuals who had received group therapy
id not commit any infractions during the project period as
compared with only 54% of the group that did not receive
group therapy.
More favorable personality changes in the therapy group than
in the control group as suggested by more productive person-
ality expressions on the part of the adolescents.
‘A more mature realization of reality on the part of those who
had received group psycho-therap;
‘A more rational control of emotionality.

The Problem of Community Adjustment

‘The Department of Correetion hs not been able, at this date, to
learn if it has heen able to achieve its last objective — that’ of
assisting the released adolescent in making a better community’
adjustient—beeause of the recency of the project.

Intelligent and intensive after-eare services aro now vitally re-
quired to insure that the efforts of the institutional staf? will not
be negated.

All of the released adolescents from both the control and the
experimental groups, sabjeet to supervision by the New York City
Parole Commission, will be further observed in order to enable
us to compare their community adjustment. A follow-up system
is now being devised which will permit the Parole Officers who have
supervision of these adolescents to keep the Department of Corree-
tion posted as to the suecess or failure of each ease. ‘The depart-
‘ment recognizes that this phase of the project program is the most
important.

Tt was clearly demonstrated that the youths who had received
group psycho-therapy had better attitudes and were markedly
assisied in their outlook toward authority and society. Whether
this supportive work will be carried over now that they are released
and supplemented by post institutional guidance and help will do
much to determine the full effectiveness of this pilot project.

600" School Established for Adolescents at Rikers Island

On September 9, 1959, Superintendent of Schools John J. Theo-
bald authorized the establishment of P. 8. 616, Bronx, at the New
‘York City Correctional Institution for Men on Riker’s Tsland, ‘The

Connecriowar. Proqurss ov New Yorc

concept that a school for incareerated adolescent inmates should be
conducted emanated from the pioneer efforts of the Kducation
Advisory Committes of the Department of Correction. ‘The Eduea-
tion Advisory Committee took the position that the educational
responsibilities lay primarily with the school authorities,

‘The teaching program for P. 8. 616 is under the jurisdiction of
‘the £600" Schools seetion of the Division of Child Welfare, Board
‘of Hdncation. The “G00” schools, of which there are 25, are special
schools initiated in 1957 to meet the needs of troubled children and
‘youths who are unamenable to regular school instruction. In arder
‘to expedite the establishment of P. S. 616 on Rikers Island, Com-
missioner Anna M. Kross transferred $59,610 from the educational
budget of the Department of Correction to that of the Board of
Education to implement the initial staffing of the school. ‘The teach-
ing staff of P. S. 616 now includes 10 academic teachers, 4 indus-
trial education teachers, a school seeretary and a principal. All of
the teaching personnel are licensed and especially selected for their
skill in working with this type of pupil.

‘The school building consists of a renovated and improvised buila-
ing formerly used by the Department of Correction as an old store-

at Rikers Island averages
about 600 inmates. Unfortunately, under existing limited budgetary
resources and facilities, only 200 adolescents now attend the school
for fal time academic and vocational instruction,

Future plans call for setting up six vocational shops for the
adolescent students, and the expansion of the voeational training
phase of the school training program will include an apprenticeshi
type of practical trade experience. ‘The adolescent students will
then participate in a half-day academic and half-day vocational
(on-the-job) school training program.

Mayor Robert ¥. Wagner visited the New York Correctional
Institution for Men at Rikers Island on Wednesday, December
16th to inspect the school facilities at which time he stated in part

“This experimental project sponsored by the Department of
Correction and the Board of Education will be the guide for the
future expansion of the education program in the eity’s correctional
institutions... and... In an attempt to resolve the delinquency
problem, our schools of higher education and Ieaming now, also,
‘must join and collaborate with our correstional system in order
that they may carry on a coutinuing reveareh program for the
evaluation of the present pilot diagnostic and treatment processes
in effect.”

88 ‘Tun Privo Association of New Your

Redesignation and Reorganisation of the Penitentiary of the City
atin a ene Work, Rivers Toland? °F Me Ce

Effective September 1, 1959, the Penitentiary of the City of New
York on Rikers Island, was redesignated as the New York City
Correctional Institution for Men and reorganized on the basis of
two divisions, each eperating as a separate and distinct institution,
Said divisions were designated as the Adult Division and the
Adolescent Division, respectively,

‘The New York City Correctional Institution for Men is now
under the exeentive management and control of a warden who will
be responsible for the planning, coordination, direction and super-
vision of all activities of both the Adult and Adolescent Divisions.
Each of the tro divisions is under the direct supervision and
control of a deputy warden who is responsible to the warden of
the institution for the coordination, direction and supervision of
all functions of his respective division.

‘The Adult Division

This division is now responsible for the care, custody, training
‘and treatment of all male inmates 21 years of ge and over, who
hhave been committed to serve penitentiary or reformatory sentences
and those workhouse eases not amenable to treatment at Hart
Tsland because of warrants and other considevations. ‘The Adult
Division has responsibility Zor the supervision and control for both
the Adult and Adolescent Divisions,

‘The Adolescent Division

This division is responsible for the care, custody, training and
‘treatment of all male inmates under 21 years of age who have been
committed to serve penitentiary, reformatory or workhouse sen-
‘ences,

Board of Education Responsibility

In conjunction with the Guidance and Counselling Program at
the New Broolslyn House of Detention for Men, whieh is being used
as an Interim Remand Shelter for Adolescents (16-21), we have
2 daily average of 100 young men between the ages of 16 and 17
whose schooling was interrupted. ‘Through the cooperation of the
Board of Education these inmates may have their class books
brought to the institution to continue their studies, At the com-
pletion of the regular sehool year, the school tests aro made avail
able to the institution and inmates may then take the tests which
are proctored by members of the institution staff, AS many as

inmates have taken such teats and some have been awarded their
diplomas which they might otherwise not have obtained without
considerable delay after their release. The departiment takes the

Conzzcriowas, Paocwess iv New Yore 89

official position that edueation resources should be at least provided
{or this group if not for the other adolescents detained there,
‘This is Board of Education responsibility.

Military Training Program for Adolescents at Rikers Island

Sinee a large group of the adolescents who are incarcerated at
Rikers Island cannot be directly involved in the education program
supplied by the Board of Education due to insuilicient staif, the
Department of Correction has undertaken a special military quid-
‘ance and training program in order to constructively oceupy this
group.

‘The objectives of the program are:

L. To provide a physieal form of exercise for many of the adoles-
cents who enjoy participating in military drill for which there is
no implied reward or promise of aeceptance for induetion by the
Armed Forees,

2. To train a carefully selected and qualified group of adcles-
cents to pass the examination for possible acceptance for induetion
into the Armed Forees.

3. That, through this training program, there will be afforded
an ideal opportunity for the development of good character build-
ing, eonduet and habits with tho resultant general improvement in
attitudes.

‘This training program has been integrated into the overall pro-
gram established for the Adolescent Division and includes mass
arching, guidanee in studying for induction qualifying examina.
‘ions, fleld drills, honor guards, encampment exereisea, military
courtesy, map reading, ete

‘Most Impressive has been the proficieney, spirit, and display of

| discipline on the part of the adolescents. ‘There has been an ample

reduction in diseiplinary infractions sin¢
rograra,

e the institution of the

Improved Dental Services

ue dental service available to the inmates of the Department

apartment itself, the Board of Correction, the Medical Advisory
Board, and other outside social agencies, ‘Prior to July 1, 1959,
there were assigned to the department three (3) part-time dentists,
each of whom worked five day per week, three hours a day. Trans:
Jating this into the number of work sessions, it was equivalent to
‘an overall departmental total of 15 sossions of dental service per
week. Tn view of the limited staff availuble, little more than
emergency or token eare could be extended io service a daily
average imuate population of 8,105, distributed throughout four
boroughs und housed in eight separate institutious. The dental

90 ‘Tus Puox Astoctanion ov New You

care extended was mainly comprised of extractions and thus
vageable teeth had to be sacrificed. This procedure was particularly
deplorable for the youth population in our caro.
‘On duly 1, 1959, budgetary funds totalling $50,000 were made
lable to the depaviment for inereased dental time,

New Senzpune ov Inenrasen Dewrat, Sravioss

Inotitutions Dentists ‘Total Resets

ally) as
daly)

H
GEE a}
Hioee se bee es ke Sy}

‘Toran Sesstome Comacnatx Ttxo Urrexren
ne eession to another institution

During the fzst six months of 1959, before the budgetar
tion for ineroased dental services was approved, there were 5,369
visits to the various institutional dental elinies. During the second
six month period, visits to the dental clinics inereased to 9,258,
‘The program now is directed toward less extractions and more
conservation of the teeth of the inmates. With more concentrated
attention being directed in this area, it is noticeable that extractions
of inmates tecth have been cut down from a former high of 75-90%
to a current figure of approximately 50%. ‘The new conservation
Program also requires more “‘time” to be extended to desirable
concentration on reparative, restorative and preventive procedures
Thore is no way of measuring the increased comfort and satisfac:
tion given to these men, women, and boys, through these additional
dental services. From the various institutions of the department,
‘and the House of Detention for Women in particular, there hat
been reported appreciation of the department's expansion of
dental care services.
tmentary, emphasis was made on the general improvement of morale
among the inmates.

loses at Workhouse, Hart Island

‘Five thousand (5,000) rehabilitated toys were formally prevented
‘at Christmas time to the Police Athletic League for distribution by
the P.A.L. to the children of needy families throughout the City of
New York.

‘These discarded toys were “rehabilitated” by the old, forgotten,
Deing old. Although the world has forgotten them and passed them
by this Geriatric Group at the Workhouse at Hart Island takes a
senior oitisens of the community whose prineiple crime is that of

CommorionaL, Paoamuss 1x New York a

great deal of pride in this project by remembering the needy.
children of needy families

New Procedures for the Handling of the Voluntary Committed
Drug Addict

_A most progressive step forward was achioved by this administra
tion with the official recognition given by Mayor Robert ¥. Wagner
shen he directed that:
(a) Local jails and correctional institutions should not be called
‘upon to care for voluntarily committed drug addiets,
(b) Local detention institutions and jails should not be used as
hospitals, especially for this type of individual
(e) The problem of che self-committed drug addicts was a Pub-
Ve Health problem and should be under jurisdiction of the
hospital authorities

Effective the first part of January, 1989, and since that date, no
inmates in this category have beon accepted by tho New York City
Department of Correction.

‘in accordance with the order of the Mayor, the City Administra-
tor held conferences during 1958, with offieials of the Department
of Correction, Office of the Chief City Magistrate, and the Depart-
ment of Hospitals to determine the most desirable procedure for
the handling of self-committed drug addicts as outlined in Section
B31 of the State Public Health Law and it was agreed among
these various agencies that the Chiof City Magistrate will refer
addicts applying for self-commitment, to the Department of Hos-
pitals where they will receive medioal sereening and work-ups as
deemed necessary and, if required, a course of treatment to be
a

Des addict is no longer
reocived by the department, this situation has not been completely
resolved. We still have inmates who are active addicts committed
from the couris, who require special medical treatment and seg-
regated housing during their trying withdrawal period.

"The action taken by the City of New York still does not relieve
the Federal and State governments of their responsibilities in the
care and treatment of narcotie addicts. A special treatment, pro-
gram, under Federal and State auspices, with mental health diree-
tion, is definitely indicated as another stop forward towards resolv-
ing this socio-medieal problem,

APPENDIX A

(Phe following is a report stemming from a subcommittee of the
‘New York State Committee for the 1960 White House Conference
on Childven and Youth, appointed by Governor Rockefeller. Tt was,
the duty of this statewide commitice to make a contribution in
preparation of the

etings, including proposals by
bers of the statewide committee, wore considered at the meeting
of that committee held in Albany on Octaber Sth and 6th, 1959.)

Report of Subcommittee on Corrective and Protectional Care of
the New York State Committee for the 1960 White House
Conference on Children and Youth

INTRODUCTION

‘This sub-committee, although convineed by the evidence that
much can be done to rehabilitate our children and youth after their
apprehension, recommends 2 major expansion in many of the
services which ean prevent them from becoming delinquents, Day
care; family counseling services; the training of teschers to reeog-
nize’ incipient delinquoney; child guidanee programs; all-day
neighborhood schools; and’ better planned recreation, are. all
helpful

‘The proper treatment of a potential delinquent at an early age
has a far better chaneo to produce a useful adult than either later
treatment, or still later ineaesration,

‘The saving of a youngster from delinquency can be shown to be
enormously valuable—spiritually and economically (when redue-
tions in court, police, correction, family service, relief and hospital
costs and improvements in wages and taxes are taken into eon-
sideration).

This wub-commitie, however, has defined its seope to by from
the moment an offender is told by policeman ‘Come with me"
titi his ‘term has ended, either through release from incarceration,
Probation or parole

‘The dual objectives of all correctional work are the protection
of the public and the rehabilitation of the individual

‘The apprehended youngsters have violated the laws of God and
society, and our recommendations are pointed toward converting
the offender into a nseful citizen by eliminating his disregard for

Ti uberis sn dao a ad

02)

1960 Wirz House: Conrasznce ox Cuutoeex axo Your 98

regional meetings which supplied us with much fine food for
‘thought, The recommendations which follow represent the results
of our considered examination of the regional reports coubined
with the thinking of the sub-committee itself.

“We shall mako recommendations for improvements, or expansion,
in each of the groups, facilities, or activities which we believe
represent our concern,

‘These recommendations, however, expensive they aay soem,
should eventually resnlt im savings elsewhere (particularly in
police, institutional treatment, social serviees and psychiatric costs)
‘which will soon easily repay the investment,

Statement of Principle and Recommendations

Personnel Problems—The most telling part of the correction
atmosphere is created by the people who come in contact with the

ders after judgment has been passed. As a group these workers
are underpaid in comparison with similar work in other depart-
ments in both the state and the cities. The fact that there are
Fewer employees in the correction departments than in other de-
partments has probably caused this situation, as, unfortunately,
the greater pressure for raises of a larger group of employees Is
often the decisive factor.

‘This sub-committee wishes to state as a fundamental principle
that the Home, the Chureh and the Sehool do all in their power to
ineuleate in youth an early and deep reverence for the laws of God
and Society. All recommendations rest on these basie principles

‘Thia sub-committee considers it to the interest of all voters and
taxpayers that the pay of persounel in probation, parole and insti-
‘tutional care and treatment of children and youth be brought to a
point where it will not curtail the number of qualified applicants
for positions.

The Police—A policeman must understand that a youth needs
guidance while he is growing up. Our police should be acquainted
with the young in their districts to make this relationship a mean-
ingtal one.

‘At least a limited amount of training in the feld of youth prob-
lems should be part of the curriculum of any police academy.

‘Training in this field is psrticularly desirable for those respons
blo at the precincts for the docision as to whether the youngster
apprehended for designated minor infractions be released or
brought to court.

In such cases of designated minor infractions, the initial decision
whether to arrest, release (in appropriate eases with warning oF
notice to the family), or refer for further investigation, should be
made by police personnel, preferably trained in the philosophy of
‘the Children's Court.

cn ‘Tur Paisox Association oF New You

In cases in which referral for further investigation is made, this
work should be done by personnel trained in social ease work,
attached to an authoritative agency, and capable of full-time appl
cation to the work.

‘The police, and their juvenile aid bureaus whero they exit
should work’ closely with’ the families, schools, courts, churches,
tynagogtes, and other youth-serving agencies Bxisting recreational
agencies should mest noeds so that the police do not have to step
in to fill this gap—or fo duplicate services.

Children’s and Youth Courts—Children’s Court sessions should
be held at definite periods, and frequently, so that adjudication of
ceases is not long delayed. Children's Court judges shonld be en-
couraged to study, and accept training in, the philosophy of such
‘work.

An adjustment. bureau, or equivalent services, should be an
adjunet of every Children’s Court, Its function should be to adjust,
‘under the rules end supervision of the court, specified types of less
serious offenses without formal court action. This bureau should
have intimate knowledge of all available community social services
resources and, whenever indicated, it should refer the el
ie family to the appropriate voluntary agency for continued cate
work services,

After the court has made a finding of delinquency, but before
the disposition of the ease, an investigation and social study by the
probation staff and, where indicated, a psychological and psyebi-
trie examination of the child, should generally be made and the
reports thereon shonld be before the court.

Clinical facilities available to the court should be expanded and
improved in quality of sorviee—in the ficlds of psychiatry, pay-

chology, social work and probation. Ta-servi
inereased.

‘The intorval between filing of petition and the child’s appearance
in court should be short.

A family court, to supersede the Children’s Court, is favored
and endorsed, The need for a ‘closed court” should be explained
to the public, with emphasis on protection of the child.

Judges who concern themselves with the case of delinquent
children and youth should be selected with the greatest eare and
should be persons having unusual and sympathetic interest in
children and youth. ‘They should be encouraged to take special
‘raining in all disciplines bearing on their work,

training should be

Placement of Children and Youth—Adequate detention and
‘training school and treatment facilities are ‘a necessary adjunct”

1960 Wares House Convenaxce ox Onunpuns an Yours 95

to the Chitdren’s Court, These children should not be fncarerated
1h Jat while avaiting a court hearing. Tn this connection we need
"ore diagnostic eentee where the child ean be studied and
soulyzedy
Tore shelters for negleste childrens
ae the community level a variety of types of Failities to
Provide for difera children, such as temporary detention
Centers, residential treatment centers trating schools with
saiucatonal and rehabilitation programs, aod the tae of
“Satter care residences” and foster eare homes Zor interim
placement folowing discharge from an institution
Inore facilities for the delinquent ehild who is a mental
Ueteetive, and for the delingvent child under 12 years of
axes
Inore facilities to take care of the delinquent girls who are
proge

Wo recommend the establishment of regional detention centers
covering ont or mote counties, dependent upon used

The ehild should be kept’ in detention for as short « time ax
prneticabe

‘We resnmmend that, publie and voluntary child care agencies
anf institutions expand their progsams and servees for the care
fnd treatmont of eounmitted detingvent, ab well as dependent and
faglected children,

"Youth should alvays be sepasted from aautts when incarerated,
or detained pending trial Wien praetiable, counties showid com
tne to provide regional detentonal facilities for our yout, both
tine female. "An effort shouldbe made to establish Zanilites
fick as small group homes hich maintain proper rehabilitation
totivites, Mhese homes should cooperate with probation, parole and
festtuional groupe,

Religion, Moral and Spiritual Guidance ond the Cleray—Since
experienc’ has chown that religious instruction, religious practice
fat spiritual guidante area stost important part of the rekabiita-
tion at troubled fame and ehildzen, this sub-commicte:

1 endorses our curcent law and practice in New York requis
Sng public eathoriti, wheuewer practicable 10 refer chi
Groin need af gutianee, treatment, correction, and
toda care to.velimtary agencies and institutions of
fh eila’s own faith; and
tho endorses the practie of che various courts of referring,
‘Phenover practi, families in aeed of connecting fo
Yatuntary agencies, churches ayuayoquss, and other tl
flows ongenantions ‘of the same faith as te toubled
familen;

‘Tux Prisox Associarion or New Yous

8 urges that such family counseling and child easing volom
tary agencies be urged to expand their program and serviee
tortie end that depustments of welfare, aud in proper
eases ours, may’ avail themalves of such serves te 8
restos extent than ie vow postbley
Inges that the various state training schools employ the
services af suffcint number of chaplain and othey rel
ious instractos to encorage and increase rigions obser
fee and the religious education of children im such schol
Probation. Counties with no probation failtes should combine
with ethene so zat they have ste sereios

All persona who earry responsiblity for the training and control
of juvenile dctinguents showld have education and training, for
this" work. ‘The tnfortunute dearth ‘of ‘propery eduented’ aed
trained workers indicates that a igofous recrutment tn stronger
training program is imperative at all levels for probation, parole
and institutional personnel, It is recommended that, the federal
overnment asume responsiblity Joe, providing finds for thee
‘ho wish to go into this work and for those afveudy tn the fld
vio are not already properly educated aud trained, when, euch
Prrsons ave unable themselves 49 pay for i. Tho federal onde
fould be' provided either by atipents to sareFlly seneened caval
Gstes abi the NIMH. program for petoan in the mental health

el, or By grentsincald 10 states for training programs to be
developed in cach state, petra ee

Paychiairic, Psyehological, and. Case Workers—The esta!
shortage of sich trained personnel in the institations for eorrecive
aud proteetonal ears in our stats greatly impedes the rtabilitaion
St our incarerated yout,

Adequate sta of such workers should be available fo the largee
police agencies, im the police court and in probetion and parce
Organivations as well ab inthe various fais of the cormwetion
Aepartent sl

there are insuficient persons trained in these fields to mee
the demand, we recommend additional efforts to encourage various
methods to nereae the number in training,
salistatiat Personnel —Tho work of the custodial stall reguies
inelgene, dedication and sltcontrl of high te. Teh ue
reasonable fo expeet persons with rich qualffeations 90 ast the
Tow pa oered for thi wore Se eae
Cattage Parents ort should be made to improve the working
ions ad residential amenities of cottage parcnt, im ones te
attract more quatied people for this very mpoetant service

Groep Therapy.—Barly work in group therapy aid op co

seling has shown sock, good rents that, we Tocommnend,hisekor

4

1960 Wars House Coxrzasyor ox Crampney axp Yours 97
evaluation and application, There is a great need for extension of
‘hese services.

Vocational Education—We recommend this as au extremely
important part of the overall treatment of our youngsters when
jineareerated. ‘The work should be suitable to help the offender
obtain a position when released,

The Treatment of Families—The large pereantage of recidivism
cannot be substantially reduced unless we treat one of the most
Srequent causes of delinqueney, parental inadequacy. We there-
fore recommend that, wherever possible the parents having eus-
tody of our delingnent and maladjusted youth be encouraged to
accept counseling, and actively participate in the treatment process.

Pooilities-—We recommend a continuing move toward smaller
institutions ‘with less emphasis on security but more on rehabilite-
tion,

Parole and After-Care—After-care should be envisaged a8 &
continuity of guidance after institutional release, Tt is necessary
to establish a Lotality of approach to the youngster and his family
and liaison between the individual and the institution and the
community. Use should be made of all neighborhood facilities in
planning for the return of youngsters to the community. This
should include contacts with the local employees to arrange for
‘employment opportunities; with the clergy for spisitual guidance;
volunteer services, and the Armed Forees. In this connection an
adequate professional staff is necessary for effective operation.

‘An extensive program of after-eare residences for children and
youth discharged from institutional eare is urgently required 80
fas to prevent an almost inevitable and early rotu
youth Wha have no home or whose home is deteriorated and detri-
mental.

All children and youth discharged from training schools and
reformatories should be under parole for a while, to help them
adjust.

We recommend that all ageneies dealing with children and youth
seoure the serviees of qualified trained workers to plan for and
srenre jobs for those old enough to work, on their release from
incareeration and while still under parole, State employment agen.
ies should specialize in this work,

‘We favor work eamps for youth over 16, if properly staifed and
programmed. They ean be useful in the overall corrective picture,
with programs suitable to youths coming from urban centers a
well as other aveas, Proper work habits should be encouraged.
‘Those sent to such camps should be carefully sereened to make the
plans effective.

98 ‘Tax Prison Association or New Yous

While all the recommendations given apply to girls as well, the
need for improved care and services is fully as pressing and evi-
dent in the case of the female child and youth,

Long-Term Planning.—Only constant appraisal and continuous
research toward better methods ean creata continually effective
operation. An essential part of long-term planning is follow-up
study. We therefore recommend that funds noticably lacking in
our system, be made available so that such services are established,
‘and maintained.

Implementation —This sub-committee is only too aware of the
shocking lack of implementation of the recommendations made ten
Years ago at the White House Conference on Children and Youth,
‘We believe the lnk of progress is due primarily to the fact that
the public has an il conceived pletire of what makes & criminal
ama ‘what should be done abowt inn. Osly through the combined
Sfforts of the government, the pres radio and television can
Ingceurate picture be altered. i important that those in Dublie
ble for the distribution of funds are wll
ts
Tho effort to edneate the public is clesely a long-term propa
tion. "Too many feel that, as the results will only be noticeable
ater some years, t is not worthwhile planning such an efor
‘We reeommend continued efrta inthis fel

‘ence on Children and Youth will mark the inception of the plan-
ning and action recommended herein,

Respectfully submitted,

Carl BC. Loeb, Jr, Chairman
Alexander Aldrich
award B. Cass
‘Theodore L, Conklin
Irving Ben Cooper
Daniel Egan

‘James Fitzpatrick
‘Albert Gordon
Irving Halpern
John Warren Hill
‘Hugh R. ones
Nathaniel A. Kaplan
©. Addison Kecler
Mrs. William Kelly

Joseph A. Pritach,
‘Vice Chairman
Mary Conway Kotler

John M. Murtagh
Dan Potter

Moge. Arthor E. Rhatigen
Raymond Rieger

George W. Smyth

Philip M. Thurston
George A. Timone

Ethel H. Wise

Leo Yehle

i

FINANCIAL STATEMENT
‘THE PRISON ASSOCIATION OF NEW YORK
GENERAL FUND
STATEMENT OF INCOME AND EXPENSES
‘YEAR ENDED DECEMBER 81, 1959
INCOME
‘Douations—Speelal parposes
"The Greater New York Fund
Grand Stret Bape Pea
cs

9,225 00

25203 00
2.386 00

1308 00
aai9 «0

35.987 00
19/338 00

Donations sua 40

Endowment Tneome
"Dividends on soc»

Total Tncome

37,507 88
“qren,set 23

EXPENSES

ral Administration

cae 20976 53
Heit prisoners and Sunes

22078 99

Rea ore, ‘alionery
ition nd igrani
a are ean
ws a jax!
‘Total Expenses gro
‘801 08
193356 00
ara88 08

Balene
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CONSTITUTION AND BY-LAWS

An Act to Incorporate ‘The Prison Association of New York
Passed May 9, 1846, by a twocthirds vote. (As subsequently
amended.)

The People of the State of New York, represented in Senate and
Assembly, do enact as follows

Section 1. AMI such persons as now are and hereafter shall
become members of the said association pursuant to the eonstitu,
tion thereof, shall and are hereby constituted a body eorporate by
the name of The Prison Association of New York, and by. thet
name have the powers that by the third title ighteonth
chapter, of the first part of the Revised Statutes, are declared to
belong to every corporation, and shall be capable of purchasing,
holding aud conveying any’ estate, real or personal, for the use
of said corporation, provided that sich real estate shall never exceed
the yearly value of ten thousand dollars, nor be applied to any
‘other purpose than those for whieh this corporation is formed.

§ 2 Mhe estate and concerns of said corporation shall be man:
aged and conducted by its executive eommittee, in. conformity to
the constitntion of the said corporation ; and the {allowing articles
that mow form the constitution of the association shall continue to
be the fundamental laws and constitution thereof, subject to altera
tion in the mode therein prescribed,

‘The objects of the association shall be:

1. The amelioration of the condition of prisoners whether de-
tained for trial, or finally convieted, or as witne

2 ‘The improvement of prison disefpline and the government of
prisons whether for eities, counties or states,

8. The support and encouragement of reformed conviets after
their discharge by affording them the means of obtaining am honest
livelihood and sustaining them in their efforts at refore.

‘The offleers of the societ
dents, a recording secretary, a correspon
treasurer, and there shall be the following committees, viz: a
finance committee, a committee on detentions, a commitios on
Prison discipline, a committee on discharged conviets and an excou,
tive committee. ‘The number of the executive committee stiall com
sist of not more than thirty-five, of whom not more than ten shall
be officers of the society, and not more than twenty-five shall be
Persons other than officers,

ty shall be a prosident, fonr vice-presic

ding secretary, and

1200)

Consmmvno ano By-Laws 101

‘The executive committee shall mect once in each month, and keep
regular minutes of their proceedings. ‘They aball have’ general
Superintendence and ditection of te affaits of the society, and
Shall annually report to the socety all thelr procesdings, and stich
Sther matters a5 shall be likely to advance the ends of the aac
= rICLE FUPTEE

society shall mest annually in the ety of New York, at sub
sous ne pus as tae cepruve Seuwtiges Wall Sppeice sol
Sch ottar times as the president, or in his absence, ome of the vice
presidents, sball designate

Any person contributing anutally t the funds of the association
vot leat than five. dellars shally ong to such eontebmtion, bea
Inember thereof. A contrbation of five hundred dollars shall com

contribution of fifty dollars shall constitute a momber of the asso-
ciation for life, Honorary and corresponding members may, from
time to time, be appointed by the executive committee

ing of such females
A female department shall be formed consisting of such f
‘ag shall be selected by tho executive committe, who shall have
charge of the interest and welfare of prisoners of their sex, under
‘such regulations as the executive committee shall adopt.

i ually at the
‘The ofteers of the amolation shall be choten annually at
seat esting, a he tine tach pers mayb seed ooo
fry msnbery 4s shall have rendered exsetial service to the eatse
of pris divtping. "
ecome sui
Any society having the same objects in view may
tary to this association by contributing to its funds and oopen
vith i
: wo any of the
‘he exci commit sal ave ome tat any of the
sianding committees sich pervony aa in their opinion, may Di

102 ‘Tae Paisox Assocation of New You

likely to promote the objeets of the sovioty, and shall have power
to All any Yacaney which may occur in any of the offees of the
association, intermediate the annual meetings.

This constitution may be amended by a vote of the majority of
the society at any meeting thereot, provided notice of the amend-
tmoot has been given at the next proveding moeting

‘The eforn lected for tho curtent year, under the constitution
shall continue to be the ofleers thereof til ethers shall be duly
ioe ia their platen

‘Kd itis hereby further enacted fhat no manager of said society
adil semsiverany eorapeaasin fer Nirvana aad

$3. The said exceutive committee shall have power to establish
ax Soritionss in the county of New Work aud te thie dvcretion,
to receive and take ito the said workhouse all such persons as skal

te taken’ up and commited ce vagrants or Gordery petous a
said ‘ity an the Court of General Semions of the cave, or the
Court of Special Seana, or the Court of Oper and Terminer,

igor the comamimrioner of the
Fin dea proper Coie al lub sand expose ome
lve thse pws Hs tly om

Geran the salt pata ag oro gor bylaw anitarted on te Laopars
Foes ane

§ 4. The said executive committee may, from time to time, make
by-laws, ordinances and regulations, relative to the mana, gement
ad dlspoution of the extate and conver rand
he munigunenepeyasomesy, snnerueion

Seat af te pr aah nec smrd to tn mid ork
Pope Gass oes AACGIT Gos elipaas OF tuey may caen ae
Gory to trsumct te sips of the ead wumslativa, nad way Gong
hai hei dated the sleeve smn Sal ma an
tinal report to the Legistazure and to the corporation of the ci
Of New York of the number of persons received by them into the
said workuoves, the dipostion itch shall be made ef thom by
Instructing or employing, them therein the receipts ed expend
favor of suid executive eommition and genorally a pach fact and

late as may ochinltthe eperationn of to maid amoct

The seid ececutiva commits tall have power, during the
suncrity of any of the pervons sv committed to tre said workhour,
fo biud out to said berwonn oo berng minors, as afore on oy,

Drentioce or servants, wit thelr consent during tele minority, 1
Sats potions aid (ee ke lanes’ ta vonen Bante epee Gadel Gd
tmplayments ay in their judgment wil be most conducive to Gir

reformation and amendment and future benefit and adv
coe 1d future benefit and advantage of

Coxsrrruriox AND By-Laws 103,

5.6. ‘The said executive committee by such committees as they
shall from time to time appoint, shall have power, and it shall be
thar duties to visit, inspect, and examine, all the prisons in the
Bate and annually report to the Legislature their state and condi-
tion and all such other things in regard to them as may enable the
Togislature to perfect their government and discipline, And to
table them to exeeute the powers and perform the duties hereby
Granted and imposed, they shall possess all the powers and author-
Sy that by the twenty-fourth section, of title frst, chapter third,
part fourth of the Revised Statutes, are invested in inspectors of
peanty prisons and the dutios of the keepers of each prison that
they may examine shall be the same in relation to them, as in the
ceniom aforesaid, ave imposed on the keepers of such prisons in
SSlation to the inspectors thezeof; provided, that no sueh examina~
Yon or iispection of any prison shall be made until an order for
{hat purpose to be granted by the chancellor of this State, or one
Gf the judges of the Supreme Court, or by a viee-cheneellor or cir-
Cait fudge: or by the first judge of the county in which the prison
{fo be examined shall be sitaate shall first have been had and ob-
tained, which order shall specify the name of the prison to be exam-
ined, the name of the persons, members of the said association, by
Nhom the examination is to be made, and the time within which
the same mst be concluded.

BY.LAWS*

I. hore shall be a stated meeting of the executive committee on
the Fourth Thursday of each month, and special meeting shall be
field om the requisition of the Chairman or any three members of
the executive committee. ‘The call for a special meeting shall, in all
teases, state the business to be transacted at, said mecting. The
Gunual meeting shall be held on the fourth Tharsday of January
fn cach year at an hour and place to be designated by the executive
committee.

‘The number of members composing the executive committee
exclusive of the officers of the association, is hereby fixed at twenty-
four, and divided into four groups or classes as follows: At the
flwetion held at the annual meeting of the year 1916, there shall be
Glected, 19 serve from that date, six members for the term of one
Seat, eix for the term of two years, six for the term of three
Years, six for the term of four years, At each annual mecting
{hereafter six members shall be eleeted for the term of four years im
place of those whose terms of office then expire, Any vacancies in
The membership of the committee by death, resignation or other

“Ae amended by the Executive Committoo of the Association, Deswmber
xsi pram 204s ana ale 1864,

108 ‘Pun Puisox Association or New Your

wise, may be filled either by the association at any annual meeting
or, in interims between the annual meeting, by the exeoutive com-
mittee,
TL. At every meeting of the executive committee five members
shall be necessary to constitute a quorum.
TIL, The order of business at the annual meeting shall be as
follows:
1, Election of chairman and sceretary.
2 Reading of minutes of the last meeting.
8. Report of committee on nominations.
4 Blection of officers.
5. Report of corresponding secretary on work of year,
6, Annual report of the treasurer.
IV. The order of business at every other stated meeting shall
bbe as follows:
1. The reading and approval of the minutes of the last preceding
meeting.
Report of treasurer.
Reporis from standing committees.
Report from the corresponding seeretary.
Reports from special committees,
|. Report from the general agent.
Miscellaneous business.

At a special meeting no other business shall be transacted than
that for which the said meeting was called.

YV. The chairman shall appoint all standing and special commit-
tees and decide all questions of ordez, subject to an appeal; and
the rules of order shall be these embodied in Cushing's mancal so
far as they are applicable,

VI. The recording secretary of the association shall be the secre-
tary of the exceutive committee; and it shall be his duty to keep
the minutes of the proceedings of said committee, to record them
{in a book provided for that purpose, and to give due notice of all
‘meetings of the committee,

VII, The corresponding sceretary shall conduct the correspond
cence of the executive committee and of each of the standing com-
‘mittees; and shall act as the general financial agent of the assoeia-
tion, and shall report at each stated meeting of the committee

‘VII. ‘The treasurer shall have charge of the funds of the ast.
ciation, and shall give such security as the exeeutive committee may
require. His duties are more fully defined in by-law X,

TX. There shall be at least the following standing committees;
executive; finance; law; detentions; nominations; probation and

Coxsrirumion ax By-Laws 105

cle; pian admnitratin. Sach commits in edison to any
parley Dray sdemferred by these bls shall severally posers
power or duis confer, the duce Gegaated fom time tae
ths omer and be subi {atermre he commater on rob
hy the exelent egyi commites on dacharged n>
ion andl parole shal fonehaion, andthe commiice on pra
Wits enki che commites on prison dieting
Rarer

tay aliens of geo ea
ot vitae for tembarship on
available er may rospommendations thereon to the exeeutive
Committee or final action. °
Weahll be the dy of the commie on prbaton and pare
ean at th che operation of the probation, parle an
tobe aoe us of the ssecaton, and, from tm to Ge, t0
seervounmandations in respect thers. ;
Ne ee eadty Of the eomities on prison administration
vata Oe ts yal organization and management of county
ean tontiarion, veformatores and State prions, and the wel
Fr of persons eomdined herein.

X. The committee on finance shall be charged with the duty-of

raising and caring for the Funds
So a gatocation shall be divided into two parts to

bbe known as

1. The endowment fund.

2. The general fund. :

1 consist o

The Endowment Funds—The endowment fund shal
cud conteibutiona a8 shall be given with the restriction that the
sretme only shall be tsed for the purpose of the association, a
all legacies.

= yrment and gen

‘The Endowment and Goneral Funds-—The endov ee

eral font thall be under the immediate direction and control of