103rd Annual Report 3 unnumbered plates., 1947

Legislative Document (1948)

STATE OF NEW YORK

‘THE ONE HUNDRED AND THIRD
ANNUAL REPORT

oF THE

Prison Association of New York
135. East 15th Street, New York

1947

4886-1 ay

PREFACE

‘This is an offigial 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 third of the series.

Paragraph 6 of Article XI of the act incorporating the Prison
Association of New York provides that ‘the said executive com-
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, inspect and examine all the prisons

of the State, and annually 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 disci-

pline.”

‘The State law further provides for the printing of 500 addi-
tional copies of this annual report at the expense of the State.
Additional copies of the full report are purchased from the State
printers, at the expense of the Association, for distribution to
its contributors and many others, not only in New York State
bbut in other states and in foreign countries.

Recommendations to the Lerisiatare,

New York Times Editorial.

‘Keeping Faith With The Founders
New York City Department of Correction.
City Prison, Brookl
‘The Sexual Psychopath...
Citizens Budget Commission Survey.
Green Haven Prison. .
‘The Chronic Aleoholie.
Elmira Reception Center. .
Crime Pictures...
Detention Pens—Mulberry Str :
Prison Ward—Bellevue ..... a:
Discharge Money—Prisoners Rikers Island.
Michigan Corrections Association.
Street Club Project... . ‘
Welfare Couneit
Institution Chaplains
Dangerous Trends
‘Texas Institutions ..
Civil Service
Police Prison Roster |
County Jails
Police Lockups and Jails.
Westfield State Farm.
Benzedrine .....
Handbook on Classification.
Bureau of Research and Planning.
Corrective Services Division, U. S. Navy. E
International Penal and Penitentiary Commission.
Defense Attorneys. =
Legislation . ..
Sir Alexander Paterson
Foreign Visitors .
General Serviee

CONTENTS (continued )

‘The Association's Service Bureaus.
Employment and Relief Bureau
Family Service Bureau.
Legislation—1947 .
e 77th Annual Congress of Correction
Presidential Address. Harold E. Donnell. .
‘The Community and the Correctional Process.
Austin H. MacCormick......
Jails, Hon, Vernon Kilpatrioi:
Hon. Bugene Biseaituz.. 1. :
Personnel Problems. Hon. Richard A. McGee
‘Swedish Prison System. Warden Gunnar Rudstedt.
‘Unstable Offender. Warden John C. Burke
Dr, Paul L, Schroeder. :
Prison Sunday Divine Service. Dr. Donald H. Tippett
‘Treatment Techniques. Price Chenault :
International Approach. Hon. Sanford Bates.
Auditors’ Statement .....
‘Constitution and By-La
‘THE PRISON ASSOCIATION OF NEW YORK
OFFICERS FOR 1947

President Recording Secretary ‘Treasurer
‘Epwny 0, HOLTER ARCHIBALDS, ALEXANDER C, C, AUCHINCLOSS

Corresponding and General Secretary
E.R. Cass

Assistant Secretary
RoseRTs J, WRIGHT

Vive Presidents

.C, AUCHINCLOSS
‘Hanoi K. Hocusenmp

Executive Committce™
Epwin 0. Hoummr, Chairman

Clase of 1947 Class of 1949
Mrs. JouusOcus Apis SAM A. LEWIS0HNN
Grranims Sova Corrine G. HOWLAND Suiaw
Henny G. GRAY
EDWARD P, MULROONEY Class of 1950
RICHARD F. BARCOCK
Cass of 1948 Lewis B.LAwes*
Photograph of model Remand Shelter and City Prison, Brooklyn, to displace the JoserH E. Davis BURTON J. Lae, JR.
Tg Sted Ragman Scr Ta Mis. ALLEN W. Dutus Ricttano G. PATTERSON, JR.
Sony L, SCHOENFELD Fhanois E. Powstt, Ji.
C. Doveias DiLLon

Deceased April 23, 1947.

STANDING COMMITTEES FOR 1947

COMMITTEE ON LAW
GRAY, ALEXANDpR, LAWus

COMMITTEE ON FINANCE
AUCHINCLOsS, DiLion, Hocuscsm, Lae

COMMITTEE OX DETENTIONS
SCHOENFELD, Mrs, DULLES, LEE

COMITTEE ON NONINATIONS
AvcHincross, Davis, Hocusciiy

COMMITTEE ON PROBATION AND PAROLE,
BMULROONEY, CUTTING, SHAW

COMMITTEE ON PRISON ADMINISTRATION

LEWISOHN, MRS. ADLER, BAECOCK, PATTERSON, POWELL

E HUNDRED ‘AND THIRD ANNUAL REPORT OF THE
PRISON ASSOCIATION OF NEW YORK
Hon. Jor R. HANuEY,
Lieutenant Governor of New Yor!

‘SiR—In accordance with Chapter 163 of the Laws of 1846,
we have the honor to present the One Hundred and Third
Annual Report of The Prison Association of New York, and to
request that you will lay the same before the Legislature.
Respectfully,
THE PRISON ASSOCIATION OF NEW YORK

By EDWIN 0. HouTER, President
E.R. Cass, General Secretary

IN MEMORIAM
LEWIS E. LAWES
September 13, 1883-April 23, 1947

With the passing of Lewis E. Lawes, American penology suf-
fers the loss of one of its most colorful yet able figures, and the
Executive Committee of The Prison Aszociation of New York
a highly valued member. The son of an Elmira Reformatory
employee, Mr. Lawes was early introduced to the fine art of
being one’s brother's keeper. Throughout his career he never
lost sight of the intrinsic value of human personality and the
presence of some degree of good in every man.

Lewis E. Lawes made a marked contribution to the accuracy
of the layman’s oft restricted knowledge of the status and prog
‘ress of penology. It was his purpose to interpret the rigors and
fallacies of prison life, as well as its accomplishments, to the
common man whose interest in such affairs was too frequently
at low ebb. This Warden Lawes performed with a degree of skill
and sincerity.

Referring to his penal policy as “an iron hand in a velvet

‘t here was an administrator who knew
‘what transpired within his institution. This, it might be added
for the benefit of the uninitiated, is a word of high praise for a
penologist. His twenty-one years of progressive direction of

New York’s Sing Sing Prison is indisputable substantiation
for the comment.

At the age of 20, after three years of Army service, Mr. Lawes
began his career as a guard at Clinton Prison, Dannemora,
New York, Within the next few years he saw service at Auburn
Prison and eight years at Elmira Reformatory where he served
‘with credit until 1914. It was at this institution that his admin-
istrative abilities were first brought to wider attention In
response to an appeal of the late Dr. 0. F. Lewis, the then Gen-
eral Secretary of The Prison Association of New York, insti-
tutional heads in New York State designated younger career
personnel to attend special courses under his direction at the
New York School of Philanthropy (New York School of Social
Work). As a result of his work at the school Dr. Lewis com-
mended Mr. Lawes to the late Dr. Katherine Bement Davis, then
Commissioner of the Department of Correction of the City of
New York. Subsequently appointed by Dr. Davis to the superin-
tendeney of the New York City Reformatory, Mfr. Lawes served
admirably in that post until 1920.

During this period of his early “apprenticeship” the State
was experiencing considerable difficulty at Sing Sing. Known

fete]

as the “Wardens” Graveyard” because of its history of fourteen
wardens in a decade, the acceptance of the wardenship at that
time was popularly known as the “best way of getting out of
Sing Sing.” In something of a state of desperation Governor
Alfred E. Smith, with a personal promise of 100 per cent cooper
ation, persuaded Mr. Lawes to accept the post of warden at
Sing Sing. For the ensuing twenty-one and a half years Sing
Sing progressed and ceased once and for all to be known as the
“Wardens’ Graveyard.” Instead, Sing Sing became outstanding
for many of its innovations.

‘Warden Lawes was President of the Wardens’ Association in
1922 and of The Ameviean Prizon Association in 1928. He was
appointed a delegate to the 1925 meeting of the International
Penal and Penitentiary Commission in England, and Jskewise a
similar meeting in Prague in 1930. At a meeting of the Com-
mission in Berlin in 1985 he was particularly articulate in oppo-
sition to the bratalites of the Nazi concentration camps,

Because of his disbelief in the death penalty the Warden was,
for many years, honorazy president of the Ameriean League to
Abolish Capital Punishment.

During the last years of his life Warden Lawes gave liberally
of his advice and counsel as consultant to the War Produetion
Board and was responsible in large measure for the excellent
coordination and production of war materiel by prisoners
throughout the nation, One of his last services to The American
Prison Association was as a member of the Association's com-
mittee on the formulation of a model state correctional plan.

‘A long time member of the Executive Committee of The
Prison Association of New York, he was likewise a director of
the Boys’ Clubs of America, the Boys’ Athletic League of New
York City, and other groups.

“He never faltered at any duty,” said ‘The New York Times,
“Many a prison is afar less brutal, inhuman place today, thanks
to Warden Lawes,” commented the New York World-Telegram.

No better conclusion to this memorial statement could be
made than to repeat the editorial comment of the New York
Herald Tribu

“There, then, was a life’s work
superlatively worth the effort.”

Be rr, THEREFORE, Resolved, That the Executive Committee of
‘The Prison Association of New York at its meeting on May
15, 1947, records its deepest sorrow at the passing of Warden
Lewis E. Lawes and extends its sympathy and understanding
‘to his remaining loved ones.

121

March 5, 1948
To the Honorable Members of the Senate and Assembly:

In accordance with Chapter 168 of the Laws of 1846, we have
the honor to present the following recommendations to the Leg-
islature as a part of the 108rd Annual Report of The Prison
Association of New York, and urge that they receive your
serious consideration.

Respectfully submitted,

THE PRISON ASSOCIATION OF NEW YORK
E. 0. Hourie, President
E.R, Cass, General Secretary

IS GOOD HOUSEKEEPING ENOUGH?

‘The immediate reaction to an inquiry of this nature undoubt-
‘edly would be in the form of a second question: Why do you ask?

We ask this question as it relates to the New York State De-
partment of Correction because we feel something more to be
necessary in the overall rehabilitation of prisoners than sturdy
buildings, clean surroundings, modern facilities and secure et
tody. To be sure, such factors are vitally important to any cor-
reetional system—but good housekeeping alone is not enough.

‘Through the medium of its annual reports The Prison Ass0-
ciation of New York attempts each year to acquaint public
officials and private citizens alike with the more basic needs of
the correctional program of the City and State of New York.

For over a century the Association has pointed the way to-
ward progress. Frequently some of its recommendations are
applicable only to the future rather than the immediate present.
Tn fact, some of those that follow this comment: are designed for
the years to come but are presented at this time as a blueprint
for planning and eventual action,

‘We feel it to be of the utmost importance that the Association
take the lead in directing the layman's attention to some of the
fine points of correctional administration and procedure that,
might otherwise eseape attention.

‘As the record will prove, the Association has, over the many
decades of its long period of service, planned for the future.
Often immediate action on some recommendations may not be
desirable. We reiterate, however, that they constitute the road-
bed for future planning.

[18]

4 ‘Tue Prison AssociaTion oF New York

‘The Association is convinced that a highly specialized eld
‘such as correction requires an independent group in a position
to focus attention on the future as well as problems pertinent to
‘the present day.

Ts good housekeeping sufficient? We think not. What more,
then, is necessary?

'No organization or department ean hope to achieve progress
and retain its position of leadership without a clear eut policy
of definition of purpose. No ship can be expected to reach it
destination without considerable plotting and charting of its
course. No enterprise ean hope to succeed unless all concerned
are aware of its intentions.

‘As we have been careful to point out in previous reports there
ig no need in New York for the construction of new institu-
tions. There is no need for the outlay of an unreasonable amount
of money. New York hias a wide variety of correctional institu-
tions that with readjustment could be used to meet the re-
quirements of the various types of offenders. The cornerstone of
sound prisoner classification has been put into place with the
establishment in 1945 of the Elmira Reception Center. The
Center, however, is but the solid base on which to build and
‘the people of the State and the Department of Correction will
have to recognize this Zact before progress may be continued.
The Reception Conter cannot be expected to work miracles in
and of itself regardless of the excellent personnel with which
itis staffed and the soundness of its program,

‘This obviously raises the question of what improvements and
changes are necessary if New York is to retain its position of
leadership in the correctional field. The answer is not simple;
in fact, it is somewhat complex. Ultimately it may be reduced

ity of the Department of Correction to theroughly
course for the future. The time-worn phrase that
a prison must be more than a lockup for long-term offenders
remains apt. We have the facilities —we need the plans, We have
‘the good housekeeping, but it is not sufficient to produee prison
ers properly prepared to become law-abiding citizens.
What, then, is necessary? These are the elements Tho Prison
Association of New York prescribes for at least a background
of future action,

I. A COORDINATED CORRECTIONAL SYSTEM

We repeat our leading recommendation of last year* and urge
that a thorough review be made of the State's correctional

“Sts QueBlundred and Sond Aan Report of Tho Prison Aosation
ot New ons 116 Layislatve Documant (ou Nort Page 18

RECOMMENDATIONS TO THE LEGISLATURE 15

process and needs either by a legislative commission with the
aid of technical experts and consultants or by a special com-
mittee designated by the Governor. This review should provide
recomendations for legislative and administrative revisions of
existing procedures with a view to effecting a coordinated cor-
reetional policy.

Comment:

‘The Association, in making this recommendation, is emphati
in pointing ont that an investigation, as such, is not necessary.
‘Ths should not be a “head hunting expedition” and the matter
of personalities is not of concern. The Department is well
equipped with trained personne! capable of achieving notable
progress if a definite-and specific course is plotted.

‘The process of prisoner rehabilitation is not something that
just happens, The idea of “good housekeoping” can be handled
at each institution but the planning of a coordinated and unified
correctional system is considerably beyond the realm of the
individual institution.

‘The State of New York has a vast investment in buildings,
land and equipment. It has an even more valuable investment
in eorrectional personnel, Its responsibility to its thousands of
prisoners likewise eannot be shirked if we are to adhere to the
premise that prisons are for the complete protection of society.

‘A clear cut statement of correctional policy should be the first
order of business. As an aid to this fulfilment it is suggested that
a board of strategy, with the Commissioner of Correction as
the head, be utilized, embracing representatives from the State
Board of Parole and Departments of Montal Hygicne, Eduea-
tion, and Laber and such other departments as may he appro-
priate, This group might well be employed to assist in the gon-
eral process of rehabilitation especially since the Division of
Parole, for example, has a specific responsibility relating to
post-institutional suporvision and guidance of prisoners.

1, COMMITMENT OF PRISONERS

It is recommended that all male felony prisoners be com-
mitted directly to the State Department of Correction rather
than on the basis of judicial districts as at present.

Comment:

Precedent for this recommendation has been well established
by virtue of the Elmira Reception Center authorized by Chap-
ter 554 of the Laws of 1945, All male felony prisoners between

16 ‘Tae Prison Assocation or New York

the ages of 16 and 21, excepting those sentenced to life impris-
‘onment and death, are now committed to the Center for observa-
tion, study and eventual transfer to the institution best suited
to the needs of the individual prisoner. Its commendable record
of the past two years gives full substantiation to this recom-
mendation that all male felony prisoners be so committed.
‘The operation of the Reception Center commits the State to
the theory and need for a coordinated commitment and recep-

tion procedure. The expansion of its age limits from the present.
maximum of 21 to include all ages above 16 would result in
the most efficient and economical use of the State's correctional
facilities.

It is urged that this recommendation be given careful con-
sideration with relation to the recommendation that follows,

HL. THE SEX OFFENDE)

It is recommended that the Legislature adopt the findings
of the Governor's Informal Committee Regarding Improved
‘Methods for Dealing With Sex Offenders, and pass legislation
providing for a study and treatment unit at Sing Sing Prison.

Comment

In 1947 The Prison Association of New York initiated and
led the eampaign for the provision of improved procedures for
dealing with the sexual psychopath. A bill introduced by Sena-
tor Thomas C. Desmond (Senate Int. 1482, Pr. 1290) suecess-
fully passed both houses of the Legislature but was vetoed by
‘the Governor primarily because it was his opinion that the bill
‘was too broad in its provisions. In his veto message he com-
plimented the efforts made by those interested in this measure

and urged that additional study be given to the problem during _

the year.

‘AS an aid to the conduct of the study the Governor appointed
an informal committee consisting of the Commissioners of
Mental Hygiene and Correction, the Chaiman of the State
Board of Parole, and the General Secretary of The Prison Asso-
ciation of New York.

‘The committee's findings recommend that legislation be pro-
vided for the establishment of a study and treatment unit at
Sing Sing Prison. The unit’s findings after approximately one
year of operation will then be used as a basis for legislation,
or other steps that may be necessary, to provide improved
methods of dealing with the sex offender.

‘The committee recommends the unit be under the auspices
of the New York State Psychiatric Institute, under the direction
of Dr. Nolan D. C. Lewis, a world recognized authority.

RECOMMENDATIONS TO THE LEGISLATURE

‘The Prison Association of New York cannot urge too strongly
that the Legislature pass the bill recommended by the com-
mittee establishing the unit and providing the necessary funds
and procedure for its operation. It is imperative that a well
rounded plan be developed, leading to more scientific treatment
of offenders of this nature,

IV. DESIGNATION OF RECEPTION INSTITUTION

Stis recommended that the present Sing Sing Prison be desig-
nated as a receiving prison for male felony offenders over the
age of 21 and for certain groups requiring specialized and
highly professional treatment.

Tt is further recommended that the Green Haven Prison be
used as a sentence institution in lieu of Sing Sing except for
small groups requiring special attention.

‘On many occasions The Prison Association of New York has
referred to its more than three decades of urging, that a state-
Wide prisoner classification system be provided. Beginning in
1916 with the slogan “Sing Sing Must Go" the Association has
Jong urged a reception prison. The time is now appropriate
for activating this recommendation.

"The fact that approximately 75 per cent of Sing Sings com-
mitments are received from the New York City area justifies its
lise as a reception prison. As operations develop it may prove
advantageous to consider the use of Attica as a receiving prison
for other sections of the State.

‘With the return to the State by the Army of the new Green
Haven Prison the facilities are now available to make such a
move. With the release of Sing Sing as a long-term sentence
institution its facilities could—and should—be converted for
uuse as a reception prison for those over 21. In addition its facil-
ities could well be diverted for the housing and study of such
categories of offenders as sexual psychopaths, and others pre-
senting difficult personality and maladjustment problems re-
‘quiring special study and treatment.

"Now is the time to make this change. We urge that legislative
support be given to this proposal.

‘The recently published “Handbook on Classification in Cor-
reetional Institutions” compiled by The American Prison
‘Association, in discussing the basic principles of classification,
‘emphasizes that the fundamental purpose of prisons is the pro-
{ection of the public welfare. “This means,” states the Hand-
book, “not only good custody but that the public welfare can best

1s ‘Tite PRISON Association oF New York

as law-abiding citizens.” In order to achieve
thle ty the Handbook points out that, “The necessity
LY words, “classification includes not only dia, z

‘ork feels it is at this point
rection needs to clarify,

Tt is recommen
tional

m ly
{determi fences in the Penitentiay
It is further recommended that the New York City Reforma

tory at New Hampton be transferret Si
tory at New Hamp ferred to the State Department

Comment:

Similar departments operated hy
: ted by

‘There is no indieation that the
City correctional probiem wit
the passage of time. As a mater of
the Fevers tobe te

"The time appears appropria
cortain base changes chanyee thee

responsibility and task of the
lighter or less complex with
‘fact, experience has shown

9 the recommendation
langes—changes that cannot be brought aba

RECOMMENDATIONS T0 THE LEGISLATURE 19

through administrative order but changes requiring legislative
action.

It has long been the custom for the State to assume respon-
sibility for the care and treatment of adult offenders convicted
of felonies. The law implies that all persons with sentences of
‘more than one year should serve their imprisonment in a State-
administered penal institution.

‘The point of variance, as it relates to New York City, con-
corns the fact that persons sentenced to terms of not more than
three years may be committed to the Penitentiary of the City
of New York, and thereby become local charges. The City like-
‘wise is called upon to accept a number of persons under so-called
“Workhouse Indefinite” sentences providing for a two year
maximum sentence for certain categories of less serious
offenders.

The end result is that the New York City Department of
Correction houses and has sole jurisdiction over many prisoners
who, had they been convicted on similar charges elsewhere in
the State, would be confined in State penal and correctional
institutions.

For many years in these Reports, The Prison Association of
New York has urged that the State assume full administrative
control of the various county penitentiaries. This does not imply
county jails but simply the few county-operated penitentiaries.
‘This recommendation has been urged consistently in the inter-
est of centralization of control and administration and the
ultimate saving to the taxpayer.

"The long range general “streamlining” of the State's cor-
rectional process requires consideration of this recommenda-
‘ion, All prisoners committed for indeterminate sontenees in the
Penitentiary of the City of New York should be confined in an
institution to be designated by the State for this purpose in
lieu of the present procedure.

‘The New York City Reformatory should become a part of
the State's program in the treatmont of the adolescent offender.
‘While there has been considerable improvement in 1947 of this
institution it is not the province or funetion for the City to
attempt an involved rehabilitation program for adolescent pris
oners, The Reformatory should logically be related to the exeel-
Jent program and plan of the State's Reception Center.

‘The New York City Department of Correction always ap-
pears to have the dubious distinction of operating at least one
institution which has long borne the brunt of public and private
criticism. Now that a new City Prison for Brooklyn is nearing
‘the construction stage, thus leading to the abandonment of

20 ‘Tue PRISON ASSOCIATION oF New York

‘the Raymond Strect Jail, the New York City Reformatory will
bbe called upon to assume the full blast of criticism.

Te should be stated, however, that the present administration
of the City Department of Correction has brought about a num-
ber of commendable improvements during 1947. The basic point
at issue is not what ean be done to improve the institution, as
such, but what can be done to properly coordinate a reforma-
‘tory-type institution for adolescent offenders into a unified eor-
rectional plan.

‘We believe that the City should not engage in the business
of running sentence institutions with the exception of jails and
‘workhouses. ‘The operation of a reformatory is clearly the fune-
tion of the State particularly now that the Blmira Reception
Center is an actuality. As presently constituted the City Re-
formatory has no relation whatsoever with the Reception
Center, yet in theory it parallels to a considerable degree the
State Reformatory also at Elmira.

For years the Prison Association has pointed its finger of

criticism at the lack of a sound rehabilitative program at New -

Hampton. Oftentimes we have gone so far as to urge its com-
plete abandonment unless radical changes were made. This we
disliked because, as the record will show, the Association was
conspicuous by its efforts nearly fifty years ago in the devel-
‘opment of the Reformatory, just as it was in the founding of
the entire reformatory movement in this country with the
opening of Elmira in 1876

‘We urge that consideration be given to the transfer of the
City Reformatory to the State, through its Department of Cor-
rection, then to be assimilated with the Reeeption Center and
other institutions. The Reformatory has great potentialities,
Its plant and site are, on the whole, generally satisfactory but
it stands out alone as the sore thumb of our City correctional
process.

In these two recommendations we acknowledge the contribu-
tion of the Citizens Budget Commission with which organiza-
tion the Prison Association cooperated in its recent survey of
the City Department of Correction. The Association aided in
the inspection of institutions and gave benefit of its intimate
Knowledge and experience of correctional conditions in New
York City gained over a long poriod of time. The Association
gave comment and criticism to various drafts of the report and
consulted with Budget Commission representatives prior to and
during its fact-finding stage. This survey eubmitied in January,
1948, to the Mayor, outlines administrative and other changes
Jeading to greater economy and efficiency of operation. Some of
its recommendations to the Mayor are considerably in the realm

RECOMMENDATIONS TO THE LEGISLATURE 21

of long-range planning, and are similar to recommendations
often made by this Association. Our stand that a city correc-
tional system should not be called upon to operate long-term
sentenee institutions is a case at hand. The Budget Commission
is to be commended for a task well done and the association joins
in urging the consideration of its findings as they relate to the
City Department of Correction.

VI. RETENTION OF PROFESSIONAL SERVICES IN
STATE CORRECTIONAL INSTITUTIONS

It is recommended that medical, psychiatric, psychological,
‘edueational and other professional services be retained and ex-
panded within the institutions of the State Department of
Correction.

Comment:

It should not be necessary, year after year, to plead for the
retention of professional services. Particularly are these serv-
ices necessary if and when the State presents a clear-cut cor-
rectional policy, There ean be no argument that if correctional
institutions are to fulfill their basic purpose of protecting s0-
ciety, specialized personnel is necessary.

The State of New York is fortunate in that it need not ap-
propriate millions of dollars for new institutions but it will have
to take cognizance of the need for professional services at but a
very small proportion of institutional costs.

VII. PRISON INDUSTRIES

It is recommended that an advisory committee on correctional
Industries be authorized by the Legislative within the State
Department of Correction to aid in the development of work
programs for prisoners.

Comment:

In previous years the Association has recorded pleas for len~
islative support to the end that prison industries be maintained
and expanded as an aid to the rehabilitation of inmates. The
impetus of war fervor has long ago ceased to be a stimulant to
prison labor. We have now returned to the point where prison
labor again assumes a critical level.

Profiting by the experience of other States, notably Cali-
fornia, the Association now recommends the provision for an
ageney within the Department of Correction to assist with de-
vising and planning an intelligent work program contributing

22 ‘Tue Prison Association ov New YoRK

to the training of prisoners and support of institutions and at
the same time decrease to a minimum competition with private
industry and free labor. Such a committee could facilitate im-
proved understanding on the part of the public of some of the
intricate problems surrounding prison labor. -

This group should be appointed by the Governor, with the
Commissioner of Correction as chairman. It is suggested that
two members represent organized labor, two represent in-
dustry, one agriculture, and one the public at large, making a
total membership of seven to serve without salary.

‘The Association is of the opinion that the formation of such

oup is in hatmony with present day procedure of close rela-
tionship between industry and labor.

"Phe committee, among other duties, should advise on the
suitability of establishing, expanding, diminishing or discon-
tinuing industrial or agricultural enterprises.

‘The United States Department of Justice through its Fed-
eral Prison Industries, Inc., has long had an advisory eommis-
‘sion of this nature, as have several of the States.

VIII, THE CHRONIC ALCOHOLIC

It is recommended that the Department of Mental Hygiene
accept for the State the responsibility for the long term hos-
pital care and treatment of the chronic alcoholic or problem
drinker.

It is further recommended that the Mental Hygiene Law be
amended to provide for the certification of problem drinkers
public mental institutions.

Comment:

In these recommendations The Prison Association of New
York joins with the Westchester County Joint Committee on
‘Aleoholism with which it has been working in close collabora
tion during 1947. The Association's primary interest in the
alcoholic problem is to urge its separation from the point of
view that its treatment is a penal problem. In some particular
instances this could conceivably be true but basically jails and
prisons are not suitable places for the treatment of alcoholism
‘as such.

‘At this point we do not take a stand that the problem is a
medical, psychiatric, or moral responsibility; we simply state
that it is definitely not a correctional responsibility unless the
aleoholic committed a crime while under the influence of al-
cohol. Alecholism in and of itself is symptomatic of a deep-

RECOMMENDATIONS TO THE LEGISLATURE 23

seated personality problem that requires far more specialized
treatment than is currently available in a jail or prison.

‘The Association likewise joins with the Westchester Com-
mittee in advocating that a “pilot” or experimental unit be es-
tablished in some locality where sreneral hospital facilities are
available, Under the general guidance and direction of the
Department of Mental Hysriene further elaboration of the plan
should take offect after the “pilot” unit has demonstrated its
effectiveness. We need sound scientific experimentation with
this problem and strongly urge legislative support to this end.

‘The recommendations may appear elementary but suflice it to
say that despite the numerous experiments conducted in New
‘York State over the past century no formally accepted program
is presently available.

IX. TRANSFER TO CERTAIN INSTITUTIONS UNDER THE
JURISDICTION OF THE DEPARTMENT OF
MENTAL HYGIENE,

It is recommended that Section 439A of Article 17 of the
Correction Law to be amended to broaden the power of transfer
from institutions in the Department of Correction to those of
the Department of Mental Hygiene.

Comment:

On the basis of official records and findings, it is obvious that
there are confined in the institutions for mental defectives
(Napanoch, Woodbourne and Albion) some who should not be
in correctional institutions. Such persons are inadequate and
incapable of adjustment to community life. At the same time
they offer no behaviour problems and most have exemplary
‘conduct records and in no way are disciplinary problems. There
are some in this eategory who would benefit and profit from
admittance to the more specialized institutions of the Depart-
ment of Mental Hygiene.

_ The law presently provides for the transfer of certain indi
viduals under 21 years of age and the Association feels that it
would be to the best interests of the State to provide for the
transfer of some over 21,

No age limit is set. in Section 184 of Chapter 874 of the
Laws of 1945 for the transfer of certain persons from the
Department of Mental Hygiene to the Department of Corree-
tion. Likewise it is felt that there should not be a restricting age
limit affecting transfers from the Department of Correction
to the Department of Mental Hygiene,

‘Tue Prison Association oF New York

X. BENZEDRINE TRAFFIC

It is recommended that legislative action be taken so as to
provide that the introduction of benzedrine into a penal or
correctional institution for other than official use be classified
as a felony.

Comment:

Prison administrators throughout the country coneede that
the introduction of benzedrine into a penal or correctional
institution for other than official use as prescribed by duly
Ticensed members of the medical profession is detrimental
to the health and morale of prisoners. The fact that henzedrine
is not classified as a narcotic, and thal no penalty now exists for
the introduction of the drug into a place of confinement, adds
to the administrative problems of officials. Benzedrine has its
‘proper use as does a narcotic but it likewise may be used to make
the equivalent of an intoxicating drink. Benzedrine may be pw
chased at any drug store without the presentation of a physi-
cian’s prescription and its ease of purchase adds to the nature
af the problem, The State Commission of Correction recently
cireulated a warning bulletin to institutional administrators
pointing out the dangers inkezent in the misguided use of this
drug. Legislative action aa recommended above would serve to
reduce to a minimum the traffic in benzedrine that is presently
a difficult administrative problem.

XI, EXTENDING POWER OF STATE BOARD OF PAROLE
IN CERTAIN CASES
Article 8 Section 219, of the Correction Law should be
amended so'as to empower in suitable cases the State Board of
Parole to determine what portion of a remaining maximum
term is to be served by a parolee who commits a felony while on
parole,

Comment:

It seems unfair to require every parolee who commits a felony
while on parole to serve the time remaining of his original
maximum sentence, from the time of his original parole, before
starting to serve his new sentence. There are instances where
inmates have had a good record on parole for a considerable
number of years but make a mistake which results in a new
felony charge. Such individuals might have to serve many years
on their original sentence before boginning the new sentence.
On the other hand, certain individuals are in and out of the

RECOMMENDATIONS T0 THE LEGISLATURE

institution several times as parole violators and finally commit
a felony perhaps only a few months before the original maxi
mum is up. Such individuals ave required to serve only a short
time before they begin to serve a new sentenee. It is quite evi-
dent that this type of individual is a much poorer risk for
society than the one referred to above, who has committed only
the one offense while on parole,

Chapter 678 of the Laws of 1945 excluded Elmira Reforma-
tory parole violators from the mandatory language of Article 8,
Section 210 of the Correction Law.

XIL. FIVE YEAR LIMITATION OF SENTENCE AT THE
NEW YORK STATE VOCATIONAL INSTITUTON
AT COXSACKIE,

It is recommended that Section 248 of Article 13A of the
Correction Law be amended so as to impose a five year limit on
all sentences of those committed to the New York State Voca-
tional Institution at Coxsackie.

Comment:

Particularly in the case of adolescent offenders such as those
‘committed to Coxsackie, it is highly unlikely that an individual
would profit by more than five years of confinement. It seems in
order, therefore, and in the interests of greater efficiency of
administration, to recommend Legislative action through the
amendment of Chapter 678, Laws of 1945, which limits the
‘maximum term at Elmira Reformatory.

XIII. IMPROVED PROBATION
It is recommended that the following proposals be given
Legislative support in the interest of improved probation serv
ice in the City of New York:
(1) Legislation to raise to the highest possible level of
organization and efficiency the eight different and un-

related probation services now in operation in New York
City.

Extension of the authority of the State Probation Com-
mission to the point where its authority will be of greater
value to the people of the State than its present limited
advisory powers.

‘The establishment of a stato subsidy for the development
of probation in those areas not now utilizing this pro-
gressive treatment procedure,

26 ‘Tue PRISON AssociATION oF New York

Comment:

‘The progress of probation in New York State since the date
of the first probation law more than 40 years ago is well known,
‘As is the ease with other treatment procedures there is room
for further improvement. The value of probation lies in its
statewide usage and the quility of its administration. The
Prison Association of New York is especially concerned with
‘this matter in view of the fact that it was the pioneer agency
identified with probation in the Court of General Sessions (Man-
hattan), For many years the Association stood alone in urging
the improvement of probation. The Association believes, how-
ever, that the unevenness of probation in New York City should
hot continue, In the interest of the highest level of procedure,
Sandards and administration a consolidation of existing serv
joes is necessarily based upon a eaveful study of administration
and handled by competent leadership.

‘in the interest of improved probation services in other see
tions of the State, the Association recommends the extension of
the authority of the State Probation Commission beyond the
point ofits present limited advisory powers.

"The subsidy plan as recommended would enable the develop-
ment of probation in those areas not now in a position to finan-
cially sponsor sveh a service.

"The Association agrees in substance with the report sub-
mitted to the Mayor of the City of New York in February, 1946,
by the State Probation Commission. This report recommended
the immediate consolidation of the probation departments of
the eight courts involved and stated that: “A consolidated pro-
bation department would provide the best means of coordinat-
ing and systematizing the probation work in the eity, otiminat-
ing the duplication of effort and overlapping of functions that
now exist. ... The primary purpose of a consolidated depart-
ent would be to establish and maintain the highest quality of
probation work for the entire city

Legislation is necessary before the recommendation can be
put ito effect and the Association repeats its urging of many
years past that the Legislature give its long-needed attention
to this situation

XIV. STATE COMMISSION OF CORRECTION

It is recommended that the law be amended so as to remove
limitations now placed upon the funetioning of the State Com-
mission of Correction, This will involve a study of Sections 401,
and 410 of Chapter 606, Laws of 1926, and Sections 46, 47 and
48 of the Correction Law (Chapter 243, Laws of 1929).

RECOMMENDATIONS TO THE LEGISLATURE 27
Comment:

‘The Prison Association is largely responsible for the estab-
lishment of tho State Commission of Prisons, the suecessor body
of which is the present State Commission of Correction. In
urging the establishment of the original body, prior to 1894, the
Association held that there should be a state financed, indepen-
dent, freehanded supervisory body to concern itself with the
penal and correctional institutions of the State. Under the pres-
ent arrangement, the Chairman of the State Commission of
Correction is the Commissioner of Correction. This was not the
ase prior to 1926, It is evident that there now exists the anoma-
lous situation whereby the head of the Department of Corree-
tion is also the Chairman of the Commission (a Constitutional
provision which we do not consider sound). ‘The Commission is
required by the Constitution to visit and inspect the institu-
tons designated for the housing of sane adults charged with or
convieted of crime. Under present procedure the Commissioner
of Correction is in a position somewhat similar to that of the
head of a corporation who could control the audit of its books
and affairs,

‘The Association has recommended and continues to recom-
mend that the words“. .. subject to the direction and control of
the Commissioner of Correction” as applied to the eneral pow-
ers and duties of the Commission be omitted in the chapters and
sections referred to above. By deleting the specific “direction
and control” language there is less danger of restricting the
activities of the Commission or defeating the purposes for
which it was established, to wit, frechanded investigation and

supervision in the interest of good management and public
welfare.

XV. EXAMINATION INTO SENTENCING PROCESS

It is recomended that the Law Revision Commission receive
logislative authorization and direction to conduet an examina-
tion into the sentencing progress of the various courts with pro-
vision of the necessary funds for the completion of the study.

Comment:

It has long been acknowledged that a disparity of sentences
is evident throughout the State. The major result of this condi-
tion is discontent and a fecling of injustice among those con-
fined in the institutions of the State Department of Correction
and other penal institutions within the State. The goal to be
attained is the even application of justice dispensed on the basis

28 ‘THE PRISON Association or New York

of individual consideration rather than stereotyped punishment.
‘The Law Revision Commission is the logical body to conduct
such a study and the Association urges legislative support to
this end.

XVI. PUBLIC DEFENDER AND DEFENSE ATTORNI

Tt is recommended that the Legislature authorize the judicial
Couneil to explore the question of the advantages and disadvan
tages of the public defender system and its possible adoption
by the various counties as a part of their judicial process

It is further recommended that the Judicial Council be di-
rected and empowered to investigate complaints by defendants
in criminal actions relative to the inadequacy of efforts and, in
‘many cases, failure on the part of some attorneys to render sat-
isfactory service. An undertaking of this nature should be pat-
termed after that employed in curbing “ambulance chasing.”

Commen

‘The public defender system has long been an integral part of
the judicial process in such cities as Los Angeles, Omaha, Col
umbus, Memphis, Providence, St. Paul, St. Louis, San Fran-
cisco, and others; and the States of Connecticut, Mississippi,
Nebraska and Vitginia, It is apparent that the plan embodies
features leading toward the breakdown of the use of court-
assigned dei
“shyster lawyer” practices. This should be considered of suff
cient value to warrant the adoption of the public defender sys-
tem. It is felt, however, that legislative authorization to the
Tudieial Connell to make suitable inquiry and recommendations
is appropriate and advisable prior to making specific recom-
mendations for legislative action,

Concerning the second part of this recommendation it may
be stated that the modus operandi employed by some atto
to obtain compensation constitutes a disgrace in the legal pro-
fession. While it is not denied that attorneys should require due
‘compensation for services faithfully performed, it is, however,
to be expected that adequate defense in accord with the highest
ethics of the legal profession be given in return. Those attor~
neys who devote more time to finding ways and means of obtain-
ing compensation instead of providing wholly satisfactory serv-
ices or who urge elients to plead guilty on the alluring promise
of receiving the mercy of the court through release or light sen
tence should not be permitted to trifle with the predicament of
their clients or the high standards and honor of their profession,

RECOMMENDATIONS TO THE LEGISLATURE 29

XVI. TRANSFER OF PRISONERS UNDER THE JURISDIC-
DICTION OF THE COMMISSIONER OF CORRECTION
OF THE CITY OF NEW YORK TO MATTEAWAN
TATE HOSPITAL,

It is recomended that legislation be provided to expedite the
transfer of prisoners certified to be insane and under the juris-
diction of the Commissioner of Correetion of the City of New
York to Matteawan State Hospital.

Comment:

‘The procedure involved in transferring a prisoner certified to
be insane from institutions of the New York City Department
of Correction to Matteawan State Hospital is considered to be
cumbersome and time-consuming. Froquently this procedure
covers 2 period of at least four weeks and is obviously not in the
best interests of the prisoner concerned. Section 408 of the Cor-
rection Law provides the procedure for such transfers. Officials
of the New York City Department of Correction must request
the Corporation Counsel of the City to apply to the Supreme
Court for an examination of the alloged insane prisoner by two
‘qualified examinors. Should the examination result in an affirm-
ative opinion City officials then are required to apply to the
court for a commitment order for transfer to Matteawan, At
the present time female prisoners in need of hospital care and
unusually disturbed male prisoners are sent to Bellevue Hos-
pital but the Hospital need not, by law, accept prisoners of this
category and doos so only as an accommodation. What is noeded
is author
finally subject to the
ome Court to transfer such prisoners in
need of specialized eare for mental disease direet to Matteawan
State Hospital. Section 883 of the Correction Law grants author-
ity of this nature to the State Commissioner of Correetion in
‘the cases of prisoners under his jurisdietion who are adjudged
‘The Association urges appropriate amendment to the Corree-
tion Law placing in the hands of the New York City Commis-
sioner of Correction authority similar to that now granted to
the State Commissioner of Correction,

XVII. ATTEMPTS TO CURTAIL PRISON INDUSTRIES

‘The Prison Association again this year departs from its cus-
tom of restricting this section of its annual report to reeom-
mendations and places on the record an emphatic word of

80 ‘Tue Prison ASSOCIATION oF New York

caution to members of the Legislature. We renew our urgent
plea for legislative support to the end that prison industries not
‘be decreased in scope and operation and that they be supported
in every way possible.

‘This comment is made on the basis of long observation of both
the prison industrial organization and various deliberate at-
tempts to restrict its progress. We urge the Legislature to be
alert lo ignore or defeat any attempt by selfish Interests to eur-
tail the maintenance of the voeational and industrial operations
of the State's penal and correctional institutions, The industries
operate under the constitutional authority providing for the
State-Use plan of prison industries. Surveys have shown the
dogree of competition with free labor to be negligible.

‘The Legislature, working as it does in the best interests of
the people as a whole instead of those with axes to grind, should
meet such attacks with vigorand conclusive negative action, At
the same time we call upon the Legislature to strengthen and
encourage the present industrial facilities and operations
through appropriations for modern and urgently needed new
equipment and trained instructor and sales personnel. We like-
‘wise urge the expansion and diversification of prison industries
within the provisions of the Constitution.

Legislative support of the prison industrial program ean be
‘a vital force toward public protection through the rehabilita-
tion of prisoners.

New York Times Editorial
September 12, 1947

‘THE PRISON ASSOCIATION

of who koup out of sari) OF the many topes dlscuased we
ty

the fal report doar tel ne
these suggestions ar rings home | grog of fod. Thee are fro ror
once more the many’ defects | poral surely, on whieh there can

fganiaation that watches ove sponsible ficais and legen
‘analing of those probleme Tators will follow throug

KEEPING FAITH WITH THE FOUNDERS

Herewith are presented various items to give an idea of the
workings of the Association during its 103rd year and the
breadth of its interests and activities. Fortunately from its very
beginning, the founders had the vision of thorough yet wide-
spread activity ali relating to a well rounded approach to and
treatment of the problems of criminal behaviour. Through the
years the Association has served not only as an unbiased in-
formant to the public of conditions warranting their attention,
but as a projector of ideas toward progress. It has pioneered ir
the shaping of procedures, systems, and organizations both in
and out of institutions to make for better understanding and
greater efficiency in the correctional field and ultimately for the
public general welfare. The brief summary contained in the
Association's 100th Annual Report” gives ample proof of the
steudfastness to this type of functioning as well as the worth
while results achieved, It is in accord with this pattern of thin|
ing and action that the Association continues year after year
with unceasing devotion and renewed endeavor

‘The pages of this summary and the remainder of the report
will reveal a desire to keep alert always in the public interest
and to move in ways that will gradually bring about those im-
provements that cannot be achieved immediately.

New York Gi, The Assocation continies ite close contest,
Depariment of with the New York City Department of Cor-
CcEriln ection trough cooperation wt he hea of
ite Deparment, Commissioner. Aller Wit
lams. On the osesion of ns appointment oa General Sear
trey adretnd hin allows
My, degr Coramtantoner: cobain
eee ara items

_Atsolaton al the Commlgsion have ne other cbectve
the highest possible evel.) 7s suute Co¥rectional systems to
‘With best wishes to you for sucess, Tam

Sincerely your,
(Signed) E.R. cass

_ jenaral Secretary

"See Beginning page 25 of the Assoviation’s 100th Ammual Report to the

State Legislature
[32]

KEEPING FAITH WITH THE FOUNDERS 33

It has been very gratifying to note through the year the
earnestness with which Commissioner Williams approached
and treated the various problems within his Department. Many
cf the recommendations and suggestions made to him officially
and otherwise through Commissioners Schoenfeld and Cass,
especially those set forth in inspection reports, were complied
with to the best of his ability.

'At the December (1947) meeting of the Association's Execu-
tive Committee Commissioner Williams was the guest of honor
and he reviewed the general situation existing in the Department
at the time he took oflice and the steps taken to improve condi-
tions and make for progress. The Prison Association of New
York ean testify that there has been a marked improvement in
‘the morale and general tone of the Department and that there
has been increased efficiency and improved organization and
procedure. As one deals with the Department now, the impres-
sion is quickly gained that there is someone at its head who
Knows what is needed and wants something concrete in the way
of results, In giving this commendation there is no intention of
creating the impression that Commissioner Williams has solved
all the problems wthin his Department. He would be the first
one to admit that that is not so. Aside from many details of
organization improvement, outstanding is his desire to provide
the best possible jail to displace the City Prison in Brooklyn and
to improve conditions at the City Reformatory, New Hampton.
We were glad to note his cooperation with tho Citizens Budget
Commission and his general agreement with the findings of that
body. These findings, as noted in other parts of this Report, were
in harmony with the diseussion and suggestions mado by the
Prison Association in its contact with those having to do with
the development of the Report. All of the above is by way of
saying that although there is much to be done, the year 1947
under the leadership of Commissioner Williams was a good one
for the New York City Department of Correction.

ity Prison, ‘The old Raymond Street Jail was ones more
Brooklyn brought to public notice by the eseape of nine

inmates on January 2, 1947. They were men
experienced in crime. Commissioners Schoenfeld and Cass, in
their dual capacity as members of the Executive Committee of
The Prison Association of New York and of the State Commis-
sion of Correction, visited the prison while the excitement of the
escape was still high and spent sovoral days following the break
making observations and holding conference with representa-
tives of the City Department of Correction and the District
Attorney of Kings County. At the beginning there were two

34 ‘THE PRISON AssocIATION oF New York

theories regarding the escape: One, that the bars of the window
through which the prisoners made their exit were sawed from
the outside; and two, that they were sawed from within. One
thing is certain: ‘The jail has long been outmoded and the eon-
demnation that was directed toward it almost from the begin-
ning of its use has been repeated and emphasized on various
oceasions through the years and by official and unofficial bodies
as well as citizens generally interested in publie welfare,

‘The escape was formally investigated by the Grand Jury of
‘Kings County and our General Secretary, Mr. Cass, appeared
before that body on twvo occasions, having conferred previously
with the Chief Assistant District Attorney, Mr. Edward S.
Silver. The Grand Jury in its report included various photo-
graphs showing parts of the inside of the jail and the grounds
outside used by the escapecs. It eriticized come administrative
practices relating to the movement of prisoners within the jail,
the selection of trusties, and placed considerable emphasis on the
oldness and general unsuitability of the building, Significant in
the report is a statement “that there is, as far as we have been
able to ascertain, no evidence of corruption of any ef the prison
personnel, nor was there evidence of connivance between any
of the personnel and any prisoners, or between the personnel
and any of the persons who aided the prisoners before or after
the break.” A copy of the full presentment is in our files. A letter
to the General Seerotary from Chief Assistant District Attorney
Edward 8. Silver under date of May 2nd states in part: “T want
to take this opportunity to thank you for your graefousness and
cooperation in this matter. Your aid was invaluable.”

Under date of January 7th the following letter was sent to
Mayor William O'Dwyer commending him

My dear Mayor O'Duyer

“Te ts untor fai thatthe resent rel outed aftr a done
go'much to improve the conditions generally ax well ue the Sad

Ue Raymond Stree
‘Bio hanes Po the bee that hi aie i could not be
i Commision has urged for years that there be anew Ci
vim, Beogdim: For entre jn out 1804 npeatign report Wage

Sramenided "Phat a newr City Felson Zoe: Drockisn ke peowtied

ot only fon adults But adsles
ents ae well” Regarding pesaonel su rocorSmendatos it the eee

‘Keepin FAITH WITH THE FOUNDERS. 35

"a, ily Authorities shold give the Commlesones of
jumerieal strength

are hopeful that much progress will result in the Department
under te lebdoriip of Conpiaioner Wiliams ant ot —
acl? who have known him tn the Police
edged our assistance to him inthe interest of Pros™
oor and aound administration.

Sincerely yours,
(Gigned) E.R. CASS
‘The following acknowledgment was received from Deputy

‘Mayor John J. Bennett dated January 10th:

Vith kindest fegards and hoping to see you one of these days, Iam

Bina

Gigned) JOHN J, BENNETT

Soon attor the above escapes it became evident that the City
once more was anxious to replace the Raymond Street Jail with
a better type of structure and more conveniently located to the
Gontral Gourts Building in Brooklyn, On invitation of the New
York City Department of Correction, The Prison Association
of New York suggested various architects whose experience and
reputation in the field of prison construction justified their con-
sideration for the drawing of plans for a new City Prison. The
‘General Secretary sent a similar communication expressing the
opinion of The American Prison Association, and identical ac-
tion was taken by the New York State Commission of Correc-
tion, As a result of thorough investigation and evaluation on the
part of the City Department of Correction and the Department
of Public Works the firm of Alfred Hopkins and Associates of
New York City was solected. The Association is long aware,
going back as far as 1915, of the ability of this architectural
firm, it having under the inspiration of the Association drawn
plana for a new Sing Sing Prison in 1916 and subsequently de-
signed county, state, and Federal institutions reflecting a
markod departure from the conventional typeof prison arehi-

tare,

Mr. Clarence B. Litchfield of the firm of Alfred Hopkins and
Associates has been in frequent contact with the Prison Associ-
ation relative to the development of plans for the new City

36 ‘THE PRISON ASSOCIATION oF NEW YORK

Prison, Brooklyn, and both Commissioners Schoenfeld and Cass
have had the advantage of frequent contact with Commissioner
Williams of the City Department of Correction on the same sub-
ject. There is now available a set of plans that should finally pro-
duce a City Prison superior to any now existing.

For a detailed discussion of the general layout and features of
the new City Prison, the following has been prepared by Com-
missioner Williams:

CITY PRISON AND REMAND SHELTER
Brooklyn, N. Y.

For many year's much has been said about the deplorable con-
ditions existing in City Prison Brooklyn, known as the Ray-
mond Street Jail. City officials, leading citizens and Grand
Juries have offered criticism but little had been done to correct
the situation, Now, the present City administration proposes to
erect a new twelve story City Prison and Remand Shelter adja-
cent and connected to the Brooklyn Central Courts Building by
a tunnel. This arrangement will result in the saving of man-
power as well as solve the present problem of transporting
inmates.

‘The new institution will have a capacity of over 800 inmates
with provisions for the detention of adolescents that will be
completely separated from those of the adults.

‘The aim of the design of this new structure is to provide:

A. The maximum number of inmates within the appropri-
ation.

B. Security; a plan that would allow for complete security
while utilizing a minimum number of employees and guards in
case a similar manpower situation arose as confronted all
Departments of Correction during World War II.

C. Facilities that will help reduce the monotony and stagna-
tion of confinement.

D. Sanitation with regard to cleanliness of the materials and
room finishes that will be easy to maintain and keep clean.

E. Proper segregation of inmates,

Typical Cell Floor Plan:

‘The plan provides for the service facilities ; such as stairways,
ducts for ventilation, elevators, lobby, interview rooms, blanket
and pantry rooms being placed in the core of the building. The
cells, dayrooms and guards’ walks enclose the service facilities
and are next to the protected and well lighted outside walls. In
order to eliminate the common practice of using the inmates’
corridors in front of the cells, four separate dayrooms are pro-
vided on each floor for the following reasons :

Lijtieen iy
es Seo
CrLPee TITTISELTIITIT]

UPPER TIER

TYPICAL FLOOR,

Sry eRISON

TYPICAL FLOOR
City Prison, Brooklyn, N. ¥.

‘Keerine Fara wiri rH Founpers 87

A. To place inmates near the central guards’ corridor during
the day for ready supervision by the officer.

B. To provide rooms where inmates can enjoy the radio or
some other form of entertainment, leaving the cells quiet for
those who need rest during the day,

C. To provide rooms where hobby or instructional classes ean
bbe condueteed.

‘The contral guards’ station will be in the central guards' cor-
ridor with direct supervision of and access to the elevators and
stairs leading to other levels through a secure grille, the pantry,
and the guards’ office where records are kept, and the light and
the telephone controls are located. The officer will have good
vision and immediate access by his stair to the walks above lead-
ing to the blanket storeroom, barber shop and interview rooms.
‘The four day rooms on each floor will be at each end of the
guards’ corridor separated from it by security vision windows,
allowing the officer to give supervision whether he is in the con”
tral eorridor or on his walk. The four control eabinets operating
the locking devices of all the cells are also located in the central
corridor. Each typical cell floor will include two tiers of cells
with a total of about 112 cells to the floor.

‘Surrounding the cells and inmates’ corridors; against the ex-
terior wall, is a guards’ walk separated from the inmates’ cor-

ridor by a grille to proteet the guard from inmate assault. The
walk is elevated to allow the officer to view and supervise the
upper and lower tiers of cells from the same location.

Cheerful colors will be used throughout the building, keeping.
in mind that dull color adds to the monotonous and depressive
atmosphere of any structure.

Adolescent Facilities:

‘The ninth and tenth floors will provide for adolescents. The
ninth floor will be typical to the adult floors, but the tenth floor
‘will include a gymnasium and library for the exclusive use of
the adolescents. The eleventh floor will contain two large areas
for outdoor recreation, the combined chapel and auditorium,
and the doctors’ and dentists? sick call rooms.

Basement Floor:

The basement will have storage rooms, maintenance shops,
commissary, tunnel to Courts Building, laundry, pistol range
and equipment rooms.

First Floor:

‘There will be three entrances to the prison, all on the first

floor:

38 ‘THe PRISON AssoctaTION oF New York

A. Service entrance through a supervised sallyport where
all supplies and inmates will enter.

B. Administration entrance for lawyers, personnel, and
others having business in connection with the institution.

©. Visitors’ entrance for inmate visiting.

‘The first floor provides for three important funetions:

A. Administrative facilities including Lobby, Warden's
Office, General Business Office, Captains’ and Guards’ Locker
‘Rooms with briefing space.

B. Receiving room facilities will be so designed that adult
inmates enter a eoparato receiving room, never coming into con-
tact with the adolescents. In order to conserve space and per-
sonnel, the same officers will receive both groups, The clean-up
and medical examination rooms are the same for both groups,
‘but will be used at different times. Four pens will be available
for the daily adult admissions while two reception pens are pro-
vided for adolescents. ‘The adults pass to the elevator lobby on
the first floor to be delivered to their assigned floors, while the
adolescents go to the second floor elevator lobby, still keeping
segregated at all times. :

©. The lawyers’ consultation room will be so arranged that it
will be possible for twenty lawyers to hold consultations at the
same time.

Second Floor:

‘The second floor provides for visiting of inmates by relatives
and friends. Adults’ and adolescents’ visiting hours will be at
different times. The visitors’ waiting room, with space for 65,
leads directly to the street entrance. The cashier's window and
package receiving rooms are near the entrance, as is the booking
desk where visitors report their arrival and departure and from
where inmates are informed of their visits. There will be 41
security type visiting booths ontored by inmates trom their
‘waiting rooms near the canter of the building while the visitors’
‘waiting room is at one end.

‘The central library will also be located on this second floor
where books, games, and other recreational facilities will be
kept by the librarian for the use of the inmates. The inmates on

eive books and other quict games by
d delivery.

‘A guards’ tower over the sallyport at the serviee entrance,
guards’ room over administrative entrance (giving supervision
of the building frontage, lobby, public business office and gen-
eral business office) as well as record storage space are also on
the second floor.

Keerinc Farr Wit THE FouNDuRs 39

Third Floor:

The third floor will contain the main Kitchen, three dining
rooms and material witness facilities, The captains’ dining room
will have 12 seats while the rest of the employees and officers
will use the cafeteria served dining room with approximately 50
seats. The assigned inmate help will also have eafeteria service
in their dining room with a seating eapacity of 88.'The material
witnesses will be housed on this floor for the availability of
lawyers and visitors who go directly to the visiting room in the
witness section. There will be 86 cells in the material witness
section as well as a dayroom, pantry, barber shop and linen

Exterior Design:

‘The exterior masonry walls will be limestone above the third
floor and polished green block granite below. Provision is being
made for all the light possible within the building as large glass
areas will be provided. ‘Two thirds of the window area on each
floor will be solid translucent glass block, set in steel grillage;
the remaining one-third will be opening ventilators to protect
‘the structure against any possible interruption of the ventila-
tion system and for additional ventilation on hot days.

This new skyscrapor type prison will he the most modern of
its kind in the country.

‘The Sexual

In our 1946 Annual Report to the Legislature
Peychopath,

we recommended the enactment of a sexual
psychopath law and followed it with a bill
drawn, for us by Magistrate Morris Ploscowe of the City of
New York. He is well acquainted with the problem having con
tributed considerably to the preparation of a report entitled
“Report of Mayor’s Committee for the Study of Sex Offenses.”*
He also served as Chief Clerk of the Court of Special Sessions
before becoming a City Magistrate,

‘The press of New York City and upstate as well gave consid
erable notice to the Association’s recommendations to the Legis.
lature emphasizing in particular the one relating to the chronic
aleoholic and the other, the sexual psychopath. There was intro-
duced by Senator Thomas C. Desmond Senate Int, 1482, Pr,
2790. The bill passed the Senate on March 11th and the Assem-
bly on Mareh 18th, but was disapproved by the Governor. Gov-
ernor Dewey vetoed the bill because of his observation that it
Was too far-reaching, but he nevertheless indicated his appreci-

ccaphullished by City of New York, ¥. H. LaGuardia, Mayor, Study eov-
ered period 1088.39, ine. ss

40 ‘Tue PRISON ASSOCIATION OF NEW YORK

ation of the seriousness of the problem toward which the bill
was directed, as shown in the part of his veto message reading
as follows:

‘he prod a whieh hig bl eet on ott mont eon
fi jards that surzound personal liberty in ony State.
‘the sexual hayehonath.
dats Danas

‘efforts and in cons
Bhe State Department of Social

During the year Governor Dewey and membors of bis exbinet
havo indicated then continued interest in the problem and ou:
General Secretary has partieipated in the diseussions and plan-
tig, During the early part of 1918 there will be am anon
mont of a plan by the Governor to conduct an experiment ia one
Of the State not tutions, probably Sing Sing Prison, under the
guidance of a qualified and trained personnel to be provided
through tho State Departiment of Mental Hygiene. The purpose
of his witb to gather as much information ae ca be had r=
ffarding sex offeniers and to devclop to whatover extent i pos
Ene therapeutic procedures. It is hoped that this plan sv
result in a substantial contribution for te solution ofa baling

oblem which has too often resulted im serfous consequences fs
Various communities arousing the horror and ‘wrath of the
able

Early in 1947 Mayor O'Dwyer referred to the

Citizens Budget Commission a proposal that

‘there be consolidation of the Police, Fire, and

Correction Departments. Our General Secre-

tary at once addressed a letter to Colonel Hax-
old Riegelman, Counsel of the Citizens Budget Commission, in
Gicating our interest and offering our services. This offer was
gratefully acknowledged. There followed contact with the staff
of the Commission. At 2 meeting with their staff in October
there was considerable discussion on the general proposal and
the details involved. We expressed the opinion that little was to
be gained if anything by the merger of the Department of Cor-
reetion with other departments and it was interesting to note
that those who represented the Budget Commission seemed to
entertain the same view. Later the study of the Department of
Correction was turned over, with the approval of the Mayor,

KEEPING FAITH WIrH THE FouNDERS aL

to Magistrate Morris Proscowe who soon made contact with
The Prison Association of New York. We again discussed many
problems relating to the Department of Correction and related
proposals, outstanding among them being the question as to just
where the lines should be drawn between City and State respon-
sibility in the matter of housing and dealing with certain types
of prisoners, At our suggestion and in company with our Assis-
tant Secretary, Magistrate Ploscowe made various institutional
observations and visits, spent considerable time in the brary
of the Association, and studied various reports and documents
borrowed from our library. Before the end of 1947 Magistrate
Plozcowe conferred with the Association on a draft of his re-
port. It was studied in full and with eave. Various corrections
were made, inserts suggested to enlarge or improve the report,
and on the whole the report was approved, One exception, how-
ever, is that we are not ready to go to the extent of recommend-
ing the abolition of the New York City Parole Commission. The
final draft of the report differs only slightly from the original
and its content is on the whole in harmony with our observa-
tions, thinking, and recommendations relating to the various
probloms and situations. We commend the Mayor for directing
‘that the various proposais be studied and we are pleased to have
Played a part in helping to develop the report, Some of the ree-
ommendations undoubtedly will be disputed and some regarded
asa long way from fulfillment. However, the report itself served
as one more beacon light for those who fire anxious to make for
progress and it is hoped that both the State and City officials
involved will come together for discussion and that concrete
action conforming with the recommendations will follow. For
further reference to this study by the Citizens Budget Commis-
sion see page 20.

Green Haven This prison was completed a short time before
Prison the war and is located in Dutchess County

about fifteen miles northeast of Beacon. Soon
after the outbreak of the war, the prison was leased to the Army
and is to be returned to the State in January of 1948, With the
State again in control of the institution, the question arises:
How shall it be used, and does it make possible the whole or
partial discontinuance of Sing Sing as a major housing unit and
the restriction of its facilities for limited and specialized utility.
In this connection on October 6, 1947 the following letter was
addressed to the Governor's Counsel, Mr. Charles D. Breitel:

Dear Mr. Breltel:

So as to assure you of our continned interest, we note with satisfac
tion’ that the Army isto release Green Haven! sbout the Brat of the

‘THe PRISON ASSOCIATION o New York

Fre
janbury, C

qth the’ certainty of Green Haven again becoming available for
iden 850d ne tay the woe uate
sr ts plage and general utity

Ets, This plan never worked out, not boc
Stzante of the vied views nd hangng contra which ate oo char-
selene in fb ai of ec

ori of the fn

Tvvrite you the above and sugwest that there Is a good opportunity
ahead forthe Governor" his administration to maveh forward a
‘eation and funetioning of

ection, 1 Hope you will be interested and
wing to alone he ln

Batt of an ex ential
‘With Kindest vegarde and best wishes,

Sincerely yours,
(Signed) FR CASS
General Seoretary
Relative to our recommendation to the 1948 Legislature and
further discussion on the proposal for the future of Green
‘Haven and Sing Sing, see our Recommendation TV on page 17.

‘The Chro
Aleoholie

‘We continue our interest in the chronic aleo-
holie because we observe them daily in the
community, among our clients, and in institu
tutions. These people are their own worst enemies and are too
often a burden and menace to the community. What to do or
‘what can be done for them apparently remains the challenging.
question. The problem has not been solved by the medical pro-
fession although more earnest endeavor is needed, nor by the

Keerro Fara wir THE FOUNDERS 43,

social worker, the clergy, and others. We hear encouraging re-
ports concerning Alcoholics Anonymous but that approach is
still comparatively young for its techniques to be relied upon as,
final. We are still of the opinion that the problem is too serious
and deep-rooted to permit easy solution and that it requires the
‘renewed and continued interest of the State. Earlier approaches
by the City of New York and the State are referred to in our
1946 Report, see page 17.

‘During January 1947 there was held at the Academy of Medi-
cine a conference on the chronie alcoholic. The extent and the
difficulty of the problem was freely presented and the general
conclusion was that the Legislature be requestd to appoint a
State commission to develop ways and means of control and
treatment. This coincides with the substance of our earlier eon-
clusion and one of our 1946 recommendations to the Legislature.
During 1947 there was introduced in both Houses a resolution.
urging that the State undertake a study of the chronic aleoholic.
This was a follow-up of the Association's recommendation to
the Legislature and it received good press notice throughout the
State. The resolution, however, did not receive legislative ap-
proval. We also urged the Governor through his Counsel tohave
the State examine into the problem of the chronic aleoholie and
it was finally stated that a survey is to be made by the Interde-
partmental Health Couneil. At this writing the findings and
recommondations of that body have not been revealed.

Our Assistant Secretary, Mr. Wright, serves on the West-
chester Joint Committee on Alcoholism which ame into being
about a year ago at the suggestion of Warden Paul R. Brown of
the Westchester County Penitentiary supported by the White
Plains Rotary Club. This Committee has been an earnest, active
body made up of qualified persons who know the problem on the
basis of thelr official dutics or their observations and studies as
progressive citizens.

At the request of the Governor’s Interdepartmental Health
Council and the Chairman of its Subcommittce on the Problem
Drinker, a detailed statement was submitted for their consid-
eration. This statement consisting of five basic recommenda-
tions urged that the State accept the responsibility for provid-
ing facilities for care and treatment of chronic aleoholies in need
of long term hospital attention. It was also recommended that
the State Department of Mental Hygiene was the department
best suited to meet the needs of the problem drinker. It was like-
wise recommended that the Mental Hygiene Law be amended
to provide for the certification of problem drinkers to public
mental institutions. The final recommendation urged the estab-
lishment of an experimental or “pilot” unit to be equipped and

4 ‘THE PRISON ASSOCIATION OF NEW YORK

staffed with specialized services for dealing with the chronic
aleoholic. This should be at some location where general hospital
facilities are presently available. The Committee felt that eon-
siderable experimentation is necessary before further specific
recommendations could be made.

Elmira We continue to spread the value of the Elmira
Reception Reception Center established by Chapter 554
Conter of the Laws of 1945, It is headed by Dr. Glenn

‘M. Kendall and is designed to serve as a better
means of distribution to various institutions under the control
of the State Department of Correction and to provide a more
satisfactory program of study and treatment for offenders from
the ages of 16 to 21. We hold high hope for the suecess of this,
Reception Center beeause, as has been previously stated, its pur-
pose and existonce is in harmony with our thinking and efforts
over a long period. In May of 1947 at Asheville, North Carolina,
on the occasion of the meeting of the Southern States Probation
and Parole Conference and the Southern States Prison Confer-
ence, our Assistant Secretary, Mr. Wright, addressed a gather-
ing on the subject of the Elmira Reception Center. He did like-
wiso at the meeting of the Central States Probation and Parole
Conference at Columbus, Ohio, in June; in October he addressed
‘the Massachusetts Conference on Social Work in Boston. In a
letier from the Governor's Counsel, Mr. Charles D. Breitel,
under date of June 8rd relating to a desire to spread the gospel,
so to speak, régarding the Reception Center, he said in part!
“I am deeply interested and appreciate very much your usual
cooperation.”

Crime ‘On December 8rd the Motion Picture Associ-
Pictures ation of America through its Director, Mr.
Erie Johnston, announced revision of their

regulations and codes to halt the production of pictures glority-
ing the criminal and making crime inviting to young, people.
‘This is recognition of a long standing and growing complaint
pes of pictures. In the name

of The Prison Association of New York and The American
Prison Association, the General Secretary addressed a letter to
Mr. Erie Johnston commending him and his associates for the
action taken. A similar letter by the General Secretary appeared
in the New York Sun of December 5th, the New York World-
Telegram of December 8th, and in the New York Times of
December 15th. Future pictures will be watched with interest in
view of the reported change of policy. Mr. Eric Johnston in his
letter of reply made the very pertinent statement that “the

Kesrine Faira wir THE Founpers

motion picture industry has a responsibility to emphasize the
decent and wholesome aspects of American life and play down
that which is evil and sordid.”

Detention Pens— Commissioners Schoenfeld and Cass in
Mulberry Street

their daily capacity with respect to the
State Commission of Correction and the
Prison Association, have endeavored to eliminate the use of the
detention quarters at 300 Mulberry Street and to provide for a
more suitable place. This resulted during the year in various
inspections and observations, contacts with the Chief Magis-
trate, the Police, and the Department of Correetion, but without
the achievement of the desired objective. All concerned agree
with our protest, but the difficulty seems to be to find an imme-
diate solution due to the lack of facilities. The situation is eom-
plicated by the nse of the Essex Market Court Building by the
Police Athletic League under the direction of Deputy Commis
sioner Nolan. At a meeting of the State Commission of Corree
tion the matter was again discussed and left open for further’
conference with the various officials involved with the hope that
eventually a solution will be found.

Prison Ward Commissioner John L. Schoenfeld on behalf.
Bellevue of the Association reported early in 1947 on
the deplorable conditions found in the Prison

Ward, Bellevue Hospital. These included glaring examples of
bad sanitation and housekeeping. He at once brought his find-
ings to the notice of the hospital management and Commissioner
Williams of the Department of Correction. As a result imme-

te steps were taken by the various authorities eoncerned to
remedy conditions

During the year both Commissioners Schoenfeld and Cass
directed attention to two other conditions in this prison ward
relating to the handling of money belonging to prisoners, and
the other the need for the installation of structural safeguards
to prevent escapes and to make for improved facilities for visits.
As a result plans have been drawn and approved and contracts
let relating to the structural alterations and Coramissioner
Williams has issued a departmental order requiring careful no-
tation as to the receipt of money and valuables taken from pri
cners and the return of same.

Discharge Money— Prisoners are releaséd from Rikers Island

with only carfare money, usually about
ten cents, and there are numerous in-
stances where this is all that the inmate
has to make another try for the right kind of living on the out-

Prison
Rikers Island

46 ‘THe Prison Association oF New YoRK

side, Some of these men are directed to The Prison Association
of New York by the Parole Commission and others come because
they have heard from fellow-inmates that assistance can be had.
‘To adequately provide for these men and in order to give them
a reasonable chance to start life anew requires the combined
resources of an organization like The Prison Association of
New York and tho funds of the City of New York. Commis-
sioner Albert Williams, as he quickly became acquainted with
‘the problems within the Department which he took over
December of 1946, realized the need for the giving of money to
certain prisoners and began the working out of a plan for the
use of money in the commissary funds of the Department. Thi
move is to be commended and the use of the money for this pur-
pose is quite proper because it comes from the small profit
derived from the sale of articles from the inmate commissaries.
‘Surely no one can criticize the use of the money made available
by prisoners for the benefit of their associates who are in need.
Repeatedly the suggestion has been made that action of this
kind be taken and we are pleased to reeord approval of Com-
missioner William’s efforts to make for just so much more jus-
tice in the operations of his Department.

Michigs On February 28th the General Secretary was
Corrections present in Detroit and addressed a meeting

Amociation at the Hotel Statler attended by members of

the faculty of the University of Michigan and
Wayne University, prominent lawyers and businessmen of
Detroit, and others from different parts of the State interested
in its correctional problems. The meeting was called and organ-
ized by Dr. Arthur E. Wood, Professor of Sociology, University
of Michigan. The reason for Mr. Cass’ presence was to explain
the founding and operations and general functioning of The
Prison Association of New York. A deeision at the mecting was
that there should be formed an organization in the State of
Michigan similar to that of The Prison Association of New York
and to be known perhaps under the title of the Michigan Cor-
rections Association,

‘The formation of the organization proved its value right from
the start when “ripper” legislation was introduced to alter the
organization and functioning of the State Department of Cor-
rections. The inffuence brought to bear by this organization with
its representative membership made an impression upon the
Governor and added to the weight of the pratest registered by
others desiring to affect 2 more orderly improvement of the cor-
rectional system of Michigan. The various bills were not passed.
Later in the year the Governor as a result of another investiga

Kespinc Farr wit TH FOUNDERS at

tion made various changes in the personnel and basic organiza-
tion of the Department. When the General Secretary of the
Prison Association was consulted regarding a qualified person
to head up the Department of Corrections of Michigan, he sug-
gested the warden of the United States Penitentiary at Atlanta,
Georgia, Joseph W. Sanford. He has a wealth of practical back-
ground and experience and has made for himself an enviable
record as the suecessful administrator of a large probation serv-
ee when he was in the District of Columbia and later the large
Federal prison in Atlanta, He is a man of vision, good sense, and
plenty of courage.

Street Club _As stated in our previous report, this project
Project, was initiated by The Prison Association of

New York. It actually got under way in July
of 1947 and an office established in Harlem at 107 West 116th
Street. The work is not confined to the Borough of Manhattan
but is extending to other Boroughs. The Association became
aware of the need of this project through the intimate know!-
edge of conditions by a member of its Executive Committee, the
Honorable G. Howland Shaw. Through the financial help so-
cured by our Treasurer, Mr. C. C. Auchincloss, the project was
putin motion, In October at a luncheon arranged by Mr. Auchin-
loss a preliminary report was made by the Director, Mr. George
Harrison, and other members of the project staff. The value of
the undertaking was further attested to by Mr. Shaw and Mr.
Edward P. Mulroney, a member of our Executive Committee
and former Police Commissioner of the City of New York as
‘well as former head of the State Department of Correction. Set
forth below is a summary presentation and discussion of the
meeting,

‘Mr. Auchincloss presided and began with a statement point-
ing out that the project was the result of conversations between
Mr. G. Howland Shaw and our General Secretary, E. R. Cass.
On July 31, 1945 our President, Mr. Edwin O. Holter, addressed
aletter to the Welfare Council of New York City outlining the
eed for concerted thinking and action relating to the existence,
operations and behavior of so-called strect gangs in Harlem and
other areas of the City. The proposal was seriously considered
by the Welfare Council and it was agreed that the project should
be instituted following a survey of conditions. Mr. Auchincloss
paid tribute to various organizations operating in Harlem and
other areas in behalf of young people, but stressed the point that
while they were doing a good work they were operating mainly
from centers and the boys on the street, some of whom were
identified with the clubs or gangs, were not reached by them;

48 ‘Tue PRISON ASSOCIATION oF New YORK

this being particularly true of those gangs conducting a kind of
warfare culminating at times in actual killings. He stated, that
as he understood the project, it was not so much to better con-
ditions in a few streets of Harlem as it was to develop a pattern
of procedure which could be followed in other communities as
well. The idea is to develop a sense of responsibility in the com-
munity itself in looking out for their own hoys as well as a sense
of responsibility in the members of the Street Clubs. He under-
stood that the idea was to get the man who ran the delicatessen
shop, the candy store, garage and various other stores to take an
interest in this problem by looking out for really what are their
own boys. He also understood that Mr. Harrison was in the pro-
cess of forming a local committee to help him in this work. The
essence of the movement is a democratic approach to this whole
problem of preventing and handling juvenile delinquency.

‘Mr. Auchincloss stated that he and Mr. Cass went to the head-
quarters of the project ox Friday, November 14th, and met the
Director, Mr. George Harrison, and various members of the
staff, They made a favorable impression because of their appar-
ent cagerness, their general qualifications, and appreciation of
the difficulties confronting them. At the time of the visit a
delegation from one of the street clubs was conferring with one
of the workers regarding employment problems and other con-
ditions. This in itself a healthy sign.

‘Mr. Auchincloss then introduced Mr, Shaw, a member of our
Exeetitive Committee and President of the Welfare Council of
New York City, and identified with many national and local

organizations and boards dealing with correctional problems,
particularly as they relate to juveniles and the prevention of
delinquency. Mr. Shaw introduced the subject by stressing the
fact that there was nothing mysterious or unusual about the
type of project under consideration. He emphasized that proj-
ects inspired by the same point of view are in operation in other

, Los Angeles, Omaha, Chicago, and Washington,
He pointed out that one of the underlying purposes of a project
of this nature was to instill the elements of democraey in the
neighborhood as well es within the membership of the street

‘ore proprietor, the local merchants, the police
officer on the beat, aud other persons whose every day duties

relate to the neighborhood be advised of the nature of the proi-
ect and likewise encouraged to participate in the fulfillment of
its purpose. Mr. Shaw also commended the excellent programs
now being conducted by various agencies in Harlem and
stressed that the Street Club Project was not designed to over-
lap or take the place of any existing program. He said that the

‘KEEPING FArrir WITH THE FOUNDERS 49

Settlement House and other units would be necessary adjuncts
to the successful fulfillment of the purpose of the project,

He continued by pointing out that the project did not plan to
set up a center of activity beyond that necessary for office space
and the administration of the project itself. The field workers
and other personnel have been carefully selected and Mr. Shaw

dicated that he feels that the choice of personnel is ideal and
that the project is fortunate to have heen able to attract these

viduals to the staff. The field workers, according to Mr.

will work out of the main office of the project which is

sresently located in Room 2 at 107 West 116th Strect (north-
West corner of Lenox Avenue)

In closing his brief introduciory remarks, Mr. Shaw empha-
sized that the project did not actually get under way until the
riddle of July 1947 and that some of the field workers had been
on the job only for five or six weeks.

In introducing the Director of the project, Mr. Harrison, Mr.
Shaw indicated that he was a man of considerable training and
experience having been engaged in youth activities in Detroit
and elsewhere.

Mr. Harrison opened his portion of the discussion by paying
high compliment to the leadership and vision of Mr. Shaw stat
ing that without his understanding and constant encouragement
the task of working with the street clubs would be even more
difficult. Mr. Harrison reviewed the fnaneial status of the proj-
ect as it exists at the present time indicating that all funds
appropriated for its use were in a special account under the
control of the Bxecutive Committee of the Welfare Council of
New York City and subject to periodie audit. In reviewing the
finaneial background Mr. Harrison pointed out that the project
costs in the neighborhood of $3,000 per month to operate with
its present staff.

1n outlining the organization of the project, Mr. Harrison
stated that in addition to himsel? as Director, the staff consisted
of three field workers, a research director, and clorieal assis-
tants, He then discussed the general manner of approach used
by the field workers in making initial contact with street corner
groups. This is, as he pointed out, probably the most difficult
task with which the project is confronted. The first necessity Is
that of gaining the confidence of individual members of the
groups and then by disereet and subtle suggestion to make addi-
tional acquaintances within the gang. Ultimately, attempts are
made to divert their interests into more wholesome pursuits.
While this may appear to be a somowhat easy task on the sur-
face, Mr. Harrison was quick to point out that it was time eon-
suming and required the utmost of tact and patience and could

60 ‘TH PRISON ASSOCIATION oF New York

only be handled by a special type of personality. At this point
Sir. Harrison called upon two of the field workers present,
Mr. Grier and Mr. Jackson, to briefly describe how they made
initial contact and to give other interesting sidelights on their
experiences, Mr, Jackson stated that he made various inquiries
{in the neighborhood as to which of the numerous gangs required
priority attention and conferred with school officials as well as
Toeal merchants and other neighborhood leaders. His various
contacts and operations brought him not only into the school and
the local stores but places of amusement such as movies, and
‘poolrooms, street corner gatherings, candy stores, places having
game machines, ete, In other words he was attempting to ob-
Serve 80 far as possible the young boys of the community in
action and to determine their respective groupings, identities
{and evaluations. In this connection he discovered that one gang.
‘would be made up of several sections operating within the same
general area and that the membership was large and consisting
of boys and girls of various ages ranging from possibly eight
or ten to fourteen or fifteen. He also pointed out that these var:
fous segments of the gangs developed a remarkable cohesiveness
under various commanding situation

Mr. Jackson added an interesting sidelight based on his own
personal experience in locating a dwelling and arranging for the
handling of his personal belongings. He also told of the question
asked of him by one of the boys as to whether he was a “dick”
(a detective). This question was quickly answered by an older
boy present who with the use of a little stronger language
stated, “Don’t you know we had him ‘cased’ (watched) for the
last three weeks?” This emphasizes the point of how sensitive
the boys in these various groups are to the possibility of intru-
sion by outside persons. Messrs. Jackson and Grier made much
of the important point of the value of close association with these
boys at the same time leaving them a field of opportunity for
self expression. They Iikewise stressed that tact needs to be em-
ployed to cultivate them into channels of decency and wholesome
living relationships not onty for the benefit of the individual but
‘the community asa whole,

‘Mr. Harrison again spoke and adaressed himself to the hypo-
thetical question: What has been the influence of the project
thus far upon some of these boy's? He pointed out, for example,
that there has been no actual physical warfare between gangs in
the area since June 1947 and stressed that while he would not
claim full eredit for this in behalf of the project, he was eon-
fident that the work and influence of the project was responsible
to a worthwhile degree, He followed this with various illustra-
tions including one concerning an individual boy who for the

‘KEEPING FAITH WITH THE FOUNDERS BL

past few weeks has been constructively employed for the first,
time in his career. Lest this be interpreted as an unusual in-
stance, Mr. Harrison was quick to point out that this same boy
suffered severe physical injury as a result of gang warfare the
‘earlier part of the year. He stated the case of a young lad, leader
‘of one of the gangs, who is now attending high school and is
doing well and of his own accord has dissociated himself from
the gang.

Mr. Malamud, the Research Director, was then called upon to
explain his part in the project and he was quick to state that he
was not interested in compiling cold statistics but instead of

oY

stated that this or that had been achieved, his first question
always was: How can you prove it? Both Mr. Harrison and Mr.
Shaw confirmed that this was the true form of his operations
and purpose and that even though he proved to be a hard task
master in his own sphere, it nevertheless was regarded as essen-
tial for the proper evaluation of the project as a whole. Another
point made by Mr. Malamud was that his work was not only
that of recording, but to record in a way that would develop a
pattern for the use of those in other areas desiring to profit by
the trial, errors, and achievements of the present undertaking.

At this point Mr. Shaw pointed out that it was deemed advis-
able to have a research man assigned to the project from the
start so that he would have the advantage of close association
from the beginning.

Mr, Edwin O. Holter, President of The Prison Association of
New York, expressed his appreciation to Mr. Auchincloss and
‘Mr. Shaw and all those identified with the project on the sound-
ness of their interest and efforts. He stressed that there could
be no question about the value of such an undertaking for the
betterment of the youth of our City.

‘The final speaker was Mr. Rdward P. Mulroney, former
Police Commissioner of the City ef New York and one who
knows intimately the problems of juvenile delinquency in our
City (because of his many years of police work). Regarding
Harlem Mr. Mulroney was particularly qualified to speak be-
cause in his earlier years he served as Captain of the Police
Precinct in the Harlem area and also was Chief of Detectives.
He was quick to agree that Mr. Shaw had made an exellent
selection in setting up the project in Harlem. He made the point
that it was natural for boys to form gangs or groups whether
they be in Harlem or elsewhere just as it was for adults to orga-
nize one group or another for social, business, or cultural pur-

52 ‘Tue PRISON ASSOCIATION oF New York

poses. He agreed that these boys should have opportunity for
self expression and warned against regimentation. He naturally
favored the directing of all possible wholesome influences upon
their operations and behavior. In conclusion he offered his com-
pliments at the effort being made.

Welfare The Welfare Council of New York City
Couneit continues in an atmosphere of rebirth and con-

siderable of the credit for this is due the Hon-
orable G. Howland Shaw, a member of our Executive Commit-
tee, who is President of the Welfare Council. He was confronted
with the difficult situation as Chairman of the Reconstruction
Committee of the Couneil and is to be commended for the sta-
bility that he has established and the support that he has ob-
tained for the objectives and activities in the various operations.
‘of the Council.

‘We are pleased to record that one phase of our cooperation
with the Cotneil is reflected in the selection of our Assistant
Secretary, Mr, Roberts J. Wright, first ax Chairman of the
Program Committee and later Chairman of the Conference
Group on Correctional and Allied Services. The program com-
mittee is building up a large meeting to be held early in January
of 1948 on the subject, “Are We Preventing Juvenile Delin-
guency in New York City?” The Conference Group, it is antici-
pated, will be more articulate in correctional affairs than a
similar group which was in existence before the reorganization
of the Council and which gave its attention mainly to frequent
meetings which recorded considerable verbiage but little more.
‘We also are allied with the Couneil in matters relating to fam-
ilies in our care as well as our services to men released from
prison.

We continue active in the membership of the

Federal Council of Churches Commission on

Ministry in Instititions. This group is inter-
ested in chaplainey problems, particularly the nomination of
Federal prison chaplains. We are also instrumental in keeping
alive the interest of chaplains in connection with the affairs of
‘The American Prison Association and the projecting of an ex-
pansion of their participation in a progressive program of
administration in institutions throughout the country. We eon-
tinue to urge that religion is an essential part of a correctional
program and that, therefore, chaplains must be given an active
part in the operations of an inatitution beyond the point of con-
ducting a service at least once a week or care for the library.
‘The right kind of chaplain as we see it, and continually urge,

KEEPING FAITH WITH THE FOUNDERS 58

can be a tremendous influence for good in the institution, a valu-
able aid to the warden or superintendent, and a lingering im-
press on the post-institutional life of the prisoner. Men in insti-
tutions are keen analysts of personalities and character. They
despise “phonies,” as they refer to them, whether they be war-
dens, chaplains, superintendents, doctors, ete., and with equal
reaction they hold in high esteem those whom they regard as
being genuine,

Dangerous ‘There has been a noticeable change in the per-
‘Trends sonnel of commissions, boards of control, and

wardens and superintendents of institutions
im the last few years and these changes are still taking place.
Wherever possible, the Association in combination with The
American Prison Association exercises its influence in behalf of
the retention of those who have a good record of service and
accomplishment regardless of their 1 faith. Few other
forms of public service have suffered more than the correctional,
field through the frequent change of personnel motivated by
politics, That is part of the answer for the lack of progress in
too many jurisdictions.

During the year we viewed with much alarm the changes in
the Federal Parole Board and urged upon the Attorney General
that he exercise the greatest of thought and courage to the end
that there would be appointed those who were specially qualified
for the undertaking of a difficult serious public responsibility.
This suggestion was not followed to our satisfaction. To enu-
merate in detail the various observations during 1947 and other
years along this line would require considerable space. Suffice
ittto say that there will continue to be slow headway, disappoint-
ments, and disillusionments in the correetional field so long as
political qualifications are to be held paramount,

Texas We have cooperated with progressively

Institutions minded citizens of Texas to improve the ad-
ministration of the training schools and
prisons in the State. As a result of the efforts of two courageous
women, one, Mrs. John D. McCall, the wife of a prominent
lawyer in Dallas, and the other, Mrs. William L. Crawford, IIT,
together with their followers introduced a bill to abolish eor-
poral punishment in the juvenile institutions, This passed one
House of the Legislature but was held during the closing days
in the other. However, a Commission was authorized by the
Legislature to study the training schools in the State and the
General Secretary of the Prison Association continues to be of
service to the good people in Texas to the end that they will

vy ‘Tue Prison Assoctarion or New York

have all the assistance possible to supply them with the knowl
edge of what is going on in other areas. Tt is our hope that the
legislators and others in the State of Texas will finally bring
the practices in their State in line with those of the more pro-
gressive States. Unfortunately, there exists considerable public
apathy toward the treatment of prisoners in the various prisons
of Texas and particularly on the farms. Conilitions have been
protested within the State from time to time. The management
of the Prison System has undergone changes but the old condi-
tions, both in tradition and practice, continue to reflect man’s
inhumanity to man.

Communications have been sont by us to the Governor of the
State and members of the prison board and direction has been
zgiven to the Manual of Suggested Standards for a State Cor-
roetional System prepared by The American Prison Associ-
ation; when the bills were prepared to abolish corporal punish-
ment and to change the control of tho juvenile institutions, we
had opportunity to examine them and make susestions ‘and
also to furnish supporting material; all of this by way of show-
ing a desire to help the State improve its correctional system
During the latter part of 1947 a new Manager for the system
‘was selected. It remains to be seen whether he can earry his
‘200d record in one State over into the State of Texas and record
worthwhile changes and progress generally. His task wil re-
uire freedom of operation and all the courage and energy that
he can command.

Git In August the Association appeared before
Service ‘the New York City Civil Service Commission
and protested the proposal of that body to
authorize the appointment of temporary correction officers from
lists other than those for the prison service. Before the end of
the hearing the Commission announced its reversal on the pro-
posal and ordered a correction officer examination. A letter
under date of August 12th from the Correction Officers’ Bene-
volent Association expressed profound thanks for our assis
tanee.
‘The General Secretary conducted promotion examinations
for employees of the Department of Correction for the State
Civil Service Commission.

Police Prison ‘Through the persistent efforts of Comm!
Roster sioner Schoenfeld of our Executive Commit-
tee based on his observations while inspecting
police lockups, there has resulted the installation of anew roster
system (U.P. 75 prison roster). The new procedure, in addition

Keerfivg Parra WIT THE FOUNDERS 55

to that already established for the inspection of prisoners, will
show the number of prisoners and thelr condition at one-half
hour personal checks by the attendants. These visits are to be
noted by signature in ink or indelible peneil. The new system is
considered proof against any attempt at evasion or deception.
‘The purpose of this change is to establish a more reliable basis
for the investigation of the general condition of a prisoner or
his death while in custody.

County Protest was registered with the: Editor of
Jails “Coronet” magazine by Mr. Cass and the

State Commission of Correction regarding an
article in the July issue entitled, “The Black Scandal of our
County Jails.” The article carried considerable truth about
county jails generally, but unfortunately did not give recogni-
tion to the fact that county jails in some areas, for example in
the State of New Yorks, are ot in the clas with those erticized
in the article,

Police Lockups ‘There is no seeret that the police lockups in
and Jails the City of Chieago aro deserving of the most
severe criticism. This is attested by visitors
from other parts and informed citizens of Chicago. The matter
has received the attention of the Chicago Board of Aldermen,
and there came to New York City in July a committee consisting
of one member of the Board of Aldermen, a police eaptain, and
a representative of the John Howard Society of Chicago, Pre-
vious notice of the visit and a request for cooperation was ad-
dressed to both Commissioners Schoenfeld and Cass by Mr.
Engene 8. Zemans of tho John Howard Society. Arrangements
were made by Commissioner Schoenfeld to clear with the New
York City Police and the delegation had ample opportunity for
visitation and observation. They were amazed at the superior
condition of our New York City lockups and attributed the
favorable situation to the work of the New York State Commis-
sion of Correction and so expressed themselves in a letter to
Governor Dewey under date of July 16th giving thanks for the
assistance rendered them by Commissioner Schoenfeld.

Westfield In accord with instructions given at the De-
State Farm —_comber 1946 meeting, a letter was addressed

to the Director of the Budget, Mr. John E.
Burton, the Governor's Counsel, Mr. Charles D. Breitel, and the
Commissioner of Correction, Mr. John A. Lyons, urging that
there be no withdrawal of the financial support of the farm

56 Tim Prison Association oF New York

operations of institution known as Westfield State Farm. It was
emphasized that the farm should be regarded as a part of the
rehabilitative program of the institution and not necessarily as,
‘a money making medium, Attention was also called to a recent,
announcement by the New York State Department of Agricul-
ture reflecting very favorably on institution farm operations in
this State, Acknowledgments were received and in a letter sent.
by the Deputy Commissioner of the New York State Depart
ment of Correction it was stated in part as follows:

Plogso.bo adslaed that this matter was, fully conaidered and di:
cuted at budget heating by Department offcists; and we have every
Season to believe that fond wil be provided in the next budget to
‘conduct farm operation

i

instivation prior to farm activitios

the past. ¥
‘devoted to thie matter
Benzedrine We were instrumental in the composing of a
bulletin that was sent out to institution
administrators throughout the State, including the sheriffs,
about the harmful effects of benzedrine. This drug when
used under careful medical direction can serve a good pur-
pose without harmful effect. However, when used without med-
ical guidance it can be harmful to the user and his associates.
‘The harmful effect of this drug to the individual when used
without medical direction and its threat to the smooth adminis-
tration of an institution has prompted the Association to urge
legislation as set forth in Recommendation X on page 24.
‘According to authorities {tis now classified as a hypnotic and
not a narcotic, Tt is difficult to get legislation on the subject
because of its technical definition and classification,

Handhook on ‘The Handbook on Classification in Correc-
Classification tional Institutions, referred to in our previous

report, became a reality in the early part of
1947 and was enthusiastically received by workers in the cor-
reetfonal field throughout the country as well as in foreign lands,
‘This Handbook, published by The American Prison Association,
is an important work and second in value only to the Manual
of Suggested Standards for a State Correctional System which
‘was made possible by a member of our Executive Committee,
‘Mr, Sam A. Lewisohn, in his eapacity as President of The Amer-
jean Prison Association for the year 1946, These two publica-
tions, in the preparation of which we were glad to have played
4 part, can give practically all the necessary guidance for any
State Governor or Commissioner of Correction to establish a
progressive correctional system,

Kenping Farr wire tHe FouNpens BT

Bureau of Through the combined interests of The Prison,
Research Association of New York and The American
and Planning Prison Association, there has been established

at the Ohio State University a Bureau of
Researeht and Planning under the direction of Professor Walter
C. Reckless who works in conjunction with the General Secre-
tary and our staff.

‘Activities of the new bureau will include researeh, advisory
and professional services to correctional institutions through-
out the country, mainly on the state governmental level.

Among the first projects to be undertaken will be a nation-
wide study of measures taken by the States to aid in prevention
and control of crime and delinquency and the development of a
manual for uniform reporting of statistics on the adult offender,
with the aim of standardizing data on probation, parole, and
correction for all areas.

In addition, another function of the bureau will be to en-
courage active participation by interested university faculty
members and graduate students throughout the country in stud~
ies of probation, parole and correctional institutions,

Corrective Services Of interest was a letter under date of
Division, U.S.Navy January 17th from Vice Admiral Louis
Denfeld, U.S.N., Chief of Naval Person-
nel, which read in part as follows:
1s the earnest hope of the Navy Department that the postwar
evelopment of one Corrective Services wil lec th fine set of
‘hose efcers an men who laid Hs fem foundation. We are’ de
yresiative of the conteibation which enologats, serving tm he
Nevy, made during the war
Since our Assistant Secretary, Mr. Wright, played a worthy
part in the development and functioning of tho Navy's Corree-
tive Services Division, it is, indeed, gratifying to have the
Admiral’s comments ahd his assurance of the continuation of
the standards established.

International We continue our interest in this international
body and are pleased to note that an Amer-
ican, the Honorable Sanford Bates, is now its
President having succeeded the late Sir Alex-
ander Paterson of England. As has been

stated previously, this Commission is largely of American

origin but seldom has it been headed by an American and too
frequently in the past its affairs have not been sufficiently
guided through American influence. However, that haz been
changed and the Commission has a real purpose and future un-

58 THe PRISON AssocIATION oF New York

less it is subsequently shown that United Nations through one
of its subdivisions should funetion in whole or in part in its
stead, Until that question is decided the American and British
Governments and others are continuing to support the Inter-
national Penal and Penitentiary Commission which has its
headquarters in Berne, Switzerland.

Opportunity was finally offered for the President of the Com-
mission, Mr. Bates, to appear before the Social and Economic
Couneil'of United Nations, toward the end of January, 1947 but
this invitation was quickly withdrawn because of ihe eontro-
versy that developed over the contention that the Spanish Gov-
‘ernment was represented on the Commission and that the Com-
mission was Axis dominated. This is in accord with an attitude
taken by the United Nations toward any international body on
which the Spanish Government is represented. Suflice it to say
that the Commission has never been Axis dominated nor has the
Spanish Government determined the policy or controlled the
funetioning of the Commission. The Commission was estab-
lished to serve and urge all countries of the world to improve
their corzectional philosophy and procedures. Later in the year
the Spanish Government withdrew from the Commission and
itnow seams that Mr. Bates will havea hearing before the Social
and Economie Council sometime early in 1948. It is gratifying
to note that the American Government is standing by the Com-
mission until a decision is xeached regarding the future rela-
tionship of the United Nations and the International Penal and
Penitentiary Commission. Tt is further gratifying to note that
the British Government takes a similar position.

Defense In support of our interest we are pleased to
Attorneys report that the Bar Assoiation of the City of

‘New York is attentive to complaints brought
to their attention by us relative to the practices of certain attor-
neys. With referenco to one attorney, representatives of the
‘Association appeared as witnesses before a special referee
designated by the Supreme Court. The complaint mainly is that
of failure to fulfill obligations with elients. The procedure in this,
particular ease has been lengthy and slow but as it continues
additional charges come from other sourees. The attorney has
continued an attitude of indifference and in December there
were a total of twenty charges under investigation. We hope
that during the year 1948, there will be a final decision and that
this attorney will be prevented from continuing certain prae-
ticos which we hold to be unfair to clients and otherwise un-
ethical,

KEEPING FAITH WITH THE FOUNDERS 59

Legislation _Set forth beginning on page 69 is a summary

of the various bills which held the interest of
the Association during 1947 and action taken relating to them.
Some of the bills were a follow-up of our recommendations to
the Legislature and became law. A number were vetoed. Con-
siderable emphasis was placed upon the desire of passage of the
sexual psychopath bill, Senate Int. 1492, Pr. 1200, which did
pass both Houses but was vetoed by the Governor (s¢e page 72).

‘The session was helpful to the correctional field and while
we were disappointed that some bills we particularly favored
did not pass, we nevertheless are hopeful that they will meet
with favor at another time.

‘Alertness to the legislative session has long heen an important
phase of the Association's functioning and we believe that the
record through the years will justify our efforts in this respect
in every way.

Sir Alexander The Prison Association of New York through
Paterson its General Secretary first eame to know Com-

missioner Paterson at the time of the Inter-
national Congress in London in 1925. Through the years there
developed a close friendship and association. In 1981 Sir Alex-
ander Paterson made a study of American institutions visiting
forty-two States, the itinerary for which was prepared by our
General Secretary. His report bearing the title, “The Prison
Problem of America,” is good reading and reflects the fairness
and keenness of an experienced worker. It was always gratify-
ing to know that he regarded the office of The Prison Associ-
ation of New York as his American headquarters.

‘The last personal contaet Mr. Cass had with him was in Borne,
Switzerland, in April of 1946 in connection with International
Penal and Penitentiary Commission affairs and it was sorrow-
ing to note that he was a sick and fecble man having a short
time before been stricken with a heart thrombosis.

On November 7, 1947 in his home in London, Sir Alexander
departed from a world he so eagerly served both as a soldier
and a penologtist, He will always be remembered for his bright
optimism in the field of penology, his courage and vision, his,
‘energy and desire for experimentation and progress. He had al-
ways the belief that there was some good in every man, even
prisonér, and in no sense was he a sentimentalist. The Prison
Association reeords with deep regret his passing and at the time
conveyed its sympathy to his wifo and his colleagues in England.
Foreign ‘There is again noted the increase in the num-

isitors ber of visitors from distant lands. These peo-
ple come as official visitors or iay persons

60 ‘THE PRISON ASSOCIATION OF New York

interested sufficiently in correctional problems to make obser-
vations for their information and comparative guidance. They
are referred to us by the State Department, Federal Bureau of
Prisons, directly by their own Governments, or our special eon-
tacts among colleagues in foreign lands. Among the visitors we
were pleased to assist in vavious ways were those fvom England,
‘Mexico, Australia, Sweden, Turkey, the Canal Zone, Argentina,
Chile, Uruguay, Colombia, Puerto Rico, and Canada, While this
form of service is time consuming, requiring the cooperation of
our various officials, friends, and others, it is nevertheless ¥
garded by us as an important educational endeavor and we have
every reason to believe that it is appreciated by our foreign
friends and that our thoroughness in their behalf sets a good
example.

Again we are glad to report that we continue
to receive requests for information and guid-
ance from those in other States who are

anxious to correct unsatisfactory conditions and make for prog-
ress generally. These requests by letter, telephone or personal
visit come from schools, colleges, women's groups, legislative
committees, moving picture producers, magazine writers, the
press, broadcasting; companies, heads of departments and agen
cies, probation and parole officers, heads of prisons and refor-
matorios, civil service bodies, ete. We consider the handling of
jes as a very important service. To give helpful in-
juires time and in instanees where the information
cannot be readily given from this office, the interest and cooper
ation of others must be sought and cultivated. An examination
of our files will disclose a surprising volume of such eorrespon-
dence.

procedures is making an
he use of eamps and colonies as part of its correctional program.

‘The State of California under the impetus of its reorganization of correc’

excellent demonstration of t!

THE ASSOCIATION'S BUREAUS OF SERVICE

Employment The prevailing overabundance of available

and Relief manpower which unfortunately makes for

Bureau steadily diminishing employment opportuni-
ties, portends a grim climax,

One therefore must appreciate the extreme endeavor exerted
by the Prison Association of New York and similar organiza-
tions to carry on during this crisis. Further impediments which
encumber these organizations when they strive to secure place-
ments for parolees, discharged prisoners and those men in
various institutions awaiting release, is the employer who stead-
fastly refuses to offer employment to a prospect unseen and
otherwise not of his own choice. Likewise, the employer who
refuses to hold in reserve a placement for an individual being
processed for release presents a difficult situation. Problems
such as these can only tend to hamper the efforts of welfare
agencies.

Rehabilitation would be a meaningless word but for the em-
ployer who so generously extends his hand and heart to less for-
tunate fellowmen. This gesture of faith and compassion is a
precious thing since it is a true indication of the first barrier
having been lifted from the long uncertain road to rehabilita-
tion. Now the ex-inmate will trave onward to his readjustment
to civilian life where he will seck to attain a reputation as a
useful and respected member of the community. We wish to
express our profound gratitude to those employers who so gen-
erously have aecepted ex-prisoners as employees.

‘There is a definite pattern which must be faithfully followed
if complete rehabilitation is to become a realization rather than
a desire. The individual must measure the standards by which
this can be achieved and then it is entirely up to him to-pursue
them. He will primarily learn to properly discharge his duties
before he can feel entitled to accept his rights and privileges.
He will further learn that to extend courtesy and respect to his
fellowmen is the strongest assurance that he will receive theirs
in return. With this much of the pattern completed he will be
better equipped to attain the ultimate goal; he will emerge a
self-respecting and law-abiding citizen such as was intended.
‘And here strikes the need for gainful employment! The insti
tutions of the State deserve plaudits for the broad extent of
rehabilitative measures which they have adopted, whereby their
inmates can avail themselves of the splendid vocational courses

[61]

‘THE PRISON ASSOCIATION OF NEW YORK

at their disposal, It enables the full development of individual
skill, a definite factor indeed when meeting the requirements of
Jobs in the offing.

The Prison Association of New York has been foremost over
the past century in the task of aiding the parolee and discharged
prisoner. For the past six years the Employment and Reliet
Bureau has been under the able supervision of Mr. Harry
Schwartz who is evedited with more than thirty-five years’ ex-
perience in the field of crime treatment and prevention in New
York City. Mr. Schwartz’ activities include personal contacts
‘with employers, innumerable visits to whom cover an extensive
area representing equally extensive fields such as business
houses, factories, mills, garages, laundvies, stores, etc. There is
a note of enconragement which is not to be slighted, for We feel
that it is important to mention here that where no actual place-
mont materialized, our representative nevertheless nearly al-
‘ways mot with an attitude of helpful cooperation on the part of
those visited.

The Bureau does much more than secure placements for its
alients. Lack of employment is only a portion of the problems
with which we are confronted, some of the others being fnan-
cial stress, unavailability of clothing, lack of transportation to
job locations, tools, union dues, fees, ote, The required aid is
granted if investigation and verification substantiate the re-
quest. We must not overlook the individual whose advanced age
or retarded health has deterred
Bureau lends its services by offering the financial aid that will
guide him through the eitical period of readjustment. Thi

to the proper welfare agencies who can better assure more per-
manent and long-range financial aid and support.

Of the vast number of eases which were presented to the
Bureau during the past year, all merit fall written notice her
However, the restriction of space forbids this. We were com-
pelled, then, to select a number of the most exemplary ones to
present herewith, hoping to aid the reader to better understand
the work of the Bureau.

'S. T*, doctor, unwisely consorted to malpractice which re-
sulted in conviction of manslaughter. His prison term was dis-
charged in a useful and penitent manner, during which time he
ent his valuable aid serving as institutional Hbrarian and in-
termittent office worker. Since his release he has been doing ex
ceptionally well in the capacity of clerks, a position secured for
him by our representative.

‘THe AssoctaTION’s BUREAUS OF SERVICE 68

B.L.*, a cripple, had a record of four arrests, the first having
been for juvenile delinquency and the last for burglary. Never-
theless he served his term of incarceration in a very orderly
manner. ITis knowledge of machinery was put to good use when
at the time of his parole a clergyman offered him employment
through the medium of the Bureau, The faet that his employer
isa clergyman has done much to bolster the morale of B. L.*

5. M." had been arrested and convicted for manslaughter.
‘This inmate had a good family background, and his own family
consisted of a wife and four children. Before his arrest he had
hold several jobs in the dry cleaning trade, and at the time of
his parole our representative secured placement for him in a
large establishment where he is now doing the type of work for
which he is so well suited. He is earning a substantial salary and
has resumed his rightful place as head of the family.

P. 7. a first offender had heen arrested and convieted for a
rather distasteful offense. During his five year period of im-
prisonment he was a model subject. While he was being proc-
essed for release our representative obtained employment for
him, The progress he has made is noteworthy. He has risen to
head maintenance man, highly respected by both employer and
fellow employees. Since his release he has acquired a wife and
has come to fully appreciate the status of family man and good
citizen,

TTo illustrate that the accomplishments of the Bureau are not
confined merely to seeuring placements we wish to make men-
tion here of the case of N. L.* who since 1943 had neither seen
nor heard from his brother. He appealed to us and after a length
of time, guided only by the meagre information granted us, we
managed to establish contact and reunite the two brothers.

‘One more phase is exemplified by the ease of P. B.* It has been
the custom of our representative to display more than a business
relationship between himself and the client before him. Mr.
Schwartz assumes the role of financial advisor, offering counsel
and advising the elient to save part of his earnings each week,
and thus someday he may be in a position to establish a small
business of his own. Of coure persons will react in different
ways when receiving counsel of this nature. One day, a client
appeared at the Bureau secking the usual assistance. Mr.
Schwartz took charge and after the regular business had been
dispensed with he went on to offer the customary counsel, dur-
ing which time the client, ML T.*, sat silently by. Later he rose
to leave and merely thanked our representative for the assis-
tance. Of course, Mr. Schwartz had no way of knowing just how

All names and initials are fletitious.

64 ‘Tue Prison AssociaTion or New York

this bit of advieo had been received, that is, not until one day,
several months later, when a gentleman appeared before him
“You don't remember me, do you, Mr. Schwartz? Well, I was
here one day and after you gave me the help I needed you
threw in a little something extra, Something that set me to
thinking real hard, Well, with my knowledge of carpentry and
afriend who is a fine painter, we put together a few dollars and
rented a horse and wagon and went from door ta door, buying
up old and broken furniture. Thon we rented a barn’in New
Jersey and using it as a storage room and workshop my friend
and T managed to build up quite a trade. People now come to our
place and buy renovated furniture. We're doing very well.”
These had been his own words! And he had gone on to tell
Mr. Schwartz that it all stemmed from the bit of sage counsel
given him at a time when he thought he had not a friend in the
‘world. One can well appreciate the deep satisfaction that is to
be found in such exellent results,

‘The deluge of letters from parolees and discharged men to
express their gratitude and further pledge their full support
offers deep gratification. From among them we have selected for
publication the following excerpts,

rR." anys in pat’. ..“T wish now to express my thanks for your
Marla effarty abd may" God Mle you: Yau hate Been very Kind or
deot'aha Tahal ovencs be gratefa

Ahr are A et aking tha tne Sha pu
fore mo & Job; he hak come out ae ane fo

"New York,
you have impressed me ss 4 mam tho would Being about the wanossible
tree he ls wonvineed that fe ia 50 doing in the aid of © fellowman
deserving of buch a
fers...“ was much disappointed at not being released, but
Tatil save that determined perseveran Tope to ba more forty.
‘ata lator date. This js my,meana of thanking you for your well
‘meant efforts in my behalf."
‘And from G. R.° ... "Upon my release from thle inatitution I will be
ado tour soe’ acd to get your letter of Inteoduction ta
tio
oe thine I coud do t. F hope
‘will Bea credit to your organization»

While it is true that some of these lettors surpass the rest in
their style, and others are a great.deal neater than the rest,
while still others show a greater aptitude as to their expression,
this must be said of all of them—they are singular in their
spitit of sincerity and gratitude,

All names and initials are Aetitious,

THe AssociATION’s BUREAUS OF SERVICE 65

Letters of appreciation pour in constantly, and among them
are to be found those from chaplains, institutional heads, rela
tives and friends.

‘The purpose and achievements of this Bureau are most con-
structive and valuable as can be attested by those we have
helped. Their resolve to remain loyal, trustworthy, and effi-
cient is the proof to substantiate our contention. Sometimes we
sadly Jearn that one of our men has failed both his employer
and this Bureau, thereby failing himself, but these disappoint-
ments are so negligible that they are completely surmounted
by the hordes of those who faithfully have fufilled the trust
put in them, This is the reward for our combined efforts.

STATISTICS FOR EMPLOYMENT AND RELIEF BUREAU FOR 1947

Office interviews giz
2009
Sai
1563

Men released from New York City ponal institutions 956
Men released from Nev York State penal institutions
Men released £70 tate penal institutions.

Meats provided
Nights lod dea
Employment eontaste made by pertona val (approx)
Hen placed in emp
Men
Total amovnt. spent solely for relief (includes cash, meals,
‘and lodgings) 38,636.30

1947 was an active year for the Family Serv-
ice Bureau of the Prison Association. This
dopartment continued as in other’ years its
supportive role to the families of men serving

isonment in city, state and federal prisons. It is a
sad commentary on our modern society that the number of

families needing assistance increases each year. A total of 176

cases were carried over from 1946 to 1947. In addition there

were 114 new eases and one reopened when the prisoner vio-
lated his parole and was returned to Sing Sing. Sixty-throe
cases were closed during the year when prisoners were released
and eame home to their families.

In the course of the year, the director of the Bureau, Miss

Margaret Murdock, held 916 office interviews and made 149

collateral visits to families, relatives, cooperating social agen-

tudes personal and telaphong interviews with cliente, parole an
probation ofleers and agenc » zi

66 ‘THe PRISON AssoclATION or New YoRK

cies, and medical resources in the community. Miss Murdock is
a worker of considerable experience and training and capably
administers the affairs of the Bureau.

In its work with these families the Bureau is careful not to
duplicate the work of other agencies in the city but rather
maintains a close working relationship with them in the best
interest of its clients. Its policy, however, is sufficiently flex-
ible so that it ean draw on its own resources or relief funds for
special or emergency needs when it is not possible to obtain
this assistance from a public or private relie? agency.

There was twelve year old Daniel* who was left entirely
without home or family when his father was sent to Sing Sing
following a street altercation. This small boy's mother had
deserted the family many years before and the father had
boarded him out in a private family. But after his sentence
there was no way that he could continue to pay the child's
board so he was placed in an institution. There his isolation
was more than ever emphasized because he had no visitors, no
spending money for movies und candy, or presents at Christ-
‘mas or on his birthday. This child found a much needed friend
in the director of the Family Service Bureau who saw to it that
hhe was not neglected at Christmas or on his birthday and that
he had spending money like the other children, and made
arrangements for him to visit his father from time to time. He
is no longer a lonely, deserted little boy but is happy in the
knowledge that his father is not lost to him entirely and that
he has a new friend in the Bureau.

Although New York is rich in sources of help for people, too
often the family faced with a sudden or unexpected need does
not know where to turn, This was true of the L* ly.
Mr, L. was a veteran with an honorable discharge and received
a disability pension from the army. After a fight with a com-
anion who subsequently required medical attenion, Mr. L. was
sent to Riker’s Island for four months, leaving a young wife,
two small children, and a Jot of debts. While the wife and
children received food and shelter in the home of the prisoner's
family, the shock of his incarceration, her own poor health,
the children’s unmet need for warm winter clothing and the
Bressure of her husband's debts seemed tobe more than Mrs. T
could bear. A frantic letter from Mr. L. to the Family Service
‘Burean greatly eased the situation, Hospital care was arrange
for Mrs. L. and later a job was found for her. The children
were provided with warm clothing. The loan companies were
‘contacted and payment of the debts postponed until the family

All names end initials are Aetitious,

THE ASSOCIATION'S BUREAUS OF SERVICE 6r

could meet them comfortably. Beyond this practical help given
the famliy, Mrs. L. found comfort and reliof in talking with the
social worker about her own feelings of resentment and anxiely
around the “disgrace” to her and the children resulting from
her husband’s prison term.

Perhaps of all the services the Bureau offers this more or
less intangible service is the most vital to the future well being
of prisoners and their families, The social worker in the Bureau
is one person both the prisoner and his family know can be
counted upon to understand what they are going through. The
prisoner himself is able to relieve his own anxiety and guilt
about his family through the interehange of letters between
himself and the worker. We must bear in mind that often these
men have been responsible husbands and fathers before the
chain of events led to their incarceration, On the other hand
the disgrace, the stigma, around a father or a husband in prison
is so often a painful, frightening experience to the family left
behind, The shock of losing the main source of support, the
Joss of confidence in the prisoner, the strain of covering up or
explaining to relatives and neighbors is great. Often the social
worker is the one person to whom the family can feel free to
talk out these feclings and resentments. They find release from
pent up emotion, and help in knowing that in her they have
found a person who understands and to whom they can express
their real feelings and know that they will be accepted and
understood, This is a very necessary preparation for the pris-
oner's release and return to his family and plays a large part
in his reinstatemont with his family and the community. The
harsh fact of a prison record is an experience which, difficult
as it is, can be faced and accepted but requires infinite skill
and understanding to bring about so that it will not be too.
damaging to cither the prisoner or his family.

‘The effect of a member of the family serving a prison sen-
tence too often precipitates problems in other individuals in
the family. For instance, in one of the families under care
during the year, a girl of ten became greatly disturbed over
the incident which led to her father’s commitment to Mattea-
wan. The mother of this ten year old was at a loss to know
whai to do about her. She brooded over her father’s misfortune,
refused to play with other children, expressed fear that she
herself might be “crazy” and continually begged her mother
and brother not to leave the house for fear that some accident
might befall them on the street. This child is now having psy-
chiatric help and showing great improvement.

“All mames and initiale are fottious

68 ‘THe PRISON AssocrATION oF NzwW YoRK

‘Sometimes it happens that the family of the prisoner may be
iil or too old to cope with the situation which is forced upon
them by  son’s imprisonment. This was so with the B*—
family, when theiz twenty year old son was confined for a
short sentence following a burglary in which he was impl
cated. For eight years Mr. B. had been a bed-ridden invalid
suffering from the progressive Potts disease. During the first
years of the onset of her husband’s sickness and while the son
Was still in school, Mrs. B. had eked out the family ineome by
embroidering insignia on army uniforms. With the end of the
war, however, this work ceased and with her son’s incarcer-
ation his contribution toward the rent likewise was stopped.
‘The Bureau was able to meot this need for Mrs. B. until her
son’s release.

"The Family Service Bureau is particularly coneerned about
the welfare of the children of prisoners and a major part of its
work revolves around their needs. Often for the first time the
mother has to take over the role of breadwinner and day care
must be arranged for the children. The spring and summer axe
especially busy times for the Bureau, because in addition to
all the other services provided for prisoners’ families, the social
worker, in cooperation with the many child care agencies,
arranges vacations and camp placements for children. These
plans not only provide a respite for the mother but a happy,
carefree and wholesome experience for the children,

‘As we look back over the year just passed it would seem that,
the families in our care present all the problems which may
‘beset any normal family in a large city. The Bureau, however,
must always see these problems, difficult and trying in them-
selves, against the tragie background of grey and somber
prison wails, To those in the Family Service Bureau who min-
ister to these unfortunate families, the responsibilities are
great and the results so worthwhile,

STATISTICS OF FAMILY SERVICE BUREAU FOR 1947
Families under supervision January 2, 1947
Now cases reeeive

Cases reopened

‘Total number of cases under supervision
Gases elon

viduals pro
Children and mothers sent to summer eamps

~ FAT names and initials axe fictitious,

LEGISLATION—1947

The following is a brief summary of those bills receiving
‘our support or opposition during the 1947 session of the Leg-
islature. We have always regarded as an important phase of
our efforts toward fulfillment of the purposes for which the
Association was established, the keeping of a watchful eye on.
the discussions and the bills introduced during legislative days
and their relation to progress in the correctional field and pub-
lie protection generally. The Association makes personal repre-
sentation in Albany, addresses communications to the various
committees, and is requested to give its adviea concerning
legislation fo officials and others. It has a legislative serviee that
enables it to know what bills are being introduced and what
action is taken on them from day to day during the session. It
is gratifying to note throughout the years that the opinions
expressed by the Association for or against bills are respected
and appreciated by not only members of the Legislature but
the Governor's office as well.

Approved

Panoue Boanp Memunnsni. Senate Int, 4, Pr. 312; Assem-
bly Int. 200 Pr. 581: Increases from three to five membership of
state parole board and changes provisions relating to proce-
dure of the board. Chapter 18, (See our Recommendation XI to
the 1947 Legislature.)

DISPARITY OF SENTENCES. Senate Int. 122, Pr. 122; Assembly,
Int, 125, Pr. 125: Minimizes disparities between sentences of
2nd and 3rd offenders sentenced for crimes committed after
1942 and those sentenced for crimes committed before that
date. Failed of passage.

INEQUALITIES IN PUNISHDIENT. Senate Int. 123, Pr. 3014;
Eliminates inequalities which exist in punishment of persons
convicted of certain crimes and sentenced as 4th offenders

nes and sentenced under subsequent statutes pro-
viding for lesser punishment or whose original sentences have
already been modified. Chapter 586. (See our Recommendation
XII to the 1947 Legislature.)

SUFFRAGE. Senate Int. 127, Pr, 1948} Assembly 198, Pr.
2279: Excludes from suffrage, person eonvieted of felony in

[69]

70 ‘THE PRISON AssoclATION oF NEw YoRK

federal court if offense is felony under state laws, unless par-
Gomed or restored to rights of citizenship by president, also
Porson convicted of such a felony in another state unless par
Fone or restored to citizenship rights by proper authority in
that state, Chapter 280.

DEFICIENCY APPROPRIATION. Senate Int 400, Pr. 410: Makes
deficiency appropriation of $608,000 for maintenance and oper-
ation expenses, other than personal service, of correction de-
partment instiuions therein, Chapler 8.

‘DEFINE SENTENCE. Senate Int. 786, Pr. 810; Assembly Int.
794, Pr. 804: Minimizes discrimination between sentences of
2nd and 3rd offenders for definite terms, for crimes committed
before and after 1942. Vetoed.

INDETERMINATE SENTENCR, Senate Int. 187, Pr. 811; Assem-
bly Int. 793, Pr. 803: Minimizes discrimination between inde-
terminate sentences of 2nd and 8rd offenders for crimes com-
mitted hefore and after 1942. Vetoed.

‘Moroz Venicur PLATES. Senate Int. 854, Pr. 891; Assembly
Int, 1026, Pr. 1045: Repeals provision relating to issuance by
motor vehicles commissioner of only one number plate for each

motor vehicle. Tabled.
Bupeer BLL. Senate Int. 962, Pr. 1026; Assembly Int. 1072,
Pr, 1095: Makes approp

nance and operating expenses of state government. Chapter 60.
(See our Recommendation IIT to the 1947 Legislature.)

PAYMENT OF CLAIMS. Senate Int, 975, Pr. 1088; Assembly
Int, 1084, Pr. 1107: Authovizes state comptroller to examine,
andit and certify for payment, claim of not more than
injuries to personal property’ ox for personal injuries caused
by tort of state officer or employee seting as such, if claim is
submitted for payment by head of department or agency and
approved by attorney general. Chapter 91.

i
4

Lncistarion—1947 mn

PRonation. Senate Int. 1184, Pr. 1273; Assembly Int, 1379,
Pr. 1481: Provides local probation officers shall be in eompeti
tive class of civil serviee, in counties of less than 600,000 out-
side of N. ¥. City, and includes senior trial justice of supreme
court residing in county with other judges for appointment of
probation director and strikes out reference to judges of courts
other than children’s court and county court. Failed of passage.

Puonssi0N. Senate Int, 1185, Pr. 1274; Assembly Int. 1875,
Pr, 1427; Extends jurisdiction of state probation division to
domestic relations courts and to interstate and intrastate trans-
fer of probationers; makes rules binding on directors of pro-
bation as well as all probation officers and refusal to obey shall
bbe grounds for removal, subject to Civil Service Law pro
sions; gives supreme court justice or eounty judge power to
enforce by proper proceedings attendanee of witnesses on di-
rector’s subpoena, Failed of passage.

Sick PRISONERS. Senate Int, 1188, Pr. 1277; Assembly Int.
1214, Pr. 1820: Includes county penitentiaries in provision for
removal of sick prisoners from jails and provides for removal
to county infirmary as well as nearest hospital. Vetoed

PRomanion. Senate Int. 1208, Pr. 1297; Assembly Int. 188%,
Pr. 1437: Makes all laws relating to probation equally appli”
cable and binding upon salaried and volunteer ppobation off
cers and directors; provides that probation direstors shall be
in competitive class of civil service. Failed of passage.

PROBATION. Senate Int. 1209, Pr. 1298; Assembly Int. 1880,
Pr, 1482: Requires that probation officer ahall report to head
of probation bureau or department who in return shall report
to court; if there is no bureau or department then report shall
be made direct to court as at present; records and duties of
probation officer shall conform to Correction Law requirements,
Failed of passage.

PROBATION. Senate Int. 1210, Pr. 1299; Aasembly Int. 1382,
Pr, 1484: Strikes out provision that probation officers with ap.
proval of court, may act as parole officers over persons released
from penal or reformatory institutions. Failed of passage.

PROBATION. Senate Int. 1211, Pr. 1200; Assembly Int. 1878,
Pr. 1480: Authorizes court to direct that probationer shall
carry out directions of probation officer and in general to com-
Port himself as such officer shall determine. Failed of passage.

PRonarton. Senate Int. 1212, Pr. 1801, Assembly Int. 1281,
Pr. 1433: Authorizes court to discharge probationer from pro-
bation, instead of from further supervision. Failed of passage,

or ‘Tun PRISON ASSOCIATION oF New Yori

svonorantis. Senate Int. 1482, Pr. 2790: Anthor-
ea Tir conection of defendant fr certain sex crimes
Poeder ‘is examination fo determine whether he is sexual
peychopath defined a Jyratale of mental aberration that he
dere outro imprlses toward commission of sox crimes and
ca cetvovidas for feport on examination BY payeiatrsts
onetdoepanstor to state hospital for care, treatment and re:
and for tran t era. (Sen our Recommendation VI Co the 1947
Legislature)

6; Assembly Int.
asin. Senate Int. 1781, Pr. 1986; Assembly
Lan Pe 2118: Provides for mainiaining identily of photo-
traphs taken of criminals, by identificational numeral board or
Similar apparatus. Chapter $48.

s 788, Pr. 1987; As-

‘TRANSPORTING PRisoNERS. Sonate Int. 1788, Pr. 1987; As
sembly int. 192, Pr. 2119: Proves ole tensporting pe
oner after arrest may confine prisoner in any county or ci
Jail along route, where he shall be kept until officer is ready to
proceed. Chapter 477.

a

SSPABLISHMENT OF CoMMISSARY o8 CAOTHEN. Senate Int.
she, Pr 2st; Aaoembly Inf. 2122, Pr, 3028: Allows correc:
‘ak commissioner te authorize head of institution tn depart
tnt to establish eommiseaty or canteen for benefit of inmates
Taj employess with profs Lo be used for general purposes of
inotitutions. Failed of passage,

Laorsnavion—1947 3

YourH ComMIssiON. Senate Int. 2589, Pr. 2973; Assembly
Int. 2740, Pr. 8108: Authorizes youth commission to grant ad-
ditional state aid of not more than $250 a year for each 1,000
children, to N. Y. City or to any other eity or county operating
youth bureau, for recreation and education projects for youth
guidance in high delinquency rate area; state aid shall not ex-
ceed 14 of expenses as approved by commission. Chapter 448,

SUPPLEMENTAL APPROPRIATIONS. Senate Int. 2557, Pr. 3029
Assembly Int. 2756, Pr. 3146: Makes supplemental appropri-
ations for support of government, Chapter 415.

Crrripicate oF Goon Connuer. Assembly Int, 144, Pr. 144;
Senate Int. 212, Pr. 212: Provides license to conduct billiard
room may be issued to felon who has received executive pardon
or certificate of good conduct from parole board. Chapter 129.

YourH Comanission. Assembly Int. 202, Pr. 202; Senate Int,
, Pr. 5: Continues youth commission to July 1, 1950, Chapter
39,

AMENDMENT 10 CONSTITUTION. Assembly Int, 313, Pr. 313;
Senate Int. 29, Pr: 29: Provides court of appeals jiidges, su.
preme court justices, court of claims judges, surrogates, county
Judges,-N. Y. general sessions judgos and city court justices of
record, may be removed only for eause or retired for mental or
physical disability by court consisting of chief judge and senior
associate judge of court of appeals and one appellate division
justice in'each department designated by majority of justices
in department, but only after being sorved with statement of
charges and having opportunity of being heard ; notice shall be
given to governor and legislature of proceeding and member of
legislature may prefer charges against judicial officer to be
determined by legislature and court aetion stayed. To Secre-
tary of State.

LicBNs® FEE—DANGEROUS WEAPON. Assembly Int. 497, Pr.
499; Senate Int. 463, Pr. 476: Provides in N. Y. City, city coun.
cil, shall fix amount of license foo for carrying and use of dan
getous weapon and provide for disposition such fees, Chapter

Srare VOCATIONAL INSTITUTION. Assembly Int. 789, Pr, 799;
Senate Int, 699, Pr. 721: Provides for commitment to N. Y.
state vocational institution of male delinquent 16 years of age
or over but less than 21, instead of 19 years and includes those
convicted as youthful offenders; strikes out provision for deliv.
ezy by officer to superintendent of eopy of sentence and inves:
tigation. Vetoed.

4 ‘Tue PRISON ASSOCIATION OF NeW YORK

2 sets, Asoombly Int 790, Pr. 800; S
oat Provides for commitment to corredtion department
PPhste offender adjudged to be wayward

ter 198.

reception conter, 0:
minor or youthful offender.

mene

Cerniricare oF Goop Conpucr. Assembly Int. 1889, Pr
2020; Senate Int. 1657, Pr, 1822: Provides action by parole
board granting certificate of good conduct to person previously
convicted of erime who has conducted himself in satisfactory
manner for at least five years, shall be by majority instead of
unanimous voto. Chapter 588.

IDENTIFICATION PrioR 70 BAIL. Assembly Int. 1978, Pr. 21205
Senate Int. 1786, Pr. 1985: Provides no person charged with
endangering life or health of child or with carnal abuse of
child of ten and Jess than 16 years of age, shall be admitted to
‘pail until fingerprints have been taken and previous record sub-
mitted to judge. Chapter 283.

‘TRANSFER OF PRISONERS. Assembly Int. 2033, Pr. 2187; Sen-
ate Int, 1870, Pr. 2097: Permits transfer of person confined in
State voeational institution or reformatory after classification
fat correction department reception center and before actual
Confinement. therein, in same manner as persons confined.
Chapter 577.

ASSISTANCE POR Fite PROTECTION. Assembly Int. 2520, Pr.
2755; Senate Int. 2363, Pr. 2662: Authorizes warden or supe:
intendent of state correctional institution with approval of cor
rection commissioner to contract with municipal authorities
for mutual assistance between fire department of institution
and of municipality. Chapter 589.

Opposed

Cane INstITUTE. Senate Int. 154, Pr. 416: Establishes in
executive department at Columbia university, New York Uni-
versity, or other institution of higher learning, a state institute
for study of crime, its basic causes and factors, to devise meth-
ods of rehabilitation and treatment of delinquents and erim-
nals, to provide training for persons intending to work in such
field and to provide consultation and expert opinion for courts,

‘Lacistavion—1947 5
probation and parole departments, schools, social agencies,
mental hygiene and child guidance clinies; creates board of
trustees and apropriates $15,000. Failed of passage.

WaIER oF JURY TRIAL, Senate Int. 195, Pr. 195; Assembly
Int. 823, Pr, $23 : Presevibes method for waiver of jury trial in
criminal non-capital cases. Failed of passage,

YOUTHFUL OFFENDERS. Senate Int, 465, Pr. 478; Assembly
Int. 545, Pr. 551 ; Assembly Int, 1439, Pr. 1491: Authorizes cor-
rection department to establish farms, hostels, camps and
schools for rehabilitation of male offenders between ages of 16
‘and 21; appropriates $2,000,000. Failed of passage.

Yourt Correction AvrHoniry. Senate Int. 486, Pr. 479:
Assembly Int. 544, Pr. 550; Assembly Int. 1488, Pr. 1490
Creates a youth correction authority in executive department;
requires courts to commit to authority for rehabilitation,
youthful offenders between 16 and 21 to determine type and
length of treatment needed; permits it to sct up detention and
diagnostie centers and use new methods of correctional treat-
ment such as hostels, work camps, foster homes or existing
correetional institutions. Failed of paseage.

BRUSH-MAKING. Senate Int. 918, Pr. 968; Assembly Int.
1021, Pr. 1040: Prohibits brush-makting in state prison, peni-
tentiary or reformatory, for state or political subdivision or for
any public owned institution, except state correctional and
charitable institutions. Vetoed. ,

Cane Instrrure. Senate Int. 1921, Pr. 2160: Establishes in
correction department state institute for study of crime with
board of temporary trustees consisting of state correction cam-
missioner and four members to be chose by governor; appro-
priates $15,000. Failed of passage.

Conrection OFPiceRs’ SALARIES. Senate Int. 2118, Pr. 2897;
Assembly Int. 2221, Pr. 2398: Provides when city maintains
correction department, minimum annual salary of competitive
civil service employee in title of guard, prison officer or cor-
rection officer shall be not less than that paid to corresponding
police officer or patrolman with same length of service and
allows 10 per cent increase for hazardous duty ; fixes minimum
requirements for appointment. Failed of passage.

_ Yourn Connection Auritonrry. Assembly Int. 262, Pr. 262;
‘Senate Int. 1584, Pr, 1781: Creates youth correction authority
in oxecutive department and requires courts to commit thereto
for rehabilitation, youthful offenders between 16 and 21, to

‘Pup Prison Association or New Yor

determine type and length of treatment needed; authority may
set up retention and diagnostic centers and sw methods
of correctional treatment such as hostels, work camps, foster
homes, or existing correctional institutions. Failed of passage,

Civin ActIoNS AGAINST CORRECTIONAL EMPLOYEES. Assem-
bly Int, 188, P. 798; Senate Int. 701, Pr. 728: Prohibits eivi
action against correction commissioner, his deputy or any off
cer or employee of institution for criminally insane or mentally
defective, in department for damages for act or omission in
eourse of duty, without leave of supreme court judge; claim to
be brought in court of claims. Chapter 867.

BoARD OF PAROLE. Assembly Int. 1452, Pr. 1509; Senate Int.
1180, Pr. 1219: Strikes out provision that board of parole shall
have report of one of its mombers giving his personal views and
recommendations as to prisoner applying for release; requires
‘that action of board shall be by majority vote instead of unani-
mous vote; makes it permissive instead of mandatory that
governor appoint person to act in event of inability of member
Vetocd.

MAINTENANCE OF TRAMPS. Assembly Int. 1496, Pr. 1
Senate Int. 1879, Pr. 1508: Increases from 60 cents to $1 a day

per capita expense io be paid by state for maintenance of
tramps in penitentiaries. Veto

SEXUAL PSYCHOPATHS. Assembly Int. 2191, Pr, 3106: Pro-

vides offender convicted of certain sex crimes shall be re-
manded for examination to’ determine whether he is sexual
psychopath and if so, he may be committed to reception center
at Elmira and transferred to correction department institution
for indeterminate term and until no longer a threat to public
morals. Vetoed. (See our Recommendation VI to the 1047
Legislature.)

‘THE 77th ANNUAL CONGRESS OF CORRECTION

The following summary of the 77th Annual Congress of
Correction is included herewith because of the intimacy of the
Prison Association of New York with the affairs of the Amer-
ican Prison Association from its beginning. The Prison Associ
ation of New York staff serves as a hub for the activities and
administration of the national body.

‘Some seven hundred registered delegates to the 77th Annual
Congress of Correction convened at the Municipal Auditorium,
Tong Beach, California, from September 12th to 16th, inelu-
sive, to discuss the general theme “Community Responsibility
for the Prevention of Delinqueney and Crim

Representing 42 States, the District of Columbia, Puerto
Rico, Hawaii, Canada and Sweden, those in attendance were
the guests of one of the most energetic local committe
participate in a Congress of Correction. Under the efficient and
capable chairmanship of Kenyon J. Scudder, Superintendent,
California Institution for Men, Chino, and ably supported by
Dirs. Scudder, the local committee on arrangements did not
overlook a single factor making for the enjoyment of those in
atlendanee,

For the first time since 1941 a great many from the far west-
em States, particularly California, were enabled to profit by
the sessions. The California Department of Corrections
through its Director, Ri ‘A. MeGee, and affiliated groups
made it possible for top as well as subordinate employees to
attend the Long Beach Congress.

All afliliated organizations of The American Prison Associ
ation, as well as its various committees, were in session during
the Congress. Progress reports were made and future plans

Significant among the major developments reported upon
jure to be produeed in eooper-

ards and Training and to portray the custodial branch of the
prison service as 2 earcer.

Boston, Massachusotts, was chosen as the 1948 Congress of
Correction City and the 78th Annual Cogrese will be held from
August 29th to September 3rd, inclusive, with headquarters at
the Hotel Statler.

‘Members of the American Parole Association in attendance
at the Congress voted to merge with the National Probation

(171

cy ‘THe PRISON ASSocIATION oF New Yori

Association. This action was taken following many months of
study and diseussion and the Association will henceforth be
known as the National Probation and Parole Association. Ib is
anticipated that greater emphasis will be devoted to the sub
Ject of parole ona nationwide basis and additional parole ex-
ports are being added to the advisory council. Likewise a full
time parole consultant has been added to the staff of the
National Probation and Parole Association.

‘A standing Committee on Parole from Institutions was voted
by the membership of The American Prison Association to
serve as a conference discussion group.

President

W. Frank Smyth, Jr., Superintendent of the Virginia Peni
tentiary, Richmond, Virginia, was clected unanimously to the
office of President of the Association.

Warden Smyth, long an active member of the Association, as
well as the Wasdens’ Association and Penal Industries Associ-
ation, was recognized, by his clection, for the many progressive
steps taken during his career in the Virginia prison system.

‘The comments that follow are excerpts from some of the dis
cussions and the full remarks of those on the Congress program
will be available at a later date in the form of the Proceedings.
HONORABLE EARL WARREN, Governor of the State of California

Tam happy to extend to you a belated but very cordial wel-
come to our State and to say to you that we are not only happy
to have you with us but that your presence here gives us an
added sense of well-being. We recognize your Association as
the oldest, the largest, and the most stable organization of its
‘kind in America. We know that it was thinking in terms of and
working for a more understanding and humane system of pen-
ology when most people were complacently willing to endure a
medieval prison system which was unworthy of present day
civilization. We are indebted to you for much of the philosophy
and most of the principles which form the modern concept of
correctional treatment in our present system of penology.

You have come to us at a very significant time—a time at
which we have many problems incident to our very rapid
growth—a time when we are trying new techniques to solve
‘those problem:

‘We are still a pioneor State. People who wore born when this
State was a wilderness are still living. We do not eclebrate out

‘Tur T7rH ANNUAL CONGRESS OF CORRECTION 79

hundredth anniversary until 1950, and three years before our
admission to the Union there were in the entire State very few
more civilized people than could be put in this Auditorium. Our
population started to grow by leaps and bounds with the dis-
of gold in January of 1848, The gold rush of 1849 made

but we have had many migrations since that time that

r'fed it in size. Perhaps tho greatest migration in his-

tory has come to this State since the 1940 census. In the past six
years our population has increased by more than two and a half
million people. Our State is changing every day. We must plan
for the future as did those who came in the early days. We feel
that we too are pioneers. We do not emphasize the fact that we
are rounding out the first century of California history as much
as we do that we are pioneering her second century of progress.

We will always have a crime problem and it has long been,
my belief that we should attack it as one problem, with each of
the agencies of government doing its part of the job, not in a
detached way, but as part and parcel of a correction system
that encompasses the entire problem. Aecordingly we gathered
together the scattered segments of an antiquated system that
had been geared to the early days of our statehood and molded
them into a Department of Corrections that is endeavoring
trough the most modern techniques to integrate every activity
from that of crime prevention to the rehabilitation of adult
offenders through parole and pardon,

‘This State in its entire history has never made a complete
inventory of its crime situation. We propose to do so now.

‘The California prison reorganization act of 1944 which ere-
ated the new Board of Corrections gave that agency the boad-
est possible powers to make studies of crime and delinquency.
‘This Board is composed of the Director of Corrections as Chair
man, three members of the Adult Authority, three members of
the Youth Authority, two members from the Board of Trus-
ices of the California Institution for Women, and two members
from the State Board of Prison Directors. The Board’s primary
function is to serve as a means of correlating the programs for
adult and youth offenders. In addition, the statutes provide that
the Board “shall make a study of the entire subject of crime,
with, particular reference to conditions in the State of Cali
fornia, including causes of crime, possible methods of preven-
tion of crime, methods of detection of criminals and appre~
hension of criminals, methods of prosecution of persons ac
cused of crime, the entire subject of penology, and report its
findings, its conclusions and recommendations to the Governor.
st auch times as he may require, and to the Legislature of Cali-
fornia at each regular session.

80 ‘Tie PRISON AssoctATION oF New York
Our experience of the past three years has shown the need
for further strengthening and implementation of these fune-
tions of the Board, Accordingly, legislation was enacted this
year under which the Governor may appoint from time to time,
Tpecal crime commissions to work seh the Board of Corre

rudy of various phases of the problem. Each of these
special commissions will be composed of from three to five citi-
zens who will conduct an investigation of the subject matter
preseribed in the executive order creating it and will cease to
exist whenever it has made its final report to the Board for
transmission to the Governor and the Legislature. In addition,
funds have been provided for the employment of staff to serve
the Board of Corrections and the special crime eoramissions in
the making of their studies and the transmission of their re-
ports and recommendations. ;

[At the present moment Lam engaged in setting up five such
commissions which 1 am hopeful will assist us materially in
the solution of our problem. These will cover the fields of erime
prevention and juvenile delinquency’; institutional care and re-
ease procedures; criminal law and procedure; social and eco-
nomic conditions leading to erime; and last, but by no means
least, a commission on organized crime.

‘The protection of life and property is the basie job of govern.
ment. Without it nothing can be satisfactory. On all levels of
government many different agencies play their part. Yours is
a most difficult one becanse you are expected to make good for
all the mistakes of society as well as of the broken individuals
who come within your jurisdiction, You never can sueceed one
hundred per cent because some are completely lost to society
before they come to you, but you can make progress by reha-
bilitating some. And the percentage rehabilitated should in-
crease progressively as factual, scientific,’ and humane prac-
tices are applied to your work. I know it is the purpose of your
organization to establish such practices, You are making prog-
ress and are entitled to the gratitude of all who are striving for
a better social order.

Tris for that reason, I welcome you to the State of California. |

PRESIDENTIAL ADDRESS
Hanotp EB. DoNNELL, President, The American
Prison Association:

We gather here from all sections of this country, together |
with dslggates trom our neighboring countries, in ths, te TI |
‘anual Congress of Correction, to analyze and eryatallion the

THE TTP ANNUAL CONGRESS OF CoRRECTION © 81
our present crime era. We are concerned particularly with the
factors applying to the youthful offender who is found in such
large numbers under our care in this present, day and age. We
have met annually, with few exceptions, since 1870. The prin-
ciples laid down at the founding of The American Prison
Association on that date, and reaffirmed in later years, have
remained steadfast although the problems confronting the
penologists of this country have changed with the ever-chang-
ing conditions of our social and economic progress and failure.
These changes have become more pronounced with the result
ing effects of a world torn by war with its disastrous worldwide
consequences. Many of our worthwhile leaders of the past have
gone to their just reward, leaving lasting impressions upon.

ose of 1s who still carry on. Their fine influences are still felt
by us, and are reflected here today in our attempt to solve and
promote better methods for dealing with the multiple tasks
which confront us.

As we assemble here amidst tho beautiful surroundings of
Southern California it is essential that in my keynote address to
this Congress I set forth the theme as adopted by the officers
and directors of the Association at the February midyear meet~
ing. This theme, “Community Responsibility for the Preven.
tion of Delinquency and Crime”, is a far-reaching topic and
concerns every man, woman and child throughout this land.
‘The public is responsible. The conditions confronting the indi-
vidual as encouraged by our social order, or at least conditions
which are not discouraged by the greatest segments of our
community life, create the delinquent—and the confirmed crim.
inal from this delinquency comes forth. This same public con-
science, or better, lack of Zonscience, is also responsible for the
improper conditions of control as well as in the prevention of
‘the delinquency. Moreover, such apathy and irresponsibility all
00 often tail to provide those of us in our work with the proper
machinery and trained personnel with which to carry out our
herettlean endeavors toward the rehabilitation of the offender.

We cannot deny that juvenile delinqueney and youthful erim.
inals are all too prevalent in this country and that the youthful
offender of our present age is one of the serious problems of a
complex society. There are, of course, many factors contribut-

to this delingueney, most of whieh have been focused in our
attention through the pross, by publie speakers both from the
platform and over the air, as well as through special articles
pablished in our current magazines. As chief contributors £0
‘this crime era, criticism has been leveled at the lack of home
guidance, improper methods of handling certain elements of

our youth within our public school systems, and the inadequacy.

82 Tue Prison Associarion or Nuw YorK

of caring for the spiritual life of youth in the churches. There
has been also a serious lack of public consciousness on the part
of our municipal governments to eliminate the hazardous recre-
ational facilities established through commercial interests for
the entertainment in wrong directions of our youth of the
streets.

Lack of home guidance we have always had with us, and
always will, and if we do not correct more of our youth of the
present day parental delinquency in the future will be far more
pronounced. Heonomic factors, low mentality, immoral social
conditions, incompatibility in homes, and lack of comprehen-
sion of the true purposes of life, all iend to make a home an

place for the bringing up of children. Therefore, it
spear to me that little can be done at this level in the
correcting of the shortcomings of the children who are simply
existing, but not being raised. It would appear, then, that it
we ave to hope to bring self-respecting children out of this,
environment it must be done through the sources provided by
Public taxation or contributed to by the better element of our
society for the training and uplifting of all of our youth, with
particular emphasis on the less fortunate. Most of all, the con-
sefousness of the public guilt for these conditions’ must be
brought home to them by every available facility of commu-
nication,

‘This brings us to the matter of the school, which is the next
step to the home in the preparation of tho child to meet the
conditions of your manhood and womanhood. Is this school
system here to accomplish the most good for the whole, for a
selected few, or for the great majoxity with the unfortunate
few left entively out of the picture? I would like to think that
the school is doing the most good for the greatest number, but
T must think that our school system is seriously neglecting a
certain element in, our society unable to take care of them-
selves, who are born of poor surroundings with poor mental
background and inadequate encouragement through Jack of
proper home guidance, The street corner is thelr greatest
teacher, It is true that, in recent years, we have developed spe-
ial schools, vocational schools, and in many sections done much
in supervised recreation and play, but have we really gotten
down underneath and determined ihe exact needs of the street
urchin who just grows up like “Topsy” and clings to the thins
which are most easy for him to reach as he goes through life

‘The church has always been considered as being unable
reach the lower element of our people so much in need of
spiritual guidance. It is true that some of our uniformed groups
in the religious field do wonderful work within our slum areas

‘THe 77TH ANNUAL CoNaRESs oF CoRRECTION 83,

of population but I believe the church, as a whole, has not met
its problem in getting underneath the wayward youth of this
land to bring him to his senses through spiritual means. My
observation, over many years, has shown me that the boy from
the good home is found m church and is welcome in church
\whilo little attempt is made and little interest shown in bring
ing into the fold that boy who never had any spiritual guidance
within the home.

This brings me to the responsibility of the community as a
whole. We are today largely an urban-living people; too much
population in too small areas with too little proper activity
nd character building devices for our children. The more for-
tunate of our populace resort to measures, for which they pay
good money, such as summer camps, specialized education and
Feereation under proper guidance for their children; and by
80 doing keep the children away from the questionable places
of vice and iniquity. I like to believe that the majority of our
citizens think rightly and live right and desire their chldren to
do likewise and yet they permit, particularly within our urban
populations, the small minority of greedy, avaricious, immoral-
thinking, and unprincipled individuals to control the places of
amusement and recreation for the youth of these cities. It is
time that the right-thinking people did the voting, controlled
the situation, and eliminated these black blots in every city of
tis land, If’ that be done, juvenile delinqueney and youthful
offenders will be on the decrease, Within each and every com-
munity of this eountry let us make conditions such, that it will
be hard for unprineipled, money-loving individuals to reap
harvests through impoverishing, both in body and soul, the
weal victims upon whom they prey.

This Congress, over the many years of its existence, has done
many worthwhile things. Tt has promoted programs dealing,
with prevention, raised the standards of treatment of the i
careerated offender, and advanced proper payehiatrie and pay~
chological units within our institutional systems to study the
inmates sent to us, It has developed more adequate probation
and parole and, for many years, voiced the evils of our jail
system, Tt has set forth the reasons for the establishment of
‘dequate educational, recreational and religious training pro-
grams within our correctional institutions. Last year it formu-
lated and circulated a model plan for our correctional pr
cedure, It has just recently cireulated a classification handbook
for the guidance of all of ns in this field of work. It has fought
for years to retain work as a proper method of rehabilitation
for those unfortunates who go behind the bars. It has spent
‘much effort on improvement of our physical plants, It has dealt

84 ‘Tip PRISON AssoctATION oF New York

with the welfare programs of the individual inmates and their
families.

‘Now we are here again assembled to ve-discuss most all of
these heretofore mentioned subjects during the five days of this,
meeting. We desire that throughout this meeting the public of
all sections of the country be informed of our views as regards
the treatment of the offender. I am confident that this same
publie should be made fully aware of how we feel concerning its
responsibility for so large a group being sent to us for repair
after serious damage has been done, It is this lack of respon-
sibility by the public which is overcrowding our institutions
beyond the limits of capacity at this time. Crime is an expense,

‘enormous expense, from the time of the perpetration of the
rime until the Lime of the cure or, in many cases, the death of
the eriminal, It is the public that pays in taxation. It should be
the public that is most concerned with the elimination of the
greatest causes of the criminalistic tendencies in the youth of
this land, THE PUBLIC IS RESPONSIBLE!

‘THE COMMUNITY AND THE CORRECTIONAL PROCESS

Austin H. MacConuicK, Executive Director,
The Osborne Association, New York:
izcecpts from yemaria made a¢ «luncheon meeting epgosored by
 Lrnetican Barole Arciation, National Brobatlon Association
Shu Western States Pyobacon and Parole Conference, andthe bane
Beach service tubs, September 12th, 1947.)

During the war, when the juvenile delinquency rate rose by
Ieaps and bounds, communities throughout America were
gravely concerned with how it could be prevented and con-
trolled, Their efforts were not always very thorough or very
effective but their concern was genuine. During that period,
fortunately, adult crime decreased as millions of men in the
‘age group that produces the bulk of our erime were taken into
the armed forces and other maillions had plenty of work. Now,
with the juvenile delinquency rate apparently on the decrease
but still far too high, and crime apparently increasing at a rate
out of proportion to the number of men who have returned to
civil life, American communities have cause for redoubled con-
cern. They must do more than worry, however. They must ac-
cept their responsibility to deal with delinquency and erime
vigorously and intelligently, for it is on the community level

ition and eontrel can be accomplished most effec-

‘There can be no question of the community's responsibility.
In the drama of crime the community is literally the whole
show. The community writes the scenario, furnishes the actors,

‘THE 77TH ANNUAL CONGRESS OF CORRECTION — 85

provides the stage and supplies the audience. The community
has a thousand and one sets ready for any scene on one or
another of its many revolving stages, an infinite variety of
stars and bit players ready in costume and make-up to step on
and pick up their lines and business. ‘The drama of exime plays
2 continuous performance to crowded houses and gets news-

paper raves in every edition, But this is one show from which
there are no box-oilice receipts, For the drama of erime the
community pays the entire production cost.

Our primary function in correctional work, as we see it, is
to reduce erime by preventing its ropetition. Correctional work
js therefore an instrument of crime control and crime preven-
tion at the same time. Our job generally begins when the of-
fender is caught and convieted. The correctional process could,
as a matter of fact, begin during the period of detention await
ing indictment and trial, but it seldom does, since the county
jails in which most defendants are held are so notoriously bad
that they have a corrupting and degrading effect on prisoners
rather than a beneficial effect,

But if the correctional process is not as simple as some people
think, by the same token it is not as complex as some others
think, We do not cure, reform, rehabilitate—call it what you
will—offenders by dipping them in a vat of some magical elixir
compounded on a mysterious formula known only to Einstein
and eleven others. We do not mutter abracadabras over them.
There are no voodoo worshippers in the correctional field, 80
far as I know.

‘The public knows little about the correctional institutions it,
supports and much of what it thinks it knows just isn’t so.
Prisons particularly are veiled in an aura of mystery. T have
often compared them to No Man’s Land, shrouded in darkness
and peopled by unseen menacing figures. Occasionally they are
lighted up by a sudden flare. A riot, an eseape, a seandal, brings
‘the prison into brief and vivid highlight. Then darkness settles
down again—the publicity and the public clamor die down—
and the prison is once more shrouded in mystery. What goes on
there day in and day out, what the prison officials are trying to
do, how, and with what success, the public little knows and
little eares. And, curiously enough, the public knows and cares
very little more about the juvenile training school, which it,
fancies to be full of bad boys and girls for whom one ean do
very little, and not veiled in a shroud of menacing darkness but
shining in an atmosphere of sweetness and light that is all too
often sadly lacking.

‘We are becoming increasingly aware of the fact that we must
ay special attention, and even establish special machinery and

86 ‘Tum PRISON Association or New York

institutions, for the so-called youthful offender, the group lying
bet juvenile delinquents and the adult, criminals. It is
this age group that proditees most of the major types of erime
in America, They ave much more difficult to deal with than
older prisoners because so often trying to make a lasting im-
pression on thom is like writing on sand, But the very fact
that they have not yet jelled makes our esponsibility to train
them clear, and increases the chances of success. They are
especially good candidates for vocational training. It is possible
for good personnel to establish a leadership relation with them
that is not wholly appropriate with older prisoners. But it is
more difficult to prepare them for earning a living and for the
difficult family responsibilities that will come later with mar-
riage and children.

In California you people have had the good sense to make
special provision for the training, treatment and parole of the
young offender by establishing the Youth Authority. In my
opinion, this was the most forward-looking step taken in this
field in'recent years by any State. You will be interested to
know that two other progressive States, Minnesota and Wis
consin, have followed your lead, their legislatures having
passed Youth Authority Acts this year.

What must the community do to ensure maximum returns
from the correctional process? T have already answered thet
question indirectly. Tt must see that there are well staffed, ade-
quately financed probation and parole services with high pro-
fessional standards, and with security of tenure for personnel
who deliver the goods. It must free these services and keep
them free from political influence, pressure-group influence,
and every other influence that interferes with its proper fune
tion; protecting the public by dealing with each offender in the
way that is best for him and for society.

‘It must give probation and parole services steady, consistent
backing, permitting them to take year in and year out wisely
calculated risks, and not demanding or permitting policies that
bob up and down on every crime wave. Tt must recognize that
these services cannot do their job all alono but must utilize all
the social resources of the community.

In the institution field, the community or the composite com-
munity—the county and stale—must do some drastic things.

clean up those pest-holes, our county jails; the best way
to improve most jails is to abolish them. It must stop permitting
political hacks and glorified zoo-keepers to be appointed guards,
and sometimes wardens, of our institutions. It must put insti-
tution personnei on a career basis, with high standards, free
dom from politieal interference, ete. It must stop this monkey

‘Tue TTR ANNUAL CONGRESS OF CORRECTION _ 87
business of keeping prisoners in idleness at the taxpayer's ex-
pense because selfish interests with powerful lobbies want it
that way.

It must provide institutions with educational and vocational
twaining, medical and other rehabilitative services, because
that is the best way to prepare the offendor for free life. The
people who make up the community must divest their minds of
the erroneous idea that a decently run prison is a country club.
The loss of liberty is a punishment nothing else can balance.
‘There is not a person in this room who would willingly accept
a five-year sontenee to a first class hotel. It is impossible to
‘make men and women like prison.

The high ideals and traditions of the serviee elubs you repro-
sent make possible only one answer to the question, “Am I my
brother's keeper?’ We in correctional work do not ask you to
bbe gushy sontimentalist, to weep over the offender, to eoddle
and pamper him. We ask only that you accept your full respon-
sibility to promote and support every sound and practical en-
deavor to prevent boys and girls becoming delinquent, to pre-
vent delinquents becoming criminals, and to prevent first and
second offenders becoming repeaters, Not only in a body as a
great civie foree for good can you help prevent and control
crime, but as individuals who are not afraid to say, “Yes, T
am my brother's keeper.”

JAIL

How. Vennox Kruratnick, Member, California Assombly In-
terim Committee om County and City Jails. (National Jail
Association, September 12th, 1947) :

The Assembly Interim Committee on County and City Jails,
of which I had the honer to be Chairman, submitted its first
report to the Legislature early in 1945. Since that time, the
Committee has conducted extensive individual and group in-
spections. We have also held lengthy hearings—at which some
of you present honored us with your testimony.

We have found here in California roughly what is apparent
throughout the country—an outmoded system of inearceration
that is neither economical nor scientific nor humanitarian. I
‘would say offhand that the jails of California are by and large
better than those in a majority of other States. That, of course,
is not to say that they are not a disgrace in many respects,

So—the jails of California are bad, but not all bad. Nor are
the bad ones all in rural counties. Somo of our most rural areas
have jails run on enlightened prineiples. Some of our worst
ones are in urban or relatively urban centers. Much depends on
‘the sheriff, or whoever acts as custodian. Still more depends on

88 THE PRISON ASSOCIATION oF. NeW YORK

the legislative body in the locality, either the City Couneil or
the Board of Supervisors. Ultimately, everything depends on
‘the people of the commu

Itis utterly fanastic there should be such a wide gap between
what we preach and what we practice. In this ease, I have in
mind the gap between the generally recognized principles of
what a jail of a certain degree of security should be, and what
we all know most of them are.

‘Most of them here in California and elsewhere are essentially
dungeons, blotting out all hone of rehabilitation, and frequently.
containing not the slightest struevural indication that they were
constructed for any purpose other than housing wild beasts. In
fact, the Society for the Prevention of Cruelty to Animals well
might object to some of the jail conditions that ean be fond
right heve in California,

When are we going to learn that @ high percentage of in-
mates in our jails are not beasts but persons who react posi-
tively—both physically and mentally—to healthful stimuli such
as sunshine, fresh air, and an opportunity to work toward
restoration of human dignity?

‘The most basic problem in California, as 1 see it, is the job
of making communities more aware that they are shortehang-
ing themselves by ignoving jail facilities and standards.

For instance, County grand juries are required by law to
investigate and formally report on jails in their jurisdictions.
Yet, last year, 14 of the 58 counties of California failed alto-
gether to submit reports or submitted perfunctory ones that
were essentially meaningless. And, 1 daresay that record is a
better one than exists in many another State requiring grand
jury reports,

‘The answer to the public shortchanging itself is simply more
public education, enlightenment on the need for more inebriate
colonies, more open abr and sunshine, more honor eamps. At
‘the same time, public awareness of auch evils as the fee system
of feeding and kangaroo courts must be increased.

Our assembly committee found all these lacks and shorteom.
ings in California jails and introduced legislative bills to tem-
edy them. Not all the bills passed. But provisions to do away
with kangaroo courts and fee feeding were voted into State law
and more of our reform proposals will he passed when the legis-
lature meets again, Tam sure,

HON. EUGENE Biscamuz, Sheriff, Los Angeles County.
(National Jail aes September 12, 1947) :

We, here in Los Angeles, are confronted with many serious
custodial problems. As Sheriff of Les Angeles County, Tamm

‘Tuy 7TH ANNUAL CONGRESS OF ConnEcTION 89

charged with the responsibility of detaining all those persons
properly committed to my custody. In addition to this respon-
sibility, the Sheriffs of this State are also charged with the
responsibility of instituting and participating in crime pre-
vention and rehabilitative programs. As of today, I have bettor
than 8,200 individuals in my custody.

In 1926 the present County Jail was opened, occupying the
top five floors of the Hall of Justice, with an original rated
‘capacity of 1,400, and with a rated capacity as of today of 1,763.
When we opened the new County Jail there were many’ who
were very critical, feeling that we would never be able to use
the space provided for many years to come—if over! With the
advent of war and the resulting shifting of populations to this,

uunty, we have had for the past several years a critical situ-
ation due to overcrowding. In the County Jail proper we have
approximately 2,400 inmates, and our high count last winter
was 2,760. If the trends continue—and we have no reason to
believe that they will change overnight—we anticipate a eounty
jail proper population of close to 3,500 this winter.

‘Throughout the years that I have been in law enforcement
work, it Has been my firm conviction that the practice of con-

fining prisoners in county jails, in idleness, was wrong—not
only from the viewpoint of the inmate, but rendered a distinet
disservice to societ

‘As Sheriff, under my oath of office, T must be concerned with
custody and the safe keeping of all persons committed to my
care, As an indivi it
the proper guidance and treatment of these unfortunate in
viduals. The Sheriff's Office of this County has a tong record
of attempting, insofar as we could, to perfect crime preventive
and rehabilitative programs. The problem has not been an easy
one, due mainly to our inability to absorb intelligently our ever
ineveasing population. This steady and rapid inerease in popu-
lation naturally has developed many conflicts, cultural and
otherwise. These conflicts, in turn, often develop a situation
where the breadwinner of the family has been deprived of his,
liberty and we are confronted with the complicated problem of
not only protecting society and attempting to rehabilitate the
offender, but of making every effort to keep the family together
a8 a unit,

During the past several years, we have been able to provide
useful Work outlets in our honor camps and our honor farm.
Creation of good, sound work habits is important, but in my
judgment is just one phase of a good rehabilitative program.
‘To secure a better balance and round out more completely our
rehabilitative programs, on July Ist of this year I created a new

90 ‘Tue PRISON AssocIaTION or NeW YoR«
division Which has been titled the “Rehabilitation Division,”
‘and which has been charged with the following responsibilities:

To provide adequate custody for as many inmates as possible oul-
ae of the County dell pro

ment program for all prisoners
Sheriff to the end that these indie

mn jentally, an
Tnoally better than when they wore tetelved
‘The following four-step plan has been developed as a guide
new division:
What ets steak meagan fon gue and the intttion
What fe best for the inmate and his famih
5 What more-can we. ass law enforcement agency, do,
‘What can other iterertd ny agencies or prverntnenial units do to
Thelp the inmate and his family €o become better citizens.
PERSONNEL PROBLEMS

Hon. RICHARD A. MeGxE, Director, California Department of
Corrections, (Evening General Session, September 12,
947.

It seems appropriate that I should approach the subject of
personnel from the standpoint of the administrator‘of a cor-
reetional system. A commonplace oversimplification states that
administration is the art of getting things done through the
efforts of others. If this be true, and, essentially, I believe that
it is, the administrator's problem is'a personnel problem. The
administrator uses people to accomplish his ends just as a
painter uses paints, colors, brushes, and canvas.

The first step in developing a personnel organization is the
same as the first step in building anything else; namely
making of « plin. This planning procese consi
in detail the work which is to be done, dividing it up and elas
fying it in accordance with accepted groupings of knowledge
and skill, 'To be more eonerete, if there is bookkeeping to be
done which would require the Worl: of three people, carpenter
work requiring the work of oue person, eustodial supervision
requiring the work of twenty persons, and so on, we thus arrive
at the numbers and kinds of people required to do the adminis-
trator’s job. This seems extremely elementary. Nevertheless,
the study of any existing organizations will bring to light in-
staneos whereint nonessential work has been mnade beeartse there
are people there to do it, Or, We eontinne to do things that re
quire the effort and time of employees just bocause it has been

way for twenty years. The point to be made here is
that this analysis of work loads as a basis for employing pe
sonnel is a dynamic continuing thing which must go on as
Tong as an organization exists

‘Tux T7TH ANNUAL CONGRESS OF CORRECTION 91

And so having made a plan, the next problem is the recruit-
ment of Individuals to fill the ‘positions. Since we are here dis-
cussing publie agencies and institutions, I must again condemn,
the practice of filling positions in the public service on any but
a merit basis, There are those who would argue that appoint-
‘ments can be made and often are made on a merit basis without,
a civil service Jaw and a civil service system. T will grant that.
such appointments can be made and at times they are made but.
xno one who has had experience or who is intellectually honest
would claim for 2 moment that the political patronage system
over the long pull will serve the pubie as well as a sound eivil
service system, Without eivil service, we build on the sand,

Civil service, in itself, will not insure the recruitment and the
retention of high-grade employees. Knowing that services are
“bought in the market placo” in much the same way as any
other item of value, we are inclined to leap at once to the que
tion of salaries, This T believe to be a fundamental error. Our
first approach should be through the development of personnel

andards for each position or classification. These standards
should be established on a basis of our knowledge of the kind
of service which will be required to get the job done satistac-
forily and adequately in each instance.

And, now having made a classification study and having
established employment standards in each classifieation, it is,
necessary to fit these classifieations and standards to the mar-
ket. In other words, the employer has decided what he wants in
the way of service. Now he must attempt to estimate what he
will have to pay in order to get it

‘Most wardens and superintendents of institutions are
shocked and amazed in the first year of their experience to find
that their real problems are not with the inmates but rather
with the emotional and personality conflicts of their employees.
‘This problem represents a special area of administrative art.
‘The most difficult class of such conflicts are those which con
cern the employee's family. This is but another reason for ar-
ranging for the employee to live elsewhere than on the insti-
tutional reservation,

Another category of emotional conflicts among the employees
arises out of the failure of the administration to keep the em-
ployee constantly apprised of exactly what is expected of him,
‘The average employee expresses it in the question “I wish
somebody would tell me where I stand.” ‘This is overcome by a
variety of techniques. Some of the more important of these are
the publication of a well-developed book of rules and regula-
ions; the holding of regular staff conferences; the training of
supervisorial officers in methods of dealing with their subor-

92 ‘THE PRISON Association oF NEW YORK

dinates; and most important of all the establishment of a con-
tinuous program of in-service training for all employees.

In proper indoctrination of employees when they are frst
‘employed and a continuous program of in-service training and
upgrading from then on is the most important and effective tool
which the administrator has at his disposal,

“And now finally let me say what is obvious but what is some-
times forgotten by personnel technicians: “Personnel are peo-
ple.” Problems of personnel are problems of dealing with
people. Correctional problems are probloms of dealing with
people at another level. Consequently there is no field of work
known to me in which it is more important that administrators
should be thoroughly versed in personnel work than in the field
in which we are engaged. Reduced to simple terms, good per-
sonnel Work moans:

“Hire and keep the good ones.
Organize them into an effeetive team,
Train them diligently.

Lead them wisely.

Tnspire them to reach beyond their grasp.”

SWEDISH PRISON SYSTEM

WARDEN GUNNAR Rupsrepr, Institution for Preventive Deten-
tion, Hall, Sodertaije, Sweden. (Wardens’ Association and
Penal Industries Association, September 12, 1947.) :

Compared with a great many other nations, Sweden is rela-
tively a happy and peaceful country which has enjoyed peace
for nearly 150 years and which has a very homogeneous popl-
lation, almost entirely native-born. The country has an area of
175,000 square miles, which is a little more than that of Cali-
fornia but much less than that of Texas. The inhabitants num-
ber about 6,600,000, approximately the population of Cali-
fornia or Ohio. The living standards of the people reach few
peaks, on the one hand, and no real lows, on the other. The
general prosperity is obvious, During recent times social re-
forms have contributed greatly to giving the public at large a
share in this prosperity and to equalizing the living standards
‘of varions social groups.

At present we lave about 2,000 persons in our penal institu-
tions, or about .08 per cent of our population, To this we might
properly add about 500 offenders who have been declared men-
tally irresponsible by the courts and have been placed in mental
hospitals not managed by the prison administration. Outside
the institutions there are generally about 8,000 persons on pro-

‘Tue TTT ANNUAL CONGRESS OP CORRECTION 93,

bation or parole. These figures do not obviously suggest that
criminality is low in Sweden but neither do they arouse any
sense of alarm.

“Our penal institutions are, broadly speaking, divided into
thirty walled and twenty open institutions, with an average
total of 1,500 inmates in the former and 500 in the latter. Insti-
tutions of the open type are often extremely small—simply
farms or camps with from 20 to 30 persons in each. Even our
walled institutions are small. Our largest prison, in Stockholm,
has about $00 prisoners and the two next in size about 150 each,

About 1,000 of our prisoners are serving sentences at hard
labor, and of those some 250 are serving time less than one year.
‘At the moment there are only six ligers but there are, in addi-
tion, a few dozen murderers in mental hospitals. A murderer
in Sweden nowadays is rarely turned over to the prisons. When
he is subjected to the mental exarnination required for every
prisoner accused of such a crime, he is usually found to be so
abnormal mentally that he must he given hospital care instead
of prison treatment. We abolished the death penalty in 1921,
but the last execution occurred in 1910.

‘We have had no erime wave for many years, and publie opin-
on and the press have usually been prone to suggest reforms of
‘our penal system in the direction of inercased humaneness. Tt
was very easy for the government to secure the assent of the
parliament to a very advanced new Act concerning the treat
ment of inmates in penal institutions. This Act went into effect
July 1, 1946, It rests on the assumption that loss of liberty is
tho essential element in all prison sentences and that, both from
the point of view of prevention and that of publi¢ morality,
there is no need for any additional toughness in the punishment
than that which grows out of the need of separating the pri
oner as much as possible from the world outside. A fupdamen-
tal principle expressed in this Act is that the prisoner shall
constantly be treated with respect for his dignity as a human
being. All minor details of the institution's management are
left to the discretion of the superintendent instead of being, as
formerly, regulated by Jaw.

‘The new Act of 1946, for Instance, allows furloughs so that
the prisoner at regular intervals may visit his home or take
care of other private matters. Earlier, furloughs could only be
granted for a visit to a seriously jll relative or to attond his
funeral. Now we give furloughs, unaccompanied by a guard,
to almost every prisoner who has served about half his sen-
tence, and has shown no direct evidence of social danger, and
has boon well-behaved and industrious in the institution, Fu
loughs are ordinarily granted four times a year. At the insti-

94 THE PRISON ASSOCIATION oP NEW York

tution for recidivists where I am superintendent, 200 furloughs
have been granted during one year. Of those Zurloughed, eight
failed to return but were later taken back, while five returned
a little late and somewhat intoxicated. I do not consider this
record bad.

‘As preparation for parole, we have also, at a couple of the
institutions for younger offenders, experimented with letting

nmates work with private employers outeide, but returning to
the institution to spend the night. This practice has proved
satisfactory in institutions located in rural areas or small towns

not stood the test in the big cities. Ihave found a similar prac-
tice applied in certain places in this country.

‘A Swedish prison guard works 48 hours a week. His salary
is like that of Swedish civil servants generally: not very high
between $100 and §150 2 month, out of which he has to sup-
ply himself with uniforms and pay rent, although these costs
are often very reasonable, Before he reaches the age of 40 he
gets an annual vacation of 20 days, This is increased to 30 days
after his 40th birthday. He is retired trom the service at the
age of 60 and receives a pension at that time amounting to
about two-thirds of his salary. Specified amounts are regularly

hhis monthly pay check as a contribution to-

prison warden receives from $800 to $400

slany, ad nothing else, but he pays a very reagon-

able vent for his living quarters. No employee of te prison

‘administration, whatever his rank, may exploit an inmate for

his personal benefit. The warden Yecefves an annual vaeation

of 45 days and is retired at 65. Nowadays a college degree is

usually required of the administrator: often he is a lawyer, oF
a teacher.

I wish to close this address by expressing my admiration for
the remarkable manner in which you in varlous parts of your
nation have solved problems of penal treatment of a magnitude
and difficulty quite unlike what we have to contend with in
Sweden. In your countzy I have seen institutions eo attractive
from an esthetic point of view, so well managed in spite of
thoir great size, that they have made an indelible impression
on me. It is difficult to compare the prison problems of our na-
tions, but Thave learned many useful lessons that T shall earry
back home. I want to take this opportunity to express my warm,
appreciation to the superintendents, wardens, and officers of
‘the penal institutions of the United States for the willing assis-
tance and great hospitality they have shown me.

‘THE 77TH ANNUAL CONGRESS OP CORRECTION 95,

UNSTARLE OFFENDER

Warpen JOHN C. BuRKE, Wisconsin State Prison, Wawpun,
Wisconsin, (Morning General Session, September 18,
1947.) :

‘The psychopath, as I see him, is impulsive; he reacts more
largely as the result of emotional stimuli than as the result of
Jogical and yational approval. He is primitive; ho is self-
centered and selfish; he does not learn properly from experi-
tence; he is not likely to respond to advice. He is shy and self
‘conscious; he is ill at ease in the presence of others; he is asser-
tive and overbearing; he is a liar and the truth is not in him,
He is much given to day-dreaming. He is without ambitions and
he has an ambition all out of proportion to his capacities.

‘When you realize that all of the things I have said and many,
many more similar characterizations are true of the psycho-
path, it must be apparent how perfeetly silly it is to set up such.
a strawman to tilt at; how utterly absurd it is to undertake to
shoot such a target with a rifle. To aim at that kind of a target
we need a shotgun with more barrels than a dog has fleas!

very man in every institution possesses one or more of the
characteristics, in some degree, commonly associated with the
Psyehopathie Personality or the Unstable Offender.

"You want to know how we Wardens handle these payeho-
paths in our institutions? The answer is that we handle them
as though they were people. We recognize that the men locked
up in our institutions do not differ from the men outside the
prison in their personality organizations and in their charac~
teristies, unless the difference be in degree rather than in kind.
Tris true, of caurse, that some of our men possess psychopathic
traits of greater variety and greater intensity than most of the
population either behind walls or not behind walls.

If T have the facts, it appears that Wardens have and are
trying most every kind of program ever suggested to handle
these men. We beg for help from the Psychiatrists, the Chap-
lains, the Educators, the Guidance Officers, every person we
can corner for an idea. They have been most cooperative and
have been of help. With their continued honest help we hope
4s time goes on we will learn more about the man we have such
trouble in handling.

Thave assumed that you do not want my ideas in this talk but
that you want my ideas coupled with the ideas of prison admit
istrators over the country. With that in mind, I made a plea to
many Wardens and Superintendents of both State and Federal

institutions for their ideas. The response was exceptionally
good. Here is a summary of their conclusions:

96

‘The

offender

1

‘THE Prison AssociaTIoN oF New YorK
prison administrator in dealing with the unstable
Uses, pleads for, and appreciates the help of the psychia-

trist, the psychologist, the educator, the doctor, and
everyone who ean help ‘with an idea,

He recognizes that psychopaths respond more readily to
emotional appeals than to rational approaches. He,
therefore, personalizes his official relationship with
them.

He believes that the unstable offender has some capacity
for emotional response to group approval and so at-
tempts to ereate in his institution an atmosphere, a cli-
mate of public opinion which makes misbehavior un-
popular with the group, and so brings to bear upon the
chap we're talking about the full force and impact of
group disapproval of misbehavior.

Believes that he must emphasize discipline and maintain
good discipline before any other part of the program
will work.

Is sure that steady employment is essential. He can no
more help a psyehopath without work than he ean make
bricks without straw.

Ne is further certain that once a man is on a job he must
make it difficult for an offender to change until he has
demonstrated by his attitude and performanee on the
one assignment that he merits another, Frequent job
changes encourage instability and add to unrest,

Is sure that the Disciplinary Court must dispense jus-
tice with fairness, free from the spivit of revenge and
hatred and without malice and vindictiveness.

Is not so certain but finds at least one of his group sug-
gesting that we follow the example of Australia and
establish colonies for incorrigible psychopaths on some
Pacific Islands.

‘Thinks maybe that we should not attempt to simplify
the environment for the unstable offender but rather
that we treat and punish him on an individual basis like
anybody else.

). Does not see any veal sense to the idea of herding all

psychopaths together. He rather believes that (outside

‘Tue TTrH ANNUAL CONGRESS OP CORRECTION — 97.

of the very worst) thoy should be mixed up with the
population even though some are troublesome. The ad~
ministration knows who they are and where they are
and that information passed on to the personnel should
create an opportunity for treatment and counseling
which otherwise would not exist.

He is about ready to say that the old custom of saying
“ten days in solitary” or “15 days on bread-and water"
is expressed with too much ease in some institutions.
Give attention to other types of punishment,

Belioves that if the psychiatrist, the guidance officer and
the disciplinary officer take the opportunity to have a
serious heart-to-heart talk with this type of individual
in the first few days, much trouble with him may be
avoided.

At least one Warden suggested “Never hamper the fel-
Iow who is constantly seeking his freedom through court
action because it is less trouble to have him contending
on paper with the court than trying to get over the wall.”

- Don’t bear down on the psychopath and try to “break
him” but rather try to know him well enough so we ean
anticipate his behavior in various situations,

. The prison administrator is also anxious to quit talking
about paychopaths and to start talking about people. It
does us little good to take a man apart unless we put the
pieces together again. When the pieces are together we
don’t have a personslity—we have a man of some kind
or other.

DR. PAULL, SCHROEDER, Superintendent, Institute for Juvenile
Research, Chiengo, Minois,

The unstable offender whose behavior is understood is no
problem to the court or penal institution. It is that unstable
offender whose behavior is not understood who is the problem.
He is soon classified as a psychopath by everyone who had deal-
ings with him. If there is any doubt, the psychiatrist is called
and obligingly pins the official label of psychopath upon him,
‘Yet. the real problem remains unsolved.

‘This audience needs no introduction to the psychopath. It is
quite likely that if offered, it would be declined. However, so
‘that there be no misunderstanding, a definition of the psycho-
path as viewed by the psychiatrist follows. Dr. William H.
Dunn defines the psychopath as “those ‘who dramatize primi

98 THE PRISON ASSOCIATION oF New York

and by the strong drive to seek for immediate satisfactions and
society ia ie be pr otectad from him. .
semantic device, It tells how certain persons behave but it does
not tell why, Psychiatry has, as yet, no satisfactory explana:
fined for exe ultimately return to sooty, it must be obvious
Slassification within the institutions ave of similar nature.
which decides the kind of treatment that the sentenced or com.
pointed out, that no court would tell a surgeon how to oper
for appendicitis, nase Te ts oneeate
which is administrative be turned over to the executive gov
trament. Under tis prone ie ore tthe, cxeeatre go
with the question of whether or not the acoused committed tie
bas been reached: the court will then sentence or release him
found to have eommitzed the act, he wil be turned over iets

"Tue T70H ANNUAL CONGRESS OF ConRECTION 99
executive branch of government to be held pending his refor-
mation or rehabilitation.

Tt is granted that this entails extraordinary departure from
established custom, and many changes in procedure will be
necessary. That it takes from the judiciary some of its prerosa-
tives, will not be happily received. It is, after all, a universal
human trait to object to loss of prestige.

‘The psychiatrist views the unstable offender not only as the
individual offender, but also Zrom the point of view of the
hindrances and obstacles which judicial procedure places in
the way of thorough scientific study and treatment of this
offender.

Tt must be obvious that there is as yet inadequate under-
standing of certain unstable offenders, the so-called psycho-
path. However, there is already recognition of the possibility
that this type does not exist as a clinical entity, but that a mum-
ber of types may make up this group and that many among
them, in fact, most of them, are not psychopaths at all. It seems
evident that it is not enough for the psychiatrist and prison

‘administrator to concern themselves with the diagnosis and
tveatment of the psychopath. It is necessary also that consider-
ation be given obstacles which judicial procedure places in the
way of progress in dealing with the problem of the unstable
offender.
PRISON SUNDAY DIVINE SERVICE
Dk, DoNaLD H. Tiprerr, Pastor, First Methodist Church, Los
Angeles, California. (National Chaplains’ Association,
‘September 14, 1947.)

‘The Elder Pliny tells the story of the Greek painter Apelles
who, desiring honest criticism of one of his paintings, hid him-
self behind it and listened to the comments of the passers by. It
was not long until a shoemaker, passing that way, observed
that the shoes had one latch less than the current style ap-
proved. Apelles, pleased to have this suggestion, corrected his
mistake and waited a second day for further criticism. The
shoemaker, noticing that the shoos had been repaired, began

e'the leg whereupon the artist reminded him to ‘stick

Tam afraid that my role here tonight is not unlike that of
the shoemaker. Here 1 am a layman in the midst of experts
called upon for my eritical judgment of work in which you are
professional and I am but an amateur.

‘There was a time, of course, when no one was a professional
in the field of welfare work, but even in sueh a time as that
‘there was recognition on the part of the better minded men and

100 THE PRISON Assocration oF New Yonxk

women of their responsibility for the destitute, the aged, the
orphan, the widow, the sick and the handicapped. 1 suppose
there has never been a society, not even the most primitive, that
has beon entirely without, some measure of charitable concern
for its weaker members. That concern expressed itself in vari-
ous ways, some of them contradictory to our own as, for exam-
ple, the extinction of the aged and weaklings

From the day of the great prophetic movement of the eighth
century B.C. the Judeo-Christian tradition has made synagrozue
and church conscious of a responsibility for the poor, the
orphan, the widow —and later for the sick in ehureh-supported
hospitals and still more recently for edueation which resulted
in church-sponsored schools which for a long time were the
only schools.

‘The church and community, however, have been slower to
accept responsibility for the prevention of delinquency. They
have felt that punishment rather than correction was the way
to stop crime, This idea swept over the entire field of penology
and dominated it for many years. Our penitentiaries were for
punishing men and women who had violated the law. It was in
‘comparatively recent times only that punishment gave way to
correction 28 the objective of our penal institutions
some cases we have changed the nomenclature, calling them
“Institutions of correction.” Today as the result of the long
years of Jewish and Christian teachings that human values are
the highest values the major objective is no longer punishment
but correction or redemption. To conserve and save human
values first, by preventing the commission of wrong, to cause
the child to grow in the right direction, and second, if he should
fall, to salvage him, transforming him from a criminal into a
‘200d citizen this is the current task of church and comraunity.

Perhaps the greatest role the chureh can play in the preven-
tion of delinquency and crime is that of pioneering and dis-
covering those objectives which have not yet been discovered
bby the community as such and then to yield them to the whole
‘community as soon as the community recognizes its respon-
sibility therefor, And since most social transformation goes
back to someone's sensitized conscience its task is that of stab-
bing conscience wide awake in individuals and in the commu-
nity at large. The first Jarge scale prison veform illustrates
what I am trying to say. John Howard, having heard John
Wesley preach, felt constrained to act upon what Wesley had
propounded and so, returning to his native Bedfordshire,
started there his life mission which was to carry him far and
Wide and throughout the vemainder of his lifetime in prison
reform.

‘Tus TTP ANNUAL CoNGRESS OF CORRECTION 101
‘TREATMENT TECHNIQUES

Price CHENAULY, Director of Education, New York State De~
partment of Correction. (American Parole’ Association,
Correctional Education Association, National Probation
Association, General Session, September 15, 1947.) :

Inmates of penal and correctional institutions are human
beings, many of whom are potentially abe to live in accordance
with the demands of society; they are deficient individuals,
‘many of whom have remedial defects; they are individuals who
differ widely, physically, mentally, emotionally, and spiritu-
ally. Hach incarceration is a link ina chain of events as long as
life itself. Whatever is done for the inmate while incarcerated,
for good or for bad, must be done within the confines of an
abnormal environment. Organized education is one of the most.
direct approaches made by an institution to prepare inmates
for post-institutional living. As a matter of fact, organized edu-
cation (and I am referring to education in a somewhat limited
sense, at this point) ean have only two purposes or excuses for
existing in an institution, namely: preparation of inmates for
living more harmoniously and usefully im the instituti
secondly, preparation for suecessful living on

influences of people in the rehabilitative processes are greater
than facilities and programs: (too frequently the human rela-
tions clement is lost sight of and bigger, better and balmier pris-
ons become the watch words). The whole individual as an indi
vidual must be considered in providing treatment programs if
we are to work in accordance with a widely accepted philosophy
of influencing human behavior, And finally most inmates will
veturn to society in a comparatively short time and practically
all of them will return eventually.

Regardless of how narrow or how broad our concept of insti-
tutfonal treatment may be, the treatment has to start at some
point. It may begin in a Reception Center, a quarantine unit or
by some “hard boiled” principal keeper who says “we need
some more cooks, you are being assigned to work in the kitehen,
keep your nose elean.” If a defensible approach is to be made
to the program of treatment, based upon seientifie facts, a
clinic or classification board must be brought into the picture
early for careful study and examination of the case and the
facts pertaining thereto. Time will not permit me and I am
sure if it would, I could not improve upon the discussion deal-
ing with the functions and procedures of a Reception Center
of a classification unit as recently presented by the Committee
on Classification and Case Work of The American Prison As-

102 ‘Tue Prison Assoctavion or Naw York

sociation in the “Handbook on Classification in Correctional

INTERNATIONAL APPROACH

HoN, SANFORD BATES, Commissioner, New Jersey Department
of Institutions and Agencies, and President, International
Penal and Penitentiary Commission. (Evening General
Session, September 16, 1947.) :

ternational Penal and Penitentiary Congress was for-
o by dered by lack of
sufeent fonds, Heverlee et up an Born, Stern in

‘Tue TTT ANNUAL CONGRESS OF CORRECTION . 103

Perhaps the most important single contribution made by the

International Penal and Penitentiary Commission, and that
means by any organization, was the formulation and promulga-
tion of a set of rules for treatment of prisoners which was com-
pieted in 1932, adopted, approved and disseminated by the
League of Nations. So far as I know, this is the only interna~
tional attempt to establish certain fundamental standards of
prison management. Of course, no one ean tell what effect it
has had upon prison reform in the various countries. That
would take something more in the way of research than we
have been able to undertake, But at least the standards have
been stated and any government desiring to be informed as to
these standards can secure a pamphlet for reference.

Progress was temporarily stymied when a resolution was
adopted by the General Assembly to the effect that no interna-
tional organizations, governmental or nongovernmental, would
be admitted to conference with the United Nations in which
Franco Spain held membership. For many years the Spanish
representative had attended the International Penal and Peni-
tentiary Congress meetings and sometime before the August
meeting had paid dues in this organization. Recently, Spain
announced its withdrawal from the International Penal and
Penitentiary Congress although it expressed hope of eventual
cooperation.

‘The International Penal and Penitentiary Congress has per-
formed useful service in the fiold of world penal reform but
there is still a great deal to be done. I doubt whether it is neces-
sary to dissolve the International Penal and Penitentiary Con.
gress before making it possible for the Social Commission of
‘the United Nations to proceed ints efforts, T see no reason why
both of these organizations cannot proceed, each within its own
field, to do the things that need accomplishment,

if the principles laid down are maintained and if the Inter-
national Penal and Penitentiary Congress ean figure as a vol.
itary association of professionals, experts if you will, and
can be backed up and supported and implemented by the polit-
‘cal group represented in United Nations, there is no question
that greater progress ean be achieved than was possible here-
fore.

As soon as the protocol has been established, the political
considerations have resolved themselves, and the situation de-
velops to the point where we ean evolve a united professional
attack upon the insufficiencies and dangers of our present penal
spstem, there is much to be done. It can only be done through
some kind of international organization, It seems to mo that
‘that international organization would take two directions one,

104 ‘Tue Prison Association oF Naw York

the consultative, advisory and volunteer associations such as is,
possible under the International Penal and Penitentiary Con-
gress at its periodical meetings; and two, the compulsive spon-
Sorship of sich reforms as are generally agreed on which ean
only come from an organization such as the United Nations
which does have some power behind it.

Can we help but feel convinced that the day of international
cooperation is really at hand? Let us hope that the United
Nations will take hold with all the foreetulness and intelligence
‘that they can command, that they will in due time call upon the
International Penal and Penitentiary Commission for its ex-
perience, its help and the knowledge whieh it ha gained and
the acquaintances whieh it has formed over the last three qua-
ters of a centur:

If the prison problems of the world are to be solved, it. will
be by those who have given their lives to their solution? by the
students and professors, the wardens and administrators, the
physicians, psychiatrists and social workers who have met th
prigoner face to face. It will not be solved by the political repre.
sentatives for the countries unless they confer with and follow
the suggestions of those who have given their lives to the most
baflling and difficult department of civil administration, namely,
prison administration.

FINANCIAL STATEMENT

TION OF NEW YORK
GENERAL FUND
STATBMENT OF INCOME AND EXPENSES
DECEMBER $1, 1947
IxCOME
Donations— special purposes
“The Greater New York Fund. $1,845.00

Other funds 4408.7 § 6,258.97

14,006.00 $20,250.97

Donations —unvestritad

Endowment Income
5018

1.6308
1420443 16,586.82
36,706.79

‘Dividend on tock

Total Income
EXPENSES
General administration
Hg aces and Fane
Relletadiihistratiog

11,191.30
30746.80
Sal

S
nin ‘and Hationery
Pos
ephone and telegraph
dle: teal nd legislative servi
Bettie sstidlan fees and mveellancoas
‘Total Expenses

NET LOSS FOR THE YEAR

42,782.40

AUDITORS’ OPINION

(signed) WEBSTER, HORNE & ELSDON
Webster, Horne & Eladon
riled Public Accountants

New York N.¥.
May 41938

CONSTITUTION AND BY-LAWS

An Act to Incorporate The Prison Association of New York.
Passed May 8, 1846, bya two-thirds vote (As subsequently.
amended.

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

Section 1. All such persons as now are and hereafter shall
become members of the said association pursuant to the consti-
tution thereof, shall and are hereby constituted a body corpo:
rate by the name of ‘The Prison Association of New York, and
by that namo have the powers that by the third title of the
eighteenth chapter, of the first part of the Revised Statutes, are
declared to belong to every corporation, and shall be capable of
purchasing, holding and conveying any estate, real or personal,
for the use of said corporation, provided that such real estate
shall never exceed the yearly value of ten thousand dollars, nor
be applied to any other purpose than those for which this cor-
poration is formed.

2, The estate and concerns of said corporation shall be
managed and conducted by its executive committee, in con-
formity to the constitution of the said corporation; and the
following articles that now form the constitution of the associ-
ation shall continue to be the fundamental laws and constitu:
tion thereof, subject to alteration in the mode therein pre-
seribed.

ARTICLE FIRST

‘The objects of the association shall be:

1. ‘The amelioration of the condition of prisoners whether
detained for trial, or finally convicted, or as witnesses.

2. ‘The improvement of prison discipline and the government
of prisons whether for cities, eountics or states.

‘The support and encouragement of reformed convicts
aiter their discharge by affording thom the means of obtaining
an honest livelihood and sustaining them in their efforts at
reform,

ARTICLE SECOND

The officers of the society shall be a president, four vice-
presidents, a recording secretary, a corresponding secretary,

[106]

ConsmirTion AND By-Laws 107

aula troaruren, ana there shall be the following commits

finance committee, a committee on detentions, a com-
nniftee on prison discipline, a committee on discharged convicts
and an executive committee. The number of the executive com-
mittee shall consist 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.

ARTICLE THIRD
‘The officers named in the preceding article shall be ex-officio

members of the executive committee, who shall choose one of
their number to be chairman thereof,

ARTICLE FOURTH
‘The executive committee shall meet once in each month, and
keep regular minutes of their proceedings. They shall have a
general superintendence and direction of the affairs of the
society, and shall annually report to the society all their pro-
sdings, and sueh other matters as shall be likely to advance
the ends of the association.

ARTICLE FIFTH

‘The society shall meet annually in the city of New York, at
such time and place as the executive committee shall appoint,
and at such other times as the president, or in his absence, one
of the vice-presidents, shall designate.

ARTICLE SIXTH

Any person contributing annually to the funds of the associ
ation not less than five dollars shall, owing to sueh contribu-
tion, be a member thereof. A contribution of five hundred dol-
lars'shall constitute a life patron ;a contribution of one hundred

dollars shall constitute an honorary member of the association
lor life, and a contribution of fifty dollars shall constitute a
member of the association for life. Honorary and correspond-
ing members may, from time to time be appointed by the execu-
Live committee

ARTICLE SEVENTH

A female department shall be formed consisting of such fe-
males as shall be selected by the executive committee, who shall
have charge of the interest and wolfare of prisoners of their

Sex, under such regulations as the executive committee shall
adopt.

108 THE PRISON Association ov New YoRK
ARTICLE BIGHTH.

‘The officers of the association shall be chosen annually at
ng, at which time such persons may be elected
‘as shall have rendered essential service to

the eause of prison discipline.

ARTICLE NINTHL

“Any society having the same objects in view may become
auxiliary to this association by contributing to ils funds and
cooperating with it

ARTICLE TENTH

‘The executive committee shall have power to add to any of
the standing committees such persons, as, in their opinion, may
be likely to promote the objects of the society, and shall have
power to fill any vaeaney which may occur in any of the offic
of the association, intermediate the annual meetings.

ARTICLE ELEVENTH.

‘This constitution may be amended by a vote of the majority
of the society at any mecting thereof, provided notice of the
amendment has been given at the next preceding meeting.

"The officers elected for the current year, under the constitu-
tion shall continue to be the officers thereof until others shal! be
duly chosen in their places.

‘And it is hereby Zurther enacted that no manager of said
society shall receive any compensation for his services.

§ 8. The said executive committee shall have power to estab-
lish a workhouse in the county of New York, and in their dis-
cretion, to receive and take into the said workhouse all such
Persons as shall be taken up and committed as vagrants or dis
Orderly persons in said eity as the Court of General Sessions of
the Peace, or the Court of Special Sessions, or the Court of
Oyer and Termine, in said county, or any police magistrate,
or the commissioner of the almshouse may deem proper objects,
‘nd the said executive committee shall have the same powers to
keep, detain, employ and govern the said persons as are now by
Jaw conferved on the keepers of the bridewell or penitentiary
in said city

§4. The said exeontive committee may, from time to time,
male by-laws, ordinances and regulations, relative to the man.
agement and disposition of the estate, and concerns of, said

CONSTITUTION AND By-Laws 109

association and the management, government, instruction, dis-
Cipline, and employment of the persons so as aforesaid com-
mitted to the said workhouse, not contrary to law, as they may
deem proper and may appoint such officers, agents and servants
as they may deem necessary to transact the business of the said
association, and may designate their duties. And the said exect-
tive committee shall make an annual report to the Legislature
and to the corporation of the eity of New York, of the number
of persons received by them into the said workhouse, the dis-
position which shall be made of them by instructing o employ-
ing them therein, the receipts and expenditures of said exect-
tive committee and generally all such facts and particulars as
may exhibit the operations of the said association.

§5. The said executive committee shall have power, during
the minority of any of the persons so committed to the said
workhouse, to bind out the said persons so being minors, as
aforesaid, as apprentices or servants, with their consent during
their minority, to such persons and at such places, to learn such
proper trades and employments as in their judgment will be
most. conducive to their yeformation and amendment and fu-
ture benefit and advantage of such persons.

§6. The said executive committee by such committees as
they shall from time to time appoint, shall have power, and it,
shall be their duties to visit, inspect, and examine, all the pris-
ons in tho State and annually 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
discipline, And to enable them to execute the powers and per-
form the duties hereby granted and imposed, they shall possess
all the powers and authority that by the twenty-fourth section,
of title first, chapter third, part fourth of the Revised Statutes,
are invested in inspectors of county prisons and the duties of
the keepers of each prison that they may examine shall be the
same in relation to them, as in the section aforesaid, are im-
posed on the keopers of such prisons in relation to the inspec-
tors thereof; provided, that no such examination or inspection
of any prison shall be made until an order for that purpose to
be granted by the chancellor of this State, or one of the judges
of the Supreme Court, or by a vice-chancellor or eivenit judge,
or by the first judge of the county in which the prison to be
examined shall be situate shall first have been had and obtained,
which order shall specify the name of the prison to be exam=
ined, the name of the persons, members of the said association,
by whom the examination is to be made, and the time within
which the same must be concluded,

‘THE PRISON ASSOCIATION oF New Yori
BY.LAWS*

L. There shall be a stated meeting of the executive committee
on the Third Thursday of each month, and special meeting shall
be held on the requisition of the Chairman or any three mem-
‘bers of the executive committee. The call for a special meeting
shall, in all cases, state the business to be transacted at said
meeting. The annual mecting: shall be held on the third Thurs-
day of January in each year at an hour and place to be desig-
nated 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 oF classes as follows:
At the election held at the annual meeting of the year 1916,
‘there shall be elected, to serve from that, dato, six members for
the term of one year, six for the term of two years, six for the
term of three years, six for the term of four years. At each
annual meeting thereafter six members shall be elected for the
term of four years in place of those whose.terms of office then
expire. Any vacancies in the membership of the committee by
death, resignation or otherwi
sociation at any annual meeting or, in
annual meeting, by the executive committee.

IL. At every meeting of the executive committee five mem-
bers shall be necessary to constitute a quorum.

If, ‘The order of business at. the annual mecting shall be as
follow

|. Election of chairman and secretary.
. Reading of minutes of the last meeting.
.- Report of committee on nominations.
Election of officers.
. Report of corresponding secretary on work of year,
. Annual report of the treasurer.
pel Ime onder of business at every other stated meeting shall

TAG tended by th Bxgoutive Committe of the Antocaton at its

tee, section 1
oa to provide that the monthly reeting of the

setafore, and that the annual mosting of the Ass
‘thon be held on the third ‘Thursday in Somuary of omck i

Consmrumion AND By-Laws

1, The reading and approval of the minutes of the last pre-
ceding meeting,

2, Report of treasurer.
Reports from standing committees.
. Report from the corresponding secretary.
|. Reports from special committees.
. Report from the general agent.
‘Miscellaneous business.

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

LV. The chairman shall appoint all standing and special com-
mitfees and decide all questions of order, subject to an appeal ;
and the rules of order shall be those embodied in Cushing’s
manual so far as they are applicable,

VI. The recording secretary of the association shall be the
secretary of the executive committee; and it shall be his duty to
keep the minutes of the proceedings of said committee, to re~
cord them in a book provided for that purpose, and to give due
notice of all meetings of the commitice.

VII. The corresponding secretary shall conduct the corre-
spondence of the executive committee and of each of the stand
ing committees; and shall act as the general financial agent of
the association, and shall report at each stated meeting of the
committee.

VUIL. The treasurer shall have charge of the funds of the
association, and shall give such security as the executive com-
mittee may require. His duties are more fully defined in by-
law X.

IX. There shall be at least the following standing commit-
lees: executive; finance; law; detentions; nominations pro.
bation and parole; prison administration, Such committees in
addition to any powers or duties conferred by these
Shall severally possess the power and be subject to the duties
\lesighated from time to time by the executive committeo. Fur-
thermore, the committee on probation and parole shall fune-
{ion as the committee on discharged convicts mentioned in the
constitution, and the committee on prison administration shall
funetion as’the committee on prison discipline mentioned in
‘the constitution,

‘The duties of the above named committees, not otherwise
provided for in the constitution or by-laws, are as follows:

112 ‘THE PRISON ASSOCIATION oF NEW York

It shall be the duty of the committee on detentions to inquire
fas far as may be practicable or neces

‘commitment of persons held in institutions of the Department
of Correction of the City of New York, and, when deemed desir
able, to adopt available measures for procuring the discharge
or providing for the defense of such as shall appear to be
entitled thereto, It shall further be the duty of the committee,
when arrangements are made therefor, to extend its work to
jails, penitentiaries, reformatories and prisons outside of the
Gity of New York and within the State of New York.

It shall be the duty of the committee on nominations to con-
sider the qualifications of persons available for election as vice-
presidents or available for membership on the executive com:
mittee of the association, and to make recommendation:
thereon to the executive committee for final action,

It shall be the duty of the committee on probation and parole
to be associated with the operation of the probation, parole and
employment bureaus of the association, and, from time to time,
to make recommendations in respect thereto.

It shall be the duty of the committee on prison administra-
tion to consider the internal organization and management of
county jails, penitentiaries, reformatories and State prisons,
and the welfare of persons’ confined therein.

X. The committee on finance shall be charged with the duty
of raising and caring for the funds.

‘The funds of the association shail be divided into two parts
‘té be known a5

1, The endowment fund.

2, The general fund,

The Endowment Pund.—Tho endowment fund shall consist
of stich contributions as shall be given with the restriction that
the income only shall be used for the purpose of the association,
and all legacies.

The Endowment and General Funds—The endowment and
general funds shall be under the immediate direction and con-
trol of the committee on finance, and all investments of the en
dowment fund shall be ordeved by the committee, of which the
treasurer shall be a member and chairman,

The securities belonging to the association shall be kept in a
custodian department of an institution selected by the members
of the committee on finance,

The jive committee may in their diseretion draw upon
such portions of the endowment fund as are unrestricted, for
the general purposes of the Association.

ConsrrruTt0n anp By-Laws 118

The General Fund.—The term “general fund” shall cover all
receipts of the association not constituting a special fund or
specified for the endowment fund, the intention being that all
the income, except legacies, including donations for general
purposes, and income from endowment fund, shall be eredited
to the general fund to which the authorized disbursements of
each activity of the association shall be charged at the close of
the fiseal year.

‘The treasurer shall notify the corresponding secretary im-
mediately on receipt by him of any sum for the account of the
association that such receipt may be entered at once to the
credit of the proper account on the books of the association.

The corresponding secretary shall be the general disbursing
agent of the association, the object of the provision being to
keep in the central offices of the association, all receipts for
payments hy him for the association of any’ kind, nature or
description, and to have in the central offices immediate record
of all his disbursoments.

All donations received by the corresponding secretary shall
be entered by him upon the proper books of the association and
then deposited in such bank as directed by the treasurer to the
credit of the association. Whenover the executive committee
shall make an appropriation out of the general fund the cor-
responding secretary shall send to the treasurer a copy of the
resolution making the appropriation, certified by the recording
secretary, which certified copy shall be the treasurer's author
ity for transferring the appropriated amount to the corre-
sponding secretary.

The treasurer shall keep an account covering the general
fund in the name of the association, subject to his check as
treasurer in such bank as may be selected by him and approved
by the committee on finance.

The corresponding secretary shall keep a bank account in
the name of the association, subject to his check as correspond-
ing secretary for current disbursements, and shall deposit to
the credit of said bank account all moneys he may receive from
the treasurer drawn from the general fund.

‘Thecommitteeon financeshall arrange for annual auditsof the
accounts of the treasurer and of the corresponding secretary,

At each regular meeting of the executive committee the
treasurer shall make a detailed statement of the receipts and
disbursements for the preceding calendar month. He shall make
a statement showing the investments and the receipts and dis
bursements of the endowment fund; he shall make, at the
annual meeting of the association, a detailed statement of re-
ceipts and disbursements for the ‘fiscal year.