Legislative Document (1946)
STATE OF NEW YORK
‘THE ONE HUNDRED AND FIRST
ANNUAL REPORT
oF THE
Prison Association of New York
135 East 15th Street, New York
1945
PREFACE
‘This is an official report of the Prison Association of New York
to the Legislature of the State of New York, which has been made
annually since 1845, and constitutes the one hundred and first of the
Paragraph 6 of Article XI of the act incorporating: the Prison
Association of New’ York provides that “the said executive eam.
mittee’ (of the Prison Association), “by suich cominitiees as they
shall from time to time appoint, shall have power, and it shall be
their duty to visi, inspect aud 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 Legis
lature to perfect their government and discipline,”
‘The State law further provides for the priuting of 500 additional
copies of this annual report at the expense of the State. Additional
copies of the full report are purchased from :he State printers, at
the expense of the Association, for distribution to its contributors
and many others, not only in New York State but in other states and
in foreign countries.
m
CONTENTS
Preface
meets for 1048,
Standing Committees for 1943,
Lektor of Trani
Recommendations to the Lagilatare
‘The Roginning of Another Century
Sing Sing Cell Block
Cnr Dino, War Departs
Navy Prisons
Prisoners in the Avaed Fores
Surplux War Sappliee
‘Veturans In Correctional Work
Veteran Preference In Civil Service
of Juvenile
Youthful Oender Laws
Conauet of Some Attorney Operating i the Criminal Courts Build
i
Probintion
New York Clty Reformatory for Micdomeanante
Westfield State Farin, Reformatory Broach
Firearms As Trophies or Souvenirs
750 Annual Congress of Correction
New York City Pastwar Ph
Internationa Pata und Penitentiary Commission
Board Menbers in the Service
General Teme
Assciutfon's Service Bureau
Snpluyment and Hale Buren
Panily Servioe Burean,
taglatton 1088
Meporton Fait: fr the Detention of Chiron Heid for the Chidren's
‘Eoure and the Polis Depart
Report on Long Term Bnatitutlonal Care of Juvenile Delinquents
Injustice in the Courtroom. Francie Bale
Military Justice. Robert P, Patterson
Thesaurus of Penology
Auditors’ Statement
(Constitution and By-Laws.
THE PRISON ASSOCIATION OF NEW YORK
OFFICERS FOR 1945,
President Recording Secretary
Howry 0. Hourer Arcnimatp 8. Ai
Corresponding and General Secretary
B, R. Cass
Assistant Secretary
Ronzers J. Wricnt™
Vico-Presidonts
©. ©. Aveumeoss Hurneet L, Praxrt
Hanow K, Hocrscuno?
Executive Committee
Epwix 0. Houres, Chairman
Class of 1945 Class of 1946
Ricuaeo F, Bancock®
Lawes E. Lawns
Burrow J. Lire, Jn
x Rican C. Parrensox, Jn.**
Hurry C. Francis B, Pownu, i
Lewis J, VaLEsTtse,
Class of 1947 Class of 1948
Mas. Juurus Oous Anuer Joseru B. Davis
Crtanies Supa Cormo* Ms, Anuin W. Dow.es
Davo Dows Reeve Scuuey
Henny G. Gray dou 1, Sostorsrra0
Epwano P. Mutrooxny
on malitary leave
On Teave--Ambascador to Yugoslavia,
{ Detensed February 4, 18,
Resigned January 12, 1045; decensed May 4, 1945
a
COMMITTEE ON LAW
Gray, Scuuey, Lawes, ALEXANDER”
(COMMITTEE ON FINANCE
Avermetoss, Hocrscainn®, PRarr
OMMITTEE ON DETENTIONS
Mins, Avian, Partrasox*, Mas. Des
COMMITTER ON NOMINATIONS
Avemnetoss, Hoonsemitn*, Senex
COMMITTEE ON PROBATION AND PAROLE
MuLkoonex, SHaw, Cursiss*, Tavtor®
COMMITTEE ON PRISON ADMINISTRATION
Lawns, Powett, Noetox®, Davis, Bascoos*
Tom leave for duration :
ONE HUNDRED AND FIRST ANNUAL REPORT OF THE
PRISON ASSOCIATION OF NEW YORK
Hox. Jo R, Hanne,
Liewlenant Governor of New York:
‘Sm.—In accordance with Chapter 163 of the Laws of 1846, we
have the honor to present the One Hundred and First Annual
Report of The Prison Association of Now York, and to request that
‘you will lay the same before the Legislature.
Respectfully,
THE PRISON ASSOCIATION OF NEW YORK
By Epwis Q. Hourme, President
E.R. Cass, General Seoretary
ro)
RECOMMENDATIONS*
February 4, 1946
To the Honorable Members of the Senate and Assembly
In aecordance with Chapter 168 of the Laws of 1846, we have
the honor to present the following recommendations to the Legis.
luture as a part of the 10ist Annual Report of The Prison Aasocia:
tion of New York, and urge that they receive your se
‘onsideration. .
Respeottully submitted,
THE PRISON ASSOCIATION OF NEW YORK
B. 0, Houren, President
BL R. Cass, General Seoretary
COMPLACENCY OR PROGRESS?
srween nations has ceased ad the long-auticipated afte
row become stark reality. The penalty of war is tur-
moil and unrest requiring caln jedgment and save planning,
National and community problems Jong dormant and overshadowed
by the eatastrophes of battle suddenly become of major importance.
Reconversion to some may mean the availability of heretofore
searee items or the return of many luxuries previously dispensed
‘with to further the war effort. ‘To others it may mean the return to
civilian pursuits following many months of military life
Reconversion to those concerned with the welfare of. the com.
munity means greater emphasis on the combatting of crime and
Gelinqueney. While the battle between freedom and servitude has
eased the battle against crime must continue. AS so many have
prophesied, the rate of crime and juvenile delinqueney is on the
In earlier reports we repeatedly emphasized the need for prepart
tion for the time when erime would again hy on the upswing. We
suggested the need for planning, courage, and vision. We propased
the abandonment of the attitude of hopelessness and complacency
In some respeets erime causes were aggravated by the war but many
ff the basie causes remain with us, Neither during the war nor at
‘any time have clear ent, specific causes and eures been brought to
light so as to assnre the degree of safety so much desired by our
citizenry. Despite the advancements that have been made and thie
"= Each member of the Legislature reueived « copy of the Reconmendations
on Febraty 4 104
an
12 ‘Tux Puison Assocumon or New Your
better understanding of erime cansation and the development of
treatment processes, the plain truth is that the problem of erime
remains'a challenge and a threat to this and other nations of the
World, “Words have been said in the past to the effeet that the erime
rate of a nation is an index of its civilization.
‘The Prison Association of New York certainly has made no
‘attempt in its more than one hundred years of existence to advance
4an over-all sure cure for crime. However, through the years it has
with courage and tensity pointed toward various ideas and pro-
cedures that gave not only promise but made for progress. ‘The
Association has never been optimistic to the point of anticipating
the day when we would be without correctional institutions, How.
ever, we have always been mindful of the inadequacies of these
institutions and have continually labored for their’ betterment,
Realizing that institutions of one kind or another for a long time to
come will be a necessity, the Association has given its unceasing
attention and support to all other methods of erime treatment. We
believe without Lesitation in the value of probation when properly
organized and administered. We feel likewise toward parole and
hhave been its champion from the start
With the necessity for institutions the
over and over
of lawbreake:
humane and
taint ao inves
aude: Hoene ee
to him while in custody ether beatae of hia owe Nealon eae
ot others or the inlterenes of offal ae torr ence ae
‘the welfare of society. The Prison Association of New York has
evr Intended hatte prisoner healt Neen at
A tape wo go Co our Tnataions ons cena ated hat
Fentaved, Tehan de from ie lat a oe a eee a
td tet for thie raurtiontodeseney ine hea ae
ton of sey thers shale eehconaa a ae ote
of thinking and effort. It is this position that prompts the recom-
Iendalons the ‘Aition ‘made snag’ Pera eee
Through the years hasbeen graping teeta
slow at times, in harmony with its recommendations. s
vigilance on the pester a
Utila, Tho Blass os
Recowmexnanions 10 THE LeaistavoRe rE}
‘years in this field js Jaryely the result of enlightened public opinion
‘and progressive legislation. Tt is imperative that this official eog-
nizance be continued. ‘The Legislature has the responsiblity to the
people of the Stato to examine court progedures, probation systems,
institutional administration, parole and aftereare, personnel stand
ards, and other aspects of the problem.
As a guide for positive action the Association proposes the
following recommendations to the 1946 Legislature.
I. RELEASE OF VETERANS FROM PAROLE,
JURISDICTION
Legislation should be adopted to terminate at the diseretion of the
Parole Board the parole coutzol and supervision of those former
inmates of our correctional institutions who have been honorably
ischarged from the armed forees,
Comment:
‘The Governor’s suggestion that the Parole Board be empowered
tw release from parole those who have served satisfactorily in the
armed forees ia wholly in harmony with our attitude. We favor
eneouragement and reward to those former inmates who demon-
strated by their conduet that they are worthy of restoration to good
standing in society. We favor the discretionary power intended for
the Parole Board. While veterans should be given every cot
tion, itis mevertheless the responsibility of the Parole Board to give
first consideration to the welfare of our citizenry as a whole. Careful
study of the reeords might reveal that for a given individual it
‘would be wise to withhold for a time, or perhaps permanently, the
termination of parole control. It is hoped that it will be necessary
to apply this reservation in only a few instances,
4, THE INCREASED USE OF THE MANPOWER AND
FACILITIES OF THE CORRECTIONAL INSTI-
TUTIONS FOR GOVERNMENTAL NEEDS
It is strongly recommended that the Legislature take cognizance
of the splendid showing made by the Federal prison industries and
those of the various States in the war effort
This remarkable achievement should prompt the Legislature to
ignore or defeat uny attempt to curtail the maintenance or expansion
Of the peacetime vocational and industrial operations of the various
inalitutions: operating as they do under the constitutionally. pro
Vidled State-W've plans, Tn addition to meeting attacks on prison
labor it is strongly urged that the Legislature strengthen the present
jes through appropriations for sales personnel
instructors and modern and much needed new equipment.
u ‘Tn Prisox Astociasion op New York
Comment:
Beginning with its 96th Annual Report? The Prison Association
of New York naged upon the Legislature the exploration of the full
possibilities of utilizing the manpower and facilities of the prisons
of New York State in the national defeuse program, as it was
referred to then. ‘This, it will be noted, was twelve months in
advance of Pearl Harbor
During the war period the prison industries and the farm
avtivities in New York Stace made a ood showing, althourh this
was exveeded by other States. ‘The records of the Prison Industries
Branch of the War Production Board showed the value of produets
to be $97,827,202 as of October 1, 1945, when the Board was
dissolved,
As pointed ont in previous reports, the stimulus that the war pro-
vided cannot be counted upon to continue and earry over during
eave time. ‘Therefore, it was nevessary to make plans for the mod.
ernization, expansion, and output of the prison industzies so that
the achievement of other years could be exceeded and that the
potentialities of the industrial activities in harmony with the theory
ff state use for prison labor could be realized,
Ill. CLASSIFICATION OF PRISONERS AND
COMMITMENT PROCEDURE
Ibis recommended that legislation be adopted to prohibit the com
mitment of prisoners to specif institutions and in Wen of this
authorize commimients directly to the Department of Correction
It is further recommended that the Legislature authorize and
provide funds for the establishment of a division of classification
within the Departnient of Correction so ax to expand the theory and
application of classification, to apply to all institutions of the
Department.
Comment:
An excellent start was made during the 1945 Legislamre in
harmouy with the Governor's proposal by authorizing the establish-
nent of @ Reception Center at the Elmira Reformatory to deal with
those betweon the ages of 16 and 21. This move once more committed
the State in part t0 the theory and need for a classifieation system.
‘Yet the time must come when the idea which prevailed in 1916 to
establish a receiving and classifieation prison at Sinz Sing rust.
be reulized, ‘The sueeess of the newly created Reception Center at
Elmira should he expanded and made to apply not only to those
See wen £Teh, 98th, MEH, and 100th Amaual Rey
,
Seo Recommendation VI, page 22, 08th Annual Report of ‘The Prison
Assoriation of New York fo" fw year 1942,
RecounaNparios 10 tit LeawareRs 6
svithin the present age limits but for all in the Department as a
Mhole, ‘The present arrangement should make for a better disteiba-
Mion ef those who would ordipaily be eominited to Euira or the
Socational school at Cossackie. Yet there are still those who are
veing sent to the Prisons hy the courts who on the basis of areal
‘Sariation and peudy wont be nen tthe Reformatory, ‘Then
Considering the prisons ay a whole there is no clear eut division o
fypes of prisoners in any ome prieon, but instead « mixture. The
ie of elasication, emphasizing the need for spevializedstody and
thestment, can be greatly advanced through the success of the
Elnira Clinic, Te is not foo much to anticipate sometime in the
ature Sg Sig Prison will be dealing with certain types of pri
fiers, Auburn ethers, Attea with another type, and soon as relates
to all ofthe institutions in a well-rounded program of clasifiation
This procedure is wot without precedent. Ie practiced in the Stato
Of New dersey, for many years in the Federal prison system, hs
taken hold in Pennsylvania, and ix maling marked progress in the
State of California
IV. DEFENSE ATTORNEYS
It is roonmended that the Lepisiature direct and empower the
udictal Counel to investigate complaints y defendants im eriinal
ations regarding te inadeancy of the efforts made by Ube ator
aon aith particular reference tothe wag and means employed
re ett attoreeya to obtain compensation, An undertaking of fis
Pa aout be similar to that employed in carbing "ambulance
Comments
Tr isnot denied that attomeys shouldbe compensate for services
falttully performed. On the sther hard an attorney who accepts &
‘ent should not be tnivated sll by monetary objectives, These
ities eaigned by the courts particularly, and lewyers geurall,
wet tues should provide defense in aceord with the highest ties
ete legal profestion. ‘Those atiomneys who devote more time to
Ghitne ays un meuna of retelving compensation instead. of pro
aa ea te frae or who urge thelr clients to plead guilty on
Teg act mise of reeriving the merey of the court through
ae anne ne aentence should not be alowed to trife with the
tee grat a their lima ov the honoe of their profession.
SENTENCING PROCESS
It is recommended that the Lepiature anthorize and direct the
Lett Resaion Comminson to examine inte the sentencing prootst
Ue The curious courts and provide the necesary funds to complete
6 ‘Tue Pawsox Assocutios or New York
Comment:
‘The disparity of sentences thronghout the State haa long: been
noted. This makes for discontent and a feeling of injustice among
inmates of institutions. It raises the serious question of whether the
present procedure, which reflects sometimes stereotyped punishment
and lack of individnalization, should not be replaced by a procedure
that will make for « more even application of justice, An Huminat.
ing article, not divected to the State of New York but dealing with
the subject in general, is to be found in the May 19, 1945 issue of
Collier's Weeldy under the title, “Injustice in the Courtroom,”” by
Francis Biddle, the former Attorney General of the United States.®
VI. COMMITMENTS TO NEW YORK CITY REFORMATORY,
HAMPTON, ORANGE COUNTY
Section 126 of the Inferior Criminal Conrts Act of the City of
New Yous should be amended requiving and making mandatory that,
the Commissioner of Correction of the City of New York return to
the committing court those males hetween the ages of 16 and 30
whose presence would be detrimental to the welfare of the institution
‘or detrimental to the welfare of the prisoner, and whose law viola
tion does not come within the classification set forth im this section.
Comment:
‘The purpose of this proposed amendment is two-fold—first, t0
empower the Commissioner of Correction to refuse to admit those
committed illegally by the courts; second, to prevent the commit.
ment to the institution of those whose cage histories point to the
‘unlikelihood of impravement during a stay at the institution and/or
whose presenee would be a detriment to the funetioning of the insti
tutional program as a whole
(OF one hundred Reformatory commitments reviewed in the year
1945, twenty had previons convietions, six had previously been on
parole to the New York City Parole Commission, nine were on pro:
bation, and five had spent time in prison previously. In more than
fone instance it has been necessary for a court of higher jurisdietion
to void the action of the lover court and deelare the commitment
illegal. On December 4, 1945, there were 273 inmates in the New
‘York City Reformatory. Of this unmber there were @l regarded as
illegal commitments. glaring example of an illegal commitment is
that of inmate 316517. This inmate was sentenced by the Court of
Special Sessions, Manhattan, for.the offense of Assanit-Brd, LMLM.
and was received at the institution on November 15 last, He is
‘twenty-four years of age and has served three years at the Napanoch
7 or ce complete article no page 62
Recomamypations To Tse LeatsLarne a
institution having previously been in the N. Y. Catholie Protectory,
N. ¥. City Children’s Hospital and Letehworth Village. He was
committed by the Felony Court to Bellevue Hospital for observation
fand was in Bellevue in 1932, 1940 and in September, 1944, was
‘transferred to Coutral Islip and to St. Anthony’s Hospital at Wood-
haven, L. 1, from whieh institution he was discharged in April,
1045, ‘Not only is this inmate feebleminded but he is a sex pervert
‘The disregard by the courts of the law resulting in unsuitable
commitments imposes an unealled-for burden on the
is contrary to the basie theory for the establishment
‘These institutions are intended for young offenders unseasoned
sive hope of rehabilitation
VII. SEXUAL PSYCHOPATH LAW
It is recommended that favorable consideration be given to the
recommendation of the committee" headed by Chief Justice Bayes
of the Court of Special Sessions of New York City for the enactment,
of asexual psychopath law” which would make it possible to keey
sex offenders confined in institutions even after the expiration of
their sentenee, if in the judgment of competent authorities they
‘are not reasonably safe to be at large,
‘The report of the committee headed by Judge Bayes should be
carefnlly studied, Tt shows an earnest effort to come to some clear
understanding regarding the sex offender, as well as an attempt to
sugyest means of control and treatment. Unless a well rounded plan
js developed to deal with this type of offeader, we shall from time to
time be confronted with expressions of alarm regarding the sex
offender and a hot and cold attitude on the part of the public.
‘VII FARM ACTIVITIES
Tt is again recommended that funds be provided to rent or
purchase additional farm land to be operated by institutions of
the State Department of Correction.
Comment:
During the war the expanding of farm activities was demon
strated profitably. It has been shown in this and other states that
farm activities are a suitable form of employment for inmates
‘of institutions and should be encouraged,
“See Report of Meyer's Committee for the Study of Sex Offences (for
the temyeur period” 1900-1090), released January, 1048, New York City.
‘Tan Pasox Association or New Yous,
IX. STATE COMMISSION OF CORRECTION
Tt is reeommencled that the law be amended yo as to remove
limitations now placed upon the functioning of the State Com
tission of Corteetion, This will involve a study of Sections 401 and
BO of Chapter 606, Laws of 1926, and Sections 46, 47 and 45 of
the Correction Law (Chapter 243, Laws of 1929)
Comment:
‘The Prison Association is largely responsible for the establish-
ment of the State Commission of Prisons, the suceessor body of
Which is the present State Commission of Correction. In urging
the establishment of the original-body, prior to 1894, the Asso:
ciation held that there should be a state financed, independent, free-
handed supervisory body to conecrn itself with the penal and
correctional institutions of the State, Under the present. arrange-
ment, the Chairman of the State Commission of Correction is the
Conunissioner of Correction, ‘This was not the case prior to 1926.
Tris evident that there now exists the anomalous situation whereby
the head of the Department of Correction is also the Chairman
of the Commission (a Constitutional provision whieh we do not
Consider sotnd). ‘The Commission is required by the Constitu.
tion to visit and inspect the institutions of the Department of
Correction, ax well as others, Under present procedure the Gon-
missioner of Corzection is in a position somewhat similar to that
of a bank president who would be permitted to audit his own
ooks.
The Association has recommended and continues to recommend
that the words *', . . sudject {0 the direction and control of the
Commissioner of Correction” as applied to the general powers
fand duties of the Commission be omitted im the chapters and see
tions referred to above. By deleting the specifle “direction and
control’ language there is Jess danger of restricting the activities
fof 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
X. PROBATION
It is recommended that in the interest of improved probation
service in New York City and throughout the State, the Legisla
‘ure give support to the following proposals
(2) Legislation to raise to the highest possible level of organ-
ization and efficieney the eight different probation services
how in operation in the City of New York
(2) Extension of the authority of the State Probation Commis:
sion to the point where its anthority will be of greater
Rrcosenpations 70 tix Tvorsiarone 19
value to the people of the State than its present limited
advisory powers.
(3) The establishment of state subsidy for the development
fof probation in those areas not now utilizing this modern
treatment prosedure,
Comment:
‘The Prison Associdtion of New York was conspicuously identi-
fied with the writing and passage of the first probation lav in this
State over forty years ago, and through the years has been active
in probation service and its improvement. Probation has pro-
gressed, but it still requires further improvement in the interest
fof ite greatest service to the people. The value of probation
‘depends upon the extent and quality of its administration. We were
the piouser ageney identified with probation service in the Court
of General Sessions (Manhattan) and stood alone for many years
urging improvement of probation work in that Court, ‘The exist
ing Probation Departinent of the Court of General Sessions reflects
bn interest and agitation. However, we do not believe there shonld
continue the unevenness of probation serviee in this eity as now
exists and has existed for too long. Probation if good for one eourt
should be good for another and should be maintained on the same
high level of organization, personnel and procedure. ‘Therefore,
‘we believe that the only answer to this end is a consolidation of
the probation services of the vity under # well worked ont plan of
administration with virile direction and leadership, For the pro-
bation service in other parts of the State, the active supervision
of the State Probation Department should be strengthened and
encouraged
XI. RETENTION AND EXPANSION OP PSYCHIATRIC,
EDUCATIONAL AND OTHER PROFESSIONAL SERVICES
FOR THE INSTITUTIONS OF THE STATE DEPARTMENT
OF CORRECTION
It is recommended that budget items providing for the profes-
sional serviees, including psyehiatrie, psyehologieal, medical, edu-
cational and other allied felds, be approved, and all these services
be restored to their former numerical strength and expanded 9s
‘time and conditions will permit
Comment:
It is obvious that penal and correetional institutions in order
to be of lasting value to society must do more than merely deprive
offenders of their freedom for varying periods of time. ‘There ean
bo no intelligent program of study and treatment without the well-
20 ‘Tur Puisox Assoommios of New York
balanced application of psychiatric, psychological, medical, educa.
tional and other allied services. It is trne that the war inpaired
somewhat these serviees; however, regardless of present dificulties,
Whether eaused by the war or other reasons, their usefuluess should.
be restored. None of these services should be regarded as the sole
agent in any program of rehabilitation, but instead as a part of
‘well-rounded approach with emphasis on individual study and
treatment.
XI EXTENDING THE POWER OF THE PAROLE BOARD
AS RELATES TO FOURTH OFFENDERS
Chapter 126 of the Laws of 1945 should be amended so that
fourth offenders can be given consideration by the Parole Board
in the same manner a is provided for seeond and third offenders
Comment:
Section 1945, subdivision 2, of the Penal Lew provides a thirty
year minimum for foarth offenders. Tt is believed that these
offenders should be given the incentive of earning reduction oF
sentence in the same manner as second and third offendews,
XII, EXTENDING POWER OF STATE BOARD OF PAROLE
IN CERTAIN CASES
Article 8, Section 219, of the Correction Law should be amended
xo as to empower in suitable cases the State Board of Pavole to
Getermine what portion of @ remaining maxinum term is to be
served by a parolee who commits a felony while on parole
Comment:
Tt seomss unfair to require every parolee who commits a felony
while on parole to serve tho time remaining of his. orginial max.
imum sentence, rom the titae of his original parole, before starting
to serve his new sentence. There are instances’ where inmates
swe had a good record on parole for a considerable number of years
bbut make a mistake whieh results ina new felony charge, “Such
individuals might have to serve many years on their original sen.
tence before beginning the new sentence, On the other hand, eer.
tain individuals are iy and ont of the institition several times as
parole violators and finally commit a felony perhaps only a few
Inonths before tie oxiginal musximunt is wp. Such individ val
required to serve only at short tine before they begin to serve a
new sentence. It is quite evident that this type of individual is a
much poorer visk for society than the one referred to above, who
hhas committed only the oxe offense while on parole
Recommunvations 70 Tax Leamcaruas a
XIV. FIVE YEAR LIMIT FOR THE STATE VOCATIONAL
INSTITUTION AT COXSACKIE
Section $48 of Article 18A ehould be amended so as to Timit
the maximum stay at the New York State Vocational Institution
at Coxsackie not to exceed five years
Comment
It is likely that an individual obliged to remain more than five
years ata vocational institution will profit little thereby. ‘There.
ore, it seems in order that the amendment to the Elmira law of
last year, Chapter 678, Laws of 1945, he extended to apply similarly
10 the State Vocational Institution,
XV. TRANSFER OF PERSONS FROM THE NEW YORK
STATE VOCATIONAL INSTITUTION
Section 244 of Article 19 of the Correction Law should be
amended so ax to broaden the Commissioner of Correction’s power
to transfer from the New York State Voeational Institution to
another institation in the Department of Correction,
Comment:
Tt is felt that restrictions imposed upon the Commissioner for
making: transfers from the New York State Vooational Institution
should be eliminated from this Jaw and that the same conditions
for transfer should prevail at the New York State Vocational Insti
tution as governs transfers from one prison to another,
XVI TRANSFER OF PRISONERS FROM ELMIRA
REFORMATORY TO STATE PRISONS:
Section 298 of Article 12 of the Correction Law should be
amended so as to allow for freer transfer of prisoners from Elmira
Reformatory to State Prisons.
Comment:
‘The more careful screening there is of those of the reformatory
fage either before or after commitment, the more likely it will
prove that the reformatory will be able to renler a more satis.
factory public service. Therefore, it is felt: that the Commissioner
of Correction should not be limited by the present. restrictions
making it dificult at times to romove from the Reformatory popula
tion those who cannot respond to the program of treatment or are
otherwise unsuited,
Ey ‘Tux Prisox Assocuriox of New York
XVI, RETENTION OF PRISONERS AFTER EXPIRATION
OF THEIR TERMS
Section M0 of Article 17 of the Correction Law should be
amended so as to overcome the difficulty of retaining mentally
defective misclemesnants after the expivation of their sentence,
Comment:
Under the present law it is possible to contine to hold with
the approval of the court wentally defective felons after the expira
tion of the sentence, Ax a further means of pablie proteetion it
ig felt that the sanse power should be extended to apply to mais
domeannuts since there are same who are not qualified to return |
to society when their sentences have expired. Ou the basis of the
experience of the State Department of Correction it is eonsidered
tobe a mach wiser procedure to have certain of seh misdemeanants
reconiinitted to the institution before the expiration of the sentence.
According to the interpretations in the Zack ease, this is no
longer permitted. The pr
to make possible such reecmmitinents.
XVII, TRANSFER TO CERTAIN INSTITUTIONS UNDER
‘THE JURISDICTION OF THE DEPARTMENT OF
‘MENTAL HYGIENE
Section 439A of Article 17 of the Cowtection Law should be
amended to broaden the power of transfer from institntions in
the Department of Correction to the Department of Mental Hygiene.
Comment:
It is the opinion of the Department of Correction that a number 4
of inmates, over 21 years of age, are confined in institutions for
ental defectives (Napanoch, Woedbonrne and ATbion) who should
not be ina correctional institution. ‘They are inadequate individuals
land cannot be retitmed to society but have maintained perfect
records for yeuts, in many eases, in these" institutions, and in
tno way ate discipline problems. Atnong these individuals are those
who woukl profit from care and treatment in institutions im the
Department of Mental Hygiene and it is believed that it would
be to the best interests tate to have some of those over 21
years of age tunsferred to the Department of Mental Hygiene
Just as has been provided for the transfer of certain individuals
lmder 21 yeurs of aye
No aye limit is set in section 1844, Chapter 874 of the Laws of
1945 for transfer from the Departinent of Mental Hygiene to
‘the Department of Correction ; likewise it is felt that there should
overt change in Section 40 is intended,
Recommenvanions 10 tHe Lecistarone 23
not be an age limit restricting transfers from institutions for
mental defectives of the Department of Correction to the Depart:
ment of Mental Hygiene
XIX. TRANSFER OF ADMINISTRATIVE CONTROL OF
COUNTY PENITENTIARIES TO THE STATE
DEPARTMENT OF CORRECTION
Tt is recommended that the Legislature authorize the transfer
of administrative control of the county penitentiaries to the State
Department of Correction
Comment
‘The Prison Association over a number of years has ungod legis
lative action on this situation. The county unit of government
is not designed the responsibility of administering penal
institutions holding sentenced prisoners. ‘The State Department
of Corzeetion is considerably better adapted to the administration
of such institutions, This would make for centralization of control
and administration and should effect a saving to the taxpayer as
a result of greater effieieney of operation. ‘This proposal, it would
seem, would be in the interest of further “streamlining” of the
State Government. Basically, the only reason for the present
procedure is one of tradition dating back to the early days when
the county unit of government was supreme,
XX. EXTENSION OF CIVIL SERVICE TO INCLUDE
EMPLOYEES OF COUNTY PENITENTIARIES
It is recommended that the provisions of the State Civil Service
Law be extended to include the personnel of the county peniten
tiaries
Comment
In keeping with the foregoing recommendation, legistative action
should be instituted to the end that the employees of county pen-
itentiaries be under the provisions of eivil serviee. ‘This action is
recommended, frst, as a protection to the personnel; second, as
a protection to the people of the State; and third, for the estab-
Hishment and application of higher standards and qualifications
for this diffienlt job in human relations
Taw Pasos Assooinion oF New York
XX. APPOINTMENT OF MATRONS IN COUNTY JAILS
AND PENITENTIARIES
It is recommencled that legislation be enacted providing for the
mandatory appoiutment of matrons in county institutions and
in courts where women are detained.
Comment:
At the present time the Correction Law does not provide for
the presenice of matrons in connty jails and penitentiaries and
some court pens; in accord with modem standards and common
Geceney this condition should not be tolerated. Legislation is
required to eorrest this situation
XXII EXTENSION OF FINGERPRINTING
It is recommended that Seotion 940 of the Code of Criminal
Procedure be amended so as to permit the fingerprinting of all
pessous legally committed to the county jail, all misdemeanants
fand those charged with disorderly conduct, vagranoy or disorder
person. ‘The Inferior Criminal Courts Act should be amended to
conforma to the change.
Comment:
Prequently persons arrested on minor charges are Jater found
to be fugitives from jnstiee, but only after opportunities for their
further detention have passed. With authority extended to fin
print immediately those persons included in the vecommendation
greater protection can be afforded society through rapidity of
idlentifieation
XXII COMPENSATION FOR INJURED PRISONERS
Tt is recommended that consideration be given to the need for the
establishment of a system of graduated compensation for prisoners
injured while employed in the industries or otherwise in the insti
tutions of the State Department of Correetian,
Comment:
‘There is no valid reason why compensation should not be paid
to prisoners seriously or permanetly handicapped through no fault
‘of their own, There are instances where prisoners have been
liberally compensated and others where no compensation has been
received. This leads to the recommendation providing # system so
‘that discrimination will not be possible. The assurance of justice
as a safeguard against fraud and exploitation is necessary through
legislative action
‘THE BEGINNING OF ANOTHER CENTURY
During the first year marking the begining of the second
century of the Association's existence, we continued our efforts
toward the winning of the war and at the same time kept alert
to the need of preparing for the expected rise in erime following
the cessation of hostilities, While during the year 1945 there was
no marked inerease in the population of correctional institutions
of this and other States, there was some evidence of the beginning
of a return to the higher numbers of other years, This is to be
expected in a tired and sick world as an aftermath of war. Yet
it cannot with peace of mind be easily disposed of as am unavoid-
able postwar condition. Many of those basic elements identified
with erime causation exist in peace time and are enhanced only
by the strain and stress of war. Yet if communities were better
prepared in peace time to deal with juvenile delinquency and
crime, the shock caused by the war and its ending would not leave
them fo exposed to a return to a high rate of erime.
Realizing, therefore, that erime must be dealt with as a means
of publie protection and national preservation, the Association
continued as it has for years to assist in the fields of erime pre-
vention and in the improvement of those methods of erime treat-
ment relating to court proceduves, institntional administration
and planning, parole and postrelease activities. Crime will not
disappear entirely and certainly not overnight and whether we
like it or not courts and institutions and any other parts of the
machinery of justice will remain. However, the fact that they
need to be continued does not justify oversight but prompts earnes
endeavor looking toward their increased efficiency and general
betterment,
In November 1945 the final demolition of the
old cell block at Sing Sing Prison was secon:
plished. We make this the frst item of mention
for the year just passed because of the Association's long identit;
with efforts to make the prison function in harmony with the best
ublic interest. An examination of our Annual Reports and special
investigations over a long period of years will quickly show that
the Association was continually alert to make for progress at Sing
‘ing. This emphasis of interest was not at the expense of other
institutions in the State or, as a matter of fact, the Nation. How
rer, progress made within its walls or throug disenssion concern.
ing it reverberated the nation and world round, One need, of
course, was to rid the prison of the old eell blosk. ‘That was recog
nized for decades not only by The Prison Association of New York
eo
26 ‘Tae Prison Assooravion or New Your,
bat
in tatrnose to al that the campaign vonduted by the Association
in 1o16" under the slogan, "Sing Shig Must Go,”” marked the
Bopinning of the tnd of the cell block nn the rebuilding of the
Pron ike delay between 1016 and 1945, loug peviod of twenty
Tine yeare, is just another evidence of the slowness, regardless of
ritset endeavor, identifed with penorogenl progress Al through
the period of twenty-nine years after the decision had been made
{oabendos the cell block, one reason ot another developed, and
fometimes with justifeation, to temporarily halt the demolition,
STgain, however, the Association persiteute throigh this peviod
diag that tere be an end to the delay. ‘Therefore, t ean be seen
that the Bel demotion isa source of great gratication to the Asso
dation ast must be to ull others who are interested in humaneness
find decency of treatment for the lawbreaker
wany other bodies aud individuals. Yet it cam be stated j
Prisoners in Warden Lewis B. Lawes, a member of our
the War Effort Executive Committee, and our General Seeretary,
E. R. Cass, continued their relationship with
the Prison Way Programs Branch of the War Produetion Bosra.
When the fal story is written it will he shown that this body with
headquarters in Washington made an outstanding contribution
to the war effort through the encouragement und coordination of
the institutional industrial and farm activities of the various States
‘The last figare given out in October of 1945 when the War Pro-
duction Board was dissolved showed a monetary value of $57,827,
‘Added to this is the splendid prodvetion of the
prisons valued at $78,861,465.93, However,
Federal
ide from the monetary
Yalue these was the marked improvement of the morale among
the prisoners and every evidence of a sincere desire on U
to help win the war. Through the war there were no strikes, no |
discussion aboat wages or working eonditions, ‘The men went to
the shops day after day and did their work and others worked in
night shifts. [In addition the inmates of the various institutions
over the country gave liberally to blood banks and from their
small earnings bonght war stamps and bonds, These men, deprived
of their feeeciom and without gaining the benefit of the war boom,
repeatedly revorvled their eagerness and satisfaction at being able
todo something to help win the war. Regardless of one's interest
or lack of interest concerning prisoners, and recognizing always
that erime cannot be condoned and that it is costly both to the
people as a whole, the vietims of crime, and the offender himself,
it nevertheless must be permanently recorded thet we had just
reasons to he proud of the achievenients of our prisoners and those
‘who directed them during the war.
ir part
See Chapter 501, Laws of 1016.
"Tax Beemwing of ANorneR Century 21
PENAL INDUSTRIES CONTRIBUTION TO THE WAR EFFORT
(inal WPS Compilation)
ctoter 1, 1865,
Delaware
District of Gatambia
North Dakots
Oia
Oklsbomia
Oregon
Pemaplvaaia
Wyoming pa8, 18
Total 307,927,202
‘The above cowpllation fe the ast supplied by she War Production Board
Uefore it was dinolved. In addition to the above total there i to be added
Grhaun achat repowsenting’ the vaine of the ontpne of the Federal” Prison
Thdurtrioe ne of November 1 1048, Rath figures make a total of $186 188,667.98
28 ‘THe Prison Association or New Yor
Outstanding was the contribution made to the war effort through
Federal Prison Industries, Ine. by the inmates of the Federal
institntions. During the defense and war periods, July 1, 1940
to Augnst 31, 1945, the value of the output of these industries
amounted to $76,840,552.01. While some of this production ante-
dates Pear] Harbor, it nevertheless can readily be considered as
contribution to the war effort. This production began as soon as
Congress tndertook debating the Lend-Lease bill. The Federal
figures do not imelude farm production but only items coming
directly from the hands of those in the shops and of the machine
equipment.
FEDERAL PRISON INDUSTRIES, INC.
War Production
Fiscal year 1041 = ‘ =. 87,062,015
July 1 to November 30, 1941 4,198,240
T94L to June 3), 1942 389,029
‘ oa 18,789,180
020,600
17,587, 498,
1,399,085
x : 1,498,381
September 1945.2... —— —— 3,110,334
October 1945 904,579
‘Total to November 1, 1945.....2004+ $78,961,465
Correction Division Our General Secretary, appointed by Sec-
War Department retary of War Robert P. Patterson, as a
consultant to this Division, continued in
that capacity. It is noteworthy that the operations of this Division
will show that the Army handled its prisoners more satisfactor
generally during World War IT than in the past. The Army,
anxious to deal with a diffiewlt problem in accord with standards
and procedures reflecting the best penological thought and processes,
wisely set up a separate division, They carefully selected its per
sonnel and then surrounded itself with the advice of a Board of
Consultants made up of those who many years of varied
experience in the field of erime study and treatment.
Many of our soldiers who came into conflict with Army regula-
tions or laws of different jurisdictions, instead of being held for
long inactive periods in confinement were given, through a process
of sereening, the benefit of a rehabilitation program and finally
restored to service, At the closing meeting of the 75th Annual
Congress of Correction under the auspices of The American Prison
Association, the Seeretary of War, Robert P. Patterson, gave an
explanation and an accounting of the activities of the Gorrection
Division. Mr. Patterson is a well-known lawyer, a judge, and a
soldier; a man of the highest integrity and capable of making a
tay “A499 OR sNoye ‘SaqUID088
oul @ Suyonaysuoo sy Kuay “gy
YINUOAITVO ‘H¥000 di
‘Tae Brannerxa or Axormun Cewrory 29
carefnl evaination, He knows war and the problems of war, and
lathe Id io any atthe Congras i worthy of reading and pa-
manent record. (or a copy of his full aldress see page 9
Navy Prisons It was gratifying to note the adoption a the
Navy Department of progressive methods in
dealing with delinquent serviee personnel. ‘The Navy was fortunate
in seeuring officers and enlisted personnel trained in civilian eorree-
tional work aud these men did much to bolster the plans and policies
emanating from the Corzective Services Division of the Bureau of
Naval Personnel. Identified with that office was Lieut. Roberts
Wright, USNR, our Assistant Secretary now on military leave.
Lieut, Wright was commissioned in the Navy in January 1943 and
shortly thereafter become assistant provost marshal of the Naval
‘raining Station, Norfolk, Virginia. He was closely identified with
the problems of delinquency and discipline at that station for a
period of sisteen mnoths, He was hen assigned to the Burea of
Naval Personnel where he was the Prisons and Brigs Officer for the
Corrective Services Division. For the year that followed he was
dlirectly concerned with the orm offender and the Navy's brigs
throughout the country: im this eapacity he made many
inspections of naval places of confinement and was instramental in
developing the Navy's forward-looking program of correctional
treatment,
During the summer of 1945 Lieut. Wright was detailed to the
staif of the Commander Philippine Sea Frontier, with headquarters
at Manila, as Prison Administration Officer, Tn this eapacity he was
responsible for naval places of confinement in the Philippine area.
Representing the Burean of Naval Personnel in matters dealing
with offenders and places of confinement, Lient, Wright visited brigs
jgons in many areas of the Pacific.
Wright was placed on inaetive auty on December 31, 1945
and he will return to his former position with the Association early
in 1946,
‘The Navy's progress in penal affairs was a ereditable achieve-
ment, Te reflected an understanding of the problem that can result
nly from years of close relationship with its many intricate
aspeets. Tt is to the eredit of the Navy that nearly 100 offeors with
civilian correctional experience were assigned to the various places:
of confinement, ‘These inchided State and Federal prison officials,
probation, parole, and private and publie agency people. These
officers, together with other naval personnel some of whom had long
‘years of naval service to their eredit, developed a program of indus-
try, classification, education and training, military drill and
physical training, in Keeping with accepted standards of modern
Dewologieal practice, The Navy Department has made public the
fact that it had two naval prisons, eight disciplinary barracks, and
30 ‘Tae Patsox Association or New Yor
two retraining commands, in addition to several specially desig-
hated brigs, for the hoasing and treatment of general courts- martial
pitenders. ‘These prisoners uambered over 16,000 at one time during
the war peviod, and considering the number of persons in the naval
service the Navy Department maintained a reeord of which it 3
be proud.*
Tris to be hoped that the Navy Department will eontinue the fine
work of its Corrective Services Division during the days of peace
that Tie ahead.
Regardless of the difficulties to arrange for the
induction of former prisoners into the armed
forces and while the exact figures are uot vet
available the fact remains, thanks to the interest of the Selective
Service officials and to those who made final decisions for the Army.
many men who had been ix prison wade a good showing by. their
conduct on the field of battle, President ‘Truman was sufficiently
Sinpressed in this conection to authorize recently the restoration of
civil Fights to more than 2,000 former Federal. prisoners honorably
ischarged from the armed services
“Mt this writing steps are being taken by the Governors of various
‘States and parole boards to give some recognition by Way of restora:
tion of eivil rights and other advantages to those who served in the
prmed forces with eredit, Governor Dewey of New York State in
his Annual Message to the Legislature urged that the Parole Board
be authorized to release from parole at its discretion, those who are
honorably discharged from the armed forces, We are heartily in
aecord with the suggestion of giving discretionary power and will
Prisoners in the
Armed Forces
support eesti to this end
Praag veer the Associaton through its Secretary, as mem:
ver a the National Advioory Conmittee on Prison and Parole
XifegrsAiteting Selective Service, was active in impresing. upon
SeaSon fia and parole boards that there be liberalization of
procedure io allow for the induetion of prisoners in the armed
‘Throughout the year our General Seeretary in
harmony with both the interests of The Prison
‘Association of New York and ‘The American
Prison Association endeavored through contact with officials in
‘Washington and eomunnieations to various correctional institutions
throughout the country to make available surplus war supplies for
the benefit of the prisons and reformatories. Particular reference
vas made to those items necessary for educational purposes. Some
Surplus War
‘Supplies
“For a detailed description of the Navy's pricon program see the 190th
Annual Report of The Prion Astociation of New York, 1046, page 100, “The
Navy's Correctional Pragram” by Colonel Emmett W. Skinner, USMC,
‘Tux Beamwine or Axories Cuntury a1
institutions, and New York State was fortunate in this instance,
sneeceded in obtaining with little or no eost surplus equipment and
supplies. However, there has resulted thus far only a trickling
release vonsideving’ the vast quantities ander the control of the
farmed forces or agencies in Washington, There has been slowness
and confusion and undoubtedly the government is confronted with a
difficult problem. However, in all approaches made to Washington
officials, it was stressed that the equipment and supplies requested
for prisons, reformatories and juvenile institutions were for govern-
mental needs and for tax supported institutions and in no way
intended for private gain. There is provision for such release in
the law and it is earnestly hoped that when a more definite decision,
ix made the correctional institutions will benefit substantially
When it was decided to discontinue the Prison War Prozeams
Branch of the War Production Board, our General Secretary, voie
ing the sentiment of The American Prison Association, urged that
part of the Prison War Programs personnel be retained so as to
serve the Interests of the correctional institutions in the distribu-
tion of war surplus supplies, ‘This to some extent was accomplished.
Veterans In The General Seeretary was requested by the War
Department to assist in the preparation of a brief
Work setting forth opportunities for veterans to obtain
employment in the correctional field. This
servive was gladly given. In this connection we also take pleasure in
recording the preparation of a three hundred page book by the
Federal Bureau of Prisons entitled, ‘Prison Work as a Career.””
It, of eourse, relates to the Federal prisou serviee but its contents,
standards and objectives are worthy of eareful study.
During the year the Association has received ma
veterans asking what the chanees were for them to “get into prison
work.”” These letters have been carefully answered and the best
information and direction given.
Correctional
Yeteran Preference We joined with the City and other evil
In Civil Service serviee employees, the Civil Service Reform
‘Association, and various other organiza:
tions in urging that the voters defeat Amendment 6 to the Constitn:
tion providing preference for all veterans with special reference to
disabled veterans. In doing so, the Association had,not the slightest
idea to take from the disubled and other veterans a just reward for
their eontribution to the winning of the war and the preservation of
their country. The objection was based on the thought that. the
Amendment was too sweeping and all inclusive and, therefore,
lunjust to other civil servier employees and the merit system gen
‘There was organized under the leadership of the Civil
Service Reform Association a Citizens’ Committee on Veteran
2 Tue Prison Association or Nuw Yous.
Preference, This group with whick the Prison Assoeiation
cooperated did an excellent service to enlighten the publie. The
Secretary of that Committee contributed an illuminating article
ntitled, "Veteran Preference Gone Haywire,"’ which appeares
the September-Oectober 145 issne of The Prison World, the official
publicstion of The American Prison Association,
‘The Amendment won in the November elections but only by a
slight margin, a little more than 94,000 votes. The upstate com-
nunities swung the balanee in favor of the Amendment. We believe
that if the Amendment had beeu considered by more people upstate
vith less emphasis on sentiment, the Amendment would have failed.
The Association has always stood for civil service and the merit
system, and its opposition to the Amendment was based on fair play
For civil service employees and voterans as a whole,
Detention of How to house and care for juvenile delinquents
Juveniles awaiting disposition by the courts or transfer to
fan institution was the basis for serious concern
‘on the part of interested observers, workers, and agencies in this,
City again during the year 1945, ‘The City administ
conflict with varions childven's societies receiving trom the conrts
Suwvenifes for temporary care, The Mayor of the City was dissatisfied
With the arrangements with these organizations and was determines
jon created quite
problem and althony nade some attempt to ease the sits
tion through the setting up of Youth Honse in Manhattan, it was
nevertheless recognized that a more well-rounded solution wax
heeded. ‘The problem was further and seriously aggravated by the
housing of some of these juvenile delinquents in the City Prison,
Manhattan, Through the vombined efforts in 944 of The Prison
Association of New York and the State Commission of Correction,
‘and in 1945 by the same two bodies with the added interest of the
Society for the Prevention of Crime bills were introduced in. ATbany
‘and. passed prohibiting after September 0, 1945, the housing of
children in the City Prison, Manhattan and in county jails, peniten~
tiavies, and fockups. Here again the problem was not solved but the
prohibitions contained in the laws made it clear that the State of
New York was opposed to the housing of children in those places
described above, AS the time limit imposed in new legislation
‘approached there was venewod eorieern andl a realization that some.
‘thing had to be done
Continuing its interest, The Prison Association of New York as a
follow-up of a meeting hela in its oflee in November 1944 addressed
a letter to the Welfare Council of New York City on November
1944 requesting that the Connell make a study of the whole problem
of juvenile detention. On February 13, 1945 Mr. Robert P. Lane,
to discontinue city subsidy. ‘The whole si
‘Tae Browse or ANorHER CexTURY 38
Excontive Director of the Welfare Council of New York City,
‘advised that such a study would be made. Conferences followed and
Mr. @. Howland Shaw, a member of the Executive Committee of the
Prison Association, was selected to head the committee making the
study, The committee after careful examination and study rendeved
a concise and excellent report. It is presented in fall in this report
Deginning on page 63.
Unfortunately, the clear thinking and wisdom identified with the
report was not followed by the City administration. ‘The whole
sitnation was more influenced by the Mayor’s own attitude and his
tmiceasing dislike for those onganizations that had for years been
identified with the temporary eare and custody of juveniles referred
by the courts, The report presented by Mr. Shaw's committee repre.
sents not only a loxieal solytion but a pattern that might well be of
value to other communities throughout the country. We are glad
with the permission of the Welfare Council to make the report a part,
‘of this official document to the Legislature and desire at this time to
‘express our appreciation to the Welfare Couneil for its willimgnese
to go into the subject and to Mr. Shaw and his associates on the
committee.
Savenile
Institutions
Further as an outgrowth of the meeting held in
this office in November 1944, the Welfare Couneil
agreod not only to study detention facilities for
juveniles in New York City awaiting court action or trangfer, Dut
‘also agreed to extend the work of the committee headed by Mr. Shaw
to inelude @ stndy of the programs of treatment identified with
vacions juvenile institutions in the New York area, This study
reflects the earnestness of the chairman and the wise evaluation of
the material gained Som reports and observations of the ‘eld
workers. We are glad to be able to include with the permission of
the Welfave Couneil of New York City the report in fall beginning
on page 7
On July 81, 1945, our President, Mx. Holter,
direotod a letter to the Welfare Couneil of New
‘York City calling attention to the seriousness of
the problem of juvenile gangs in our City and urging that the
Couneil undertake a study of the problem. One member of our
Board, Mr. G. Howland Shaw, has ziven considerable time not only
in this City, but in other areas, to gathering at close range informa-
tion about tivese various wanes.” As a result of this letter the Welfare
Council agreed to undertske the study and couimittee of twenty-
six experts was organized. Mr. Shaw was selected to serve as chair-
man. This study is in process but will not be completed in time for
its inelusion in-this report, However, it is anticipated that with
at ‘Tue Prison Association or New York
Mr, Shaw’s experience and that of his colleagues on the committee,
there will be presented information and findings that have not here.
tofore been properly organized and focused.
Youthful Beginning with Chapters 549 and 551 of the laws
Offender of 1943 and later modified by Chapter 632 of the
Laws Laws of 1944, a new procedure was put into
operation for the handling of youthful offenders
between the ages of 16 and 19 who have been indicted for a felony
and who have been investiated by the Probation Department. From
October 1, 1943 to September 30, 1944, there were 527 youths con-
sidered under the provision of the new Jaw, and of these 180 y
found eligible for treatment as youthful offenders in the Youth Part
of the Court of General Sessions of New York City, Under the new
procedure indictments are not filéd. ‘The effect of the adjudication is
that :‘“No determination made under the provisions of this title shall
operate as a disqualification of any youth subsequently to hold
public office. public employment, or as a forfeiture of any right or
privi r to receive any license granted by public authority ; and
no youth shall be denominated a criminal by reason of such deter-
mination, nor shall such determination be deemed a conviction.”
Sinee the Association supported this legislation it is gratifying to
note its increasingly suecessful operation.
Sentencing ‘This Association has been concerned for years
Process with the question of the best method to pursue
following convietion by plea or verdict. Its
identity with the beginning of the indeterminate sentence in this
country, its plea for the establishment and better organization and
administration of probation, is substantial proof of its desire for
intelligent and just handling of those who come withir the control
of the courts. While progress has been made as a result of its
interest, there still remains the unevenness of justice as evidenced
by the variety of sentences imposed by the various courts in the
ate for similar crimes and circumstances, One thought that the
Association has pursued for years as a likely remedy is the establish
ment of the pure indeterminate sentence. An attempt in this diree-
tion was made some years ago when the Association sponsored the
Quinn-Robinson bill ‘This was paksed by the Legislature but: vetoed
by the Governor because the bill carried no appropriation. Tt has
been demonstrated, in the State of California for example, that pun-
ishment and the administration of justice can be entrusted to other
than the courts through the operation of a liberal parole Jaw. ‘The
day must come when there will result a more even application of
"See Senate Int, 1306, Pr, 1588; Asoubly Int. 1472, Pr, 2650; 1984
Legislature
PLOT PLAN, UNITED STATES ARMY DISCIPLINARY BARRACKS,
CAMP COOKE, CALIFORNIA
Considered a maximum security institution the above photograph shows
the general plan of the Army's new disciplinary barracks at Camp Cooke,
California,
Taw Buawesiso or ANormen Centuny 35
criminal justice and the Association will continue to record itself
in support of that objective.
‘As a proof that the situation does not relate only to the State of
New York, but to other areas as well, inending the Federal jurisdic:
tions, we are making a part of this report and in support of our eon:
tention as to the need for a change, an illuminating article by United
tates Attorney General Biddle which appeared in Collier’s maya-
azine of May 19, 1945.
Conduct of Some Attorneys Taking advantage of inmates of
Operating in the Criminal the City Prison, Manhattan, by
Courts Building ‘some antcriye who abtabe ain
ponsation sometimes through the
Fitting of payor tiekets, watehes, and other items or subst=ntial sums
of money and giving little or no sevvice in rotiim is a situation that
continues to hold the attention of the Associaton
One case wus referred to the Grievance Committer. of the Bur
Association. Tt was learned that complaints about this attorney were
frequent. ‘This wll soon be a matter for the court to decide through
dlisharment proveedings. ‘The Assoviation iu its Recommendations
othe Legislature (soe page 15) has urged that the State Judicial
Couneil make a thorough investigation of complaints of this nature,
Probation ‘The Association will not be content with proba
tion in ali eourts in New York City or elsewhere
ontil certain standards relating to organization, personnel, and pro-
vedure are in operation and wntil the vasions serviees are adequate,
For years there lias existed an unevenness of probation organiza.
tion and administration in the City of New York. Since the frst
probation Inw of the State was written in the office of The Prison
Association of New York and sponsored in Albany by it, it naturally
follows that the Association is ansious that probation be at its best
or nearly so in every instance, Weak probation systems, and the
‘sume holds trae for parole, make foF public danger and the diseredit
of sound theories, ‘There is a renewal of interest in the need for
providing better probation serviee for New York City and out
Spoken in that connection is Chief City Magistrate Edgar Bron
erger of the Magistrates’ Courts, He is trving to reorganize his
probation servive and to iinprove it in every way, Whatever success
he achieves will relate to only one set of courts. ‘The improvement
must be expanded and all-inchusive if the desired results are to be
obtained. Below is s letter addressed to the New York Times eompli
menting Magistrate Bromberzer on his efforts and expressing the
Association's views regarding the problem as a whole
‘Tan Parsox Assoctarion of New Yor
To ‘The Baitor of The New York Time "
Te wns pleasing to note i your fe
the part Of Chet Magistrate Baga
New York ‘had conalievatle to do with the writing and sponsorship
of the frat prohation law of this State and theou the yeart has com
Stantly aimed to Inprove the probetion orvice, in which It bas the
Greatest faith wen adoquately’ and courageously administered
ha the probation servic
{Christmas Day the desire on
feeling is that the probation meds of the courts of
ty should be considered ud trettad a+ 4 whole and that im each
fuurt there he adequate’ and competent personnel nder inspiring
"To aotomplish this requires more than Ube statement of «plan on
fn other courts a starved aptem which hae been calling
for years,
Sincerely yours,
(Siged) 1. R. CASS
Gonerat Secretary
New York City
Reformatory for
Misdemeanants
On December 4 our General Seeretary made
fan official inspection of the New York City
Reformatory located at New Hampton in
Orange County. Significant among bis recom:
mendations is one that reads: “Unless the City of New York ean
find ways and means of maintaining this institution in accord
with approved standards for a reformatory type ‘of institution,
consideration should be given to its sbandoninent. ‘The pity is that
the institution has great potentialities. The site and the build-
ings on the whole are satisfactory, All that is needed is an adequate
staff, a well-rounded program with emphasis on education to be
applied in its broadest sense, and inspiring leadership, In this
conneetion the interest and cooperation of the New York City
‘Tue Beossine of ANoTuen CextuRy aT
Hoard of Education should be revived." Lt should be noted that
jas far Tack ax Civil War days there was a desire on the part of
interested citizens to provide ways and means to help young boys
fwho came into cooflict with the law, The State of New York set
Jan example by establishing the New York State Reformatory for
those between the ages of 16 and 30 who committed a felony. An
inspection report. made by ‘The Prison Association of New York
1902 convineed the then Commissioner of Correction of the City:
Jof New York that some action must be taken to ailord better hous:
ing ancl treatment of young misdemesnants and to Keep them
separate and apart from older and experienced offenders. At that
ime they were all kept at the Workhouse on Blackwells Island,
now known as Welfare Island. Considerable agitation followed
at state conferences and elsewhere and the Prison Association took
part in drafting a law which becamne Chapter 627 of the Laws of
1904 establishing a Reformatory for Misdemeanants, ‘The law was
svongthened in 1907, Chapter 516, through an amendment provid
ng that only first offenders should be committed.
‘The Reformatory was finally located on Harts Island and in
1914, its transfer to New Hampton Farms was started. In April
4916 the complete transfer was accomplished. ‘This ehange gave
{ained with the vesult that the reformatory has remained more
or less statie, This comment is not intended as
of the Commissioners of the New York City Department of Cor-
rection, Some have been more interested than others but it is
fair to say that they all elieved in a roformatory type of institu.
tion for young offenders but were tunable to get the necessary sup-
port to bring the institution to a level comparable with those
institutions holding a place of leadership in the field
Aside from the indifference of oficial attitude whieh the ins
tution has had to experience there is the serious problem ereated
by the courts failing to observe the law relating to commitments,
(On December 4, 1945, when an inspection was made it was revealed
that there were 31 inmates ont of a total of 273 whose case records
proved them to be undesirable subjects for the institution. ‘Their
presence was a handicap to the other inmates and of no advantage
{to themselves. A glaring example is set forth in Recommendation
VI appearing on page 16
At this writing conferences are being held to draft a bill to
{remove the objections set forth in the above recommendation and
thus place the New York City Department of Correction in. &
position whereby it ean free the institution of those who should be
committed elsewhere.
‘8 Tne Prisos Ansociarion of New Your
Purthes, communications have been addressed to the various
ours urging upon the judges that they adhere to the provisions
Gf Section 126 of the Liferior Criminal Courts Act of the City
Of New York relating to commitments, ete, The State of New
York having experienced the difficulty of dealing
conmitinents to both the Blmira Reformatory and the institution
ft Coxsackie bas taken steps to correct the situation through the
Satablishing of the Reception Center at Elmira Reformatory for
hove between the ages of 16 and 21. ‘The Department of Correction
Df the City of New York should also be in & position to exereise some
tontrol over those eoniing to some of its institutions, at least, and
for whore rehabilitation it is held vesponsible and too frequently
critivized if unsuecesaful. The sereening process worked wonders
for the Army and the Navy and the whole idea it embodies should
land is proving of vtlue to correetional administration.
Weatfield State Farm,
Reformatory Branch
‘The Association holds to the opinion
that it is a mistake and contrary to the
practice of years to abandon the w:
of the cottage system for women's institutions. The General See.
etary, a nenber of the State Commission of Correction
endeavored to bring about the reconsideration of the decision in
connection with postwar constenetion to build a unit to house
‘about 800 inmates a « substitute for all but three of the cottages
now in use. Tn holding to the view that the cottage system should
not be eliminated to give preference to a congregate type of hous
ing, the General Secretary’ was supported by women administrators
of long experience and of conspicuous service in various states
As was previously reported the State Commission of Correetion
voted ugainst the propose discontinuance of the votiage system
at its October meeting. ‘The matter was later referred to the Attor-
ney General for an opinion on the question of whether the Com.
mission’s decision was binding or advisory. The opinion held that
it was the vespovsibility of the Commissioner of Correction to
make the final decision and that it was the function of the Com
mission of Correction to give advice and guidance, Preparations
Ihave ben made for the earying ont of the postwar plan and,
tlexefore, it is clear that the cottage system is doomed as a pre
dominating, type of housing st the Reformatory Branch of the
Westfield Seate Parm,
County
Regarding certain viees identified with county
Sails
jail administration, the General Secretary ar
ranged for the pablieation in The Prison World,
July-August 1945, of a stinging criticism of the kangaroo court
system by Dr. Louis N, Robinson of Swarthmore College, an
‘Tux Beommase or ANoruen Cunruny
jiuthority’ on penal and correctional problems,
‘stributed to every sheriff in the United States.
| hamely the fee system, the General Secret
the September-October, 1945, issie of The Prison World and this
too was distributed in every county of the United States. ‘The
mibject of these two articles, of course, reveal only part of county
jhil evils, ‘These two cvils are particularly vieious and harmful
and deserve to be singled out. and dealt with by all people of good
Teis encouraging to Hote that there is considersble interest being
siuown int the States of Maryland, New Hampshire, North Caroling,
Dregon, Washington, aud California relating to county jails. Some
‘of inspection reports or special surveys made
by the Federal Burean of Prisons, ‘The reporta show shocking eon
ditions in the State of Margland and legislation is now uncler eonsid
tration to make changes. In New Hampshire the Taxpayers’ Asso.
ation is very nauch aroused, ‘The Governor in North Carolina jas
ppointed a conimission to study the jail conditions. ‘The Governor
Of the State of Washingcon tas requested special survey by the
) Pederal Bureau of Prisons following the beating to death of a
juvenile in the King Connty Jail, In the State of California, under
the direction of Mr, Richard <A. sleGec, formerly of the New York
City Departnent of Corvestiou, plans are under way to provide
supervision of jails, All of the above movements eoinelile with the
Tong standing intevest of onr Association in the jail problem and
refleet the progress made in our own State through the Association
nnd the State Commission of Correction,
Lesialation It was a good year in Albany for correctional
legislation aud ‘we are quiek to give recognition
to Governor Dewey in his exercise of good judgment in urging the
passage of bills intended to correct long standing needs ane make
for more efficient, intelligent and smoother administration of erim-
inal justice. Outstanding in this connection is the law establishing
the Reception Center at the Blmiza Reformatory for those between,
ages of 16 and 21. This change should satisty « long standing
Our views ou the subject were set forth in @ letter to the Gov
emor on December 8th 98 follows
My dear Governor
"Yor slong time there has heen dissatisfaction astong administcators
ant olsercors rogarding the commitment of young of
in correspondence I have. came tn learn that this
Tabjest has also ad your attention for some ine
‘Tae Puisos Assocraniox ov New Yor
the proposal made by this Association to the Legislature on mor |
xkettion ha bren thet comunements to these tuatitations, aml
{hr whieh the offender shoud be. plac
crate in ote Joradietons bolt State
and Feder
ey rc, of oun, ha, the Deptment wader exiting laws oxo
However, there io a retuctaace 40 follow this as & regular ouree 2
othe extent desired
sine fam aodig to nem cert, roaring your annua |
ance Lo the katate ay ne expres the nope that
bees © ones oe oneness
Sod Coven
Respentully yours,
(Signed). R. CASS
Gonorat Reoretary
‘The Reception Center must sueceed if the inmates concerned are
to receive the maximum of benefit identified with the rehabilitative
efforts of the State, It will be helpful to the various institution’
volved and ultimately for the publie at large.
to be able to go along with the Governor in his legislat
wwe are happy to record here the Governor’s reeognition of our desire
to be of service to him and the State throughout the session.
May 1, 1065
ear Br Case
tr
fmly of hep to mie, but m very vital abd lmportsat one tthe’ people
Gt tye. State
th thy very Kind togurds, Tam
(Sige) THOMAS x, DEWEY
Our aetion on varions
the snmmary bezinuing on page 5
Firearms As At the
‘Trophies or ain
Souvenirs tee,
ss cerned during the year about Brearms
brought into this country hy soldiers and others
was had with the War Dey
tion of Commissioner John I.
suber of the Executive Commit.
being
artment; attention was dineted to the
bills ducing: the 1945 session is recorded in
Correspondence fj
‘Tae Buowntne oF ANoratna Cerone a
protest made by District Attorney: Hogan of New York County in
frie Le indicated grave alarm, Former Police Commissioner
hulward P. Mulroney of ont Bxecntive Committee was of the opin-
on that too much ofthe Blue was being place on ex-soldions and
that the sveapons were coming other sourees such as the Mer-
Me EU eciae and clsre te had pose ove tha feeatoa iE Mr
J, Eagar Hoover and local reventie offcinis, As a result of these
‘various observations, tis clear that the situation requires exercise of
Control and aside from the activities of the Police Department some-
thing more effective than has yet appeared is needed. ‘The situation
is more serious than that following World War [
75th Annual
Congress of
Correction
Tt is pleasing to record that Mr. Som A. Lewi
son, A meinber of ote Hxeontive Committee,
was elected President f The Ameriean Prison
Association at its 75th Ammual Congress held at
the Hotel Pennsylvania, New York City, on November 15th and
16h. This selection Is a fitting recognition of his many years of
iotive interest and labors in the field of crime study and treatment.
At the Cougress theve were 650 delegates representing 43 States,
the District of Columbia, Canada, Brazil, Puerto Rico, Paraguay
and China, Outstanding addresses were given by Secretary of War
Robort P. Patterson (see page 91); James V. Bennett, Director
of the Federal Bureau of Prisons, deceribing prisons and conditions
jn general in the American zone in Germany; Bradley Buell of
Survey; Dr. Winfred Overholser of St. Elizabeth's Hospital in
Washington, D, C.; Walter A, Gordon Geseribing the California
Advit Authority. A report on postwar plans in all States was
‘made in a section headed by Mr. Austin H. MaeCormiel; and an
excellent review of postwar problems in another session headed by
Mr. MacCormicke was made,
Juvenile, medical, parole, and probation groups met in the after-
noons and made valuable contributions
A brief summary of the Congress high spots appeared in the
November-December 195 issue of The Prison World, and of
course, there will follow in due time the complete volume of the
Proceedings. Copies of The Prison Werld aid the Proceedings
Of the Congresses of the Association are always available in our
library,
Tmportant resolutions were adopted including a strong protest of
the kangaroo court system in county jails and other institutions ;
the fee system as a means of compensating sherifls and minor
judicial officials; and the detention of juveniles in city or county
lalla, Other resolutions related to veteran preference, restoration
of civil rights, and the distribution of surplus war supplies such
5 trade training equipment to be used in reformatories and prisons
a ie Prison Association of New York
as a part of the educational activity. The resolution relating to
veteran preference urged that in giving due consideration to vet-
erans, other civil service employees and non-veterans desiring to
enter the civil serviee should not be handicapped almost to the
point of exclusion. ‘The resolution relating to certain civil rights
directed attention to the legislation alopted during the 1945 ses.
sion of the New York State Legislature. ‘The last resolution was 2
further attempt to urge the authorities in Washington and the
heads of state educational departments to give the correctional
institutions of the country an opportunity to share in the dis.
tribution.
There was agreement that the various resolutions were appro-
priate and should serve a worthwhile purpose.
“New York City Inchided among the many postwar plans relating
Postwar Plans to the New York City Department of Correction,
there is one providing for the enlargement of
the House of Detention for Women, The Association was one of
those organizations that labored for seventeen years in the cam-
paign for a House of Detention for Women to, the end that women
offenders would be housed and treated more decently.
never intended that this insti
awaiting court action or transfer. However, reflecting mainly ind
vidual views, there gradually developed the practice of using the
institution for those serving sentences, ‘These sentences vary from
a few days to thiee years. In the meantime the institution at Grey
court, established {0 provide a place in the country for the eare
and treatment of women offenders, was discontinued and given
over to the City Department of Welfare. That left the House of
Detention for Women as the only place within the Ci
the: holding of those serving a sentence. The Assoc
its original view that the House of Detentiop for Women. as the
name suggests, should be used only for those awaiting court action
or transfer except possibly those who have a very short sentence
of say not more than thirty days, The Association is not in sym
pathy with the plan to continne the House of Detention for Women
as a place for those serving sentence or to enlarge it for that and
other purposes. We believe that Greyeourt should be restored to
the City Department of Correction and ope
and used again
for women offenders serving sentence.
However, the City has cont
mitted itself to the postwar enlargement. If sufficient funds ean
be provided by the City together with Pederal aid, it is expected
to spend well over one million dollars to enlarge the House of
Detention for Women, ‘The
may be some chance of altering this
plan and the Ass
ion will be alert to that possibility if it oceurs,
surydoy “ay Om. yuHn doug “AIOK WONT JO
supidoH “AC PL ogg, “4H1Q AOR MON ‘SPIE
sinoos tenIyoU-uITNFaTEA WORFURGIOD w BY OLE
VINIOUIA UOT NUVE AAVIENGLINGE ALVIS casodoud
wag -nosamens
‘Tun Bronaane or ANoraER CayruRy 43
International Penal This Coramission was brought into existence
and Penitentiary back in 1872 largely through tho efforts of
Commission Dr. B,C. Wines, who was for a number
of years General Secretary of ‘The Prison
Association of New York, There have been quingienniel meotings
‘und a former General Seeretary of the Assoeiation, Dr. Samuel J.
Barrows, was President of the Eighth International Prison Con
gress. The Prison Commissioner on the part of the United States
now is Mr. Sanford Bates, The Prison Association of New York
has been represented at « number of quinguennial mesiings aud
all through the years has been aetive in various ways to make for
the usefulness of the Coramission, The meeting schediled to be
hela in Rome in 1940 yas indefinitely postponed and whether the
Commission is to continue as a separate body or whether it is to
he made a part of the Economie and Social Conne!l of the United
‘ations Organization, is yet to be determined. At a rezent Con
gress of The Amevican Prison Assooiation, the sentiment was thi
the question be taken up with Mr. Stettinius, head of the Ame:
van delegation of the United Nations Organization, ‘The Prison
Asweintion steadfastly holds to the idea that there should con
tinne to be some means of international contact and understand-
ing relative not only to the administration of prisons ancl Ube imposi
jan of punishment, but also embracing the whole problem of
fvime causation and trestment. Naturally, the Associstion leans
toward the preservation of the Commission, but if something better
‘ean be set up in its plage, we shall be glad to go along in the inter-
est of progress,
Board Members We are proud again to refer to those mem-
im the Service bers of our Hxceutive Committee who are
identifed with the armed forces. ‘The follow-
ing were relieved from duty toward the close of the yeur: Archi
ald S. Alexander, Lt, Col AUS; Richard F. Babeoek, Comds.,
USNR; Charles 8. Catting, Lt, Col, AUS; Harold K, Hochschild,
Lt. Col, AUS; Henry €. Taylor, Comdr., USNR,
Lt. C! Melim Norton, AUS, at this writing is still in the service.
Mr. Richard C. Patterson, Jr, continues on leave ax Ambassador
to Yugoslavia
‘Three members of our Hxecutive Committee performed outstand
ing service on the home frout assisting those in the armed forees
and the Merebant Marine, Mr, Auchincloss was messing in_his
work ay Chairman of the Officers’ Service Commitiee of New York
City. Mrs, Adler gave unstintingly and enthusiastically of her time
and knovsledge ax Co-Chairman of the New York City Defense
Recreation Committee. Mr. Auichiucloss also continued to serve as
a member of the Board of Directors of that Committee, Mv, Kdward
“4 ‘Tue Prison Association or New Your
P, Mulroouey directed his best effoets for the benefit of seamen as
Chairman of the Port of New York Area Committee of the United
Seamen's Service.
Warden Lavves continued os Chief Consultant of the Prison
Industries Brauch of the War Production Board until the work
of that bureat was terminated.
General
Items for information and guidance from those in other
States who are anxious to correct. unsatisfactory
conditions and wake for progress generally. These requests by
letter, telephone or personal visit come from schools, colleges,
‘women’s groups, legislative committees, moving pietnre producers,
magazine writers, the press; broadcasting companies, heads of
departments and agencies, probation and parole offers, heads of
prisons and veformatories, civil serviee bodies, ote, We consider the
handling of these inquiries as a very important service, ‘To give
‘helpful information reanires time and in instances where the infor.
mation cannot be readily given from this offiee, the i
cooperation of others must be sought and cultivated, An
tion of our files will disclose a surprising volume of such corre
spondeiee,
‘During the year, for example, there were inquiries from Milwau-
kkee rogarvling the establishment of a new House of Corzestion ; plans
for 3 new county jail in the State of Oreyon were submitted for
study and comment; there were those in Oregon who wanted to
know about juvenile delingueney and its treatment; Rhode Island
vas concerned about the future of career men in the operations of
ted States Office of War Information sought
id assist im the revamping of the prisons in Franee.
‘The Philippine War Relief desired information regarding the coop.
eration of prison industries; the Department of Justice of Puerto
Rico was very anxious throngh personal representation to obtain
information regarding the reorganization of its parole machinery ;
the head of the prison system of Puerto Rico submitted for study
and comnient plans velating to new prisons and jails. "The State of
Alabama was concerned shout the reorganization of its State
Department of Correction; assistanee was given in the evaluation
of a study made of certain procedures in the Conneeticut Reforma-
tory; a member of the Legislature of the State of Delaware sought
information to support # bill to abolish the whipping post in that
State: from Maryland came the request to pase judgment on pro-
posed indoterminate sentence hills for that State; interested persons
in Massachnsetts asked for assistance in support of legislation to
abolish the Old Charlestown Prison,
‘The above are samples of the kind of inquiry and request for
assistance that frequently eomes to our office.
We vontinue as in other years io receive requests |
THE ASSOCIATION'S SERVICE BUREAUS
ALLift to the Man Who Comes Out
Employment and ‘The end of World War 1 has brought with it
Relief Bureau drastic decrease in emmploynient. opportuni
ties, an appalling condition that must inevi
tably accompany the ending of every war, Despite this serious
problem, however, our Employment and Relief Bureau has contin.
hed ta obtain employment for parolees, discharged prisoners, and
those men in various institutions awaiting release
It is obvious that an over abmidanet of manpower eould only
serve to make more arduous the task of the Prison Association, and
similar organizations to secure placemeuts for inmates and
exinmates.. Therefore we are profoundly grateful to those employ-
fers who so generously dedicate themselves to the welfare of their less
fortunate brothers. It has been established, too, that there is a
lefinite upward change in general public opinion, favoring the
excinmate, for whieh fact we are further grateful. We know that
vehabilitation to the ex-inmate is the shrine at the end of along and
tedious pilgrimage, and we are well aware that the impending dan.
ers of this perilous journey are lessened by the employer who stands
prepared to bestow bpon the pilgrim a most precious blessing—the
faith of his fellowman! This obstacle now having been removed
from his path, the ex-inmate goes on to soon complete his readjust-
nent to eivitian life where he will establish himself as a useful and
respeeted member of the community. OF course we have still to
contend with the employer who remains a willing subject to bis
strong donbt, thus placing one more stumbling block across the path
lo rehabilitation. We are happy to be able to report, however, that
wwe are gradually winning the eonlldence of these employers too.
"The seed of rehabilitation must be first planted firmly within the
individual, When he has fully learned to accept his duties as well
a his rights and privileges, and farther learned to exercise them
properly, eluding the one important rule of extending courtesy
and respect to his fellowmen, to win theirs in return, he will then
be ready to go forth, a self-respecting and law-abiding citizen, well
ennuipped to re-establish himself in society. And here prevails the
need for gainful employment! ‘The institutions of the State are to
bbe commended for the various rehabilitative measures which they
have adopted. ‘They offer splendid ceeupational courses whereby
individual skcill ean be developed to meet the requirements of the
Jobs to be seoured.
‘The Prison Association of Now York has beon foremost over the
last century in aiding the parolee and discharged prisoner.
1391
Taw Paivors Assnetatios of New: Your:
For the past thyee and one-half years the Employment and Relief
‘Bureau has cen under the able guidanee und direction of Mr. Harry
Schwartz who is eredited with move than thirty-five years experi
ence in the feld of erie treatment, prevention and avoidance. Mr.
Schwartz's consefentious activities’ can be regarded with apprecia
tion when we consider that during the past ealendar year he smb:
mitted 603 prospective job offers to the New York State Parole
Board for consideration, ‘The number of men placed in employment,
uring this period totaled 562. This was achieved by a vast number
of employment contacts made personally by our representative to
numerous business houses, factories, mills, lanudries, stores, ete A
most encouraging factor, too, where no actual placement followed,
i representative was almost invariably met with an attitude of
Helpfol cooperation on the part of all those visited.
‘The Bureau does much more than serve merely’ in the eapacity of
an employment placement center, When problems arise such as
Snancial embarrassment, or unavailability of needed work. clothes,
the lack of transportation to prospective job locations, tools, union
nes, fees, ete, those confronted appeal to us and in turn ave given
the required aid, and by the same token, the individual who beeause
of advanced age or retarded health cannot work, is invited to solieit
our assistance for finaneial aid to guide him through the eritieal
period of readjustment, The latter itcludes our assistanee in mak
ing contacts with families and friends as well as referrals to the
‘oper welfare agencies who ean assare more permanent financial
support and assistance,
Although all the eases whi: v
ve presented to the Bureau during
the past year are worthy of mention, limitation of space forbids their
enumeration in ‘Therefore we are obliged to select at ran-
dom and present a few herewith for the purpose of conveying to the
rouler a better understanding of the work of the Thavea,
‘The case histories of T.N.* and P.W.* are of parallel nature. Both
represent the ex-inmate whose first beush with the law commenced
with juvenile delinquency, flourished with offenses. as a wayward
minor, and ended finally with arrest andl conviction for 3rd Degree
Durglary. By the time these tivo yorngsters hid reached their 17th
and 20th birthdays, respectively, each lind piled up Sve eanvietions.
Institution tests showed low mentality vating, poor scholastic
achievement and only average mechanieal aptitude. Despite these
bleak reports, when their eligibility for parole arose, our representa-
tive seenred employment for T.N.® and P.W.*, and both these young
men have sinee proven their merit,
The ease of Cli." presents an unhappy background! Family
difficulties oftered this youngster a home Tife completely devoid of
‘parental affection, regard and careful supervision, all this eontribut-
TAIL names snd initials are fcttiows
‘Tum Assoctavion’s Senvior BUREAUS a
jg strongly to the eavse for his having run away from home upon
3 different. occasions. His childhood was divided between the
orphanage and foster homes, In 1988 he was committed to an insti
tution as a neglected child and was confined for two years. Tn 141
hie was arvested for Vagrancy, and 1948 for Grand Larceny. In
1944 he was found guilty of 2ud Degree Burglary. ‘Tests at. the
Institution showed CIT to possess a high 1Q, splendid scholastic
achievement, and mechanieal aptitude of high average. His record
there described him as a very good man and one quite willing to
cept any task, usualy vith good results, AL dhe ime of hie parole
mae representative obtained employment for C.H.* whose behaviour
sinee has been commendable.
S.P.* who had been formerly seutenced to life imprisonment as
4 fourth offender was fortnate enough to win his parole after
having served only fifteen years, Our representative secured place-
ment in a shoe factory for this middle-aged gentleman, where he has
been doing very nicely
‘The case of L.F.* will serve to illustrate that age is no barrier.
Prior to his arrest and eonvietion for Manslaiighter, this ex-inmate
had been employed with one firm for 22 years. At the time of his
release, terminating a three year sentence, L.F.* was 65 years old
fand quite wnliappy about the dubious chance of securing employ-
ment becanse of his advanced years, However, his aspect on life
brightened considerably when our representative assured him of
his rightful place ia the world by securing employment for him,
S.A, a fitst offender, had heen arrested and convieted for armed
robbery, His possible 25 year sentence ended after he had served
10 of these years in a model fashion. When his eligibility for parole
arose our representative Found an opening for him. His appreciation
of this new opportunity has heen made evident by his good record.
Notwithstancling the social standing of the inmates prior to their
incarceration, all are treated equally in the various institutions; and
so it remains when they are Sally released. ‘The case of .M.* will
further serve to illustrate the broad seope of the status quo of our
clients, inasmuch as TAL* was a physician who had been arrested
fand convicted for malpractiee, When his case was referred to us
for possible employment we had little difficulty in placing him with
4 large manufacturing concern.
In checking we invariably find to on great appreciation that the
men we have placed are doing such splendid, work as to merit a
salary inerease and in many eases advancement in position.
‘The volume of letters submitted to us by parolees and discharged
men to express their gratitude and to pledge their Joyal support, are
ingratiating. ‘The general sttitade of these men ean be better illus:
trated by the following excerpts from typical letters.
TAM memes and initials are fetitions
‘Tum Paisox Association or New You
From W.W. “In reply to your letter of August 20th, may
Lsay first that Iam grateful for your very prompt answer.
‘Your assistance and sustained eelerity in trying to get a job For
‘me before the deadline are beyond anything I have ever come
in contact with, ... Believe me to be deeply gratetul for all of
your many courtesies
And .K.* “,,. May I tend my most sineere gratitude to you
and your esteemed organization for your excellent service that
‘you have shown in procuring employment for me. In the event
‘that T shall be paroled, Iwill promptly go to your organization,
not onfy Zor the letter of introduction whieh you so graciously
offered me, but also to offer my humble appreciation person-
ally...
‘Then from 70 year old A.ML* comes the following
“The purpose of this letter is to let you know that T am still
‘on the job and getting along fairly well although: itis taking the
last ounce of energy to hold it. T am always mindful of the
fact that yon pnt me on the job and that serves me to hold on
with grim determination to the end that your confidence in me
may be sustained. ... In conclusion T am urged to tell you that
Tam making the best effort possible under the eireumstances
and it inspires me to lmow that you have confidence in my
sincerity
And now this appealing bit from N.0."s* letter:
*,. . Now, Mr. 8. as you are to inmates what Mr. Anthony is
to his radio audience T'am unloading my troubles of yon... «
Tealizing you are a busy man and T am only one of thousands
seeking your limited aid 2
Expressions of emotion are not limited to the ex-inmate only, as
these excerpts from letters of grateful parents will indicate
Your kind letter of June the 14th was received in due
course, and it certainly made me feel Full of hope for my son,
and appreciation towards vou 1 tried to get you on the
y, not only to inform you of the situation, bmt par
[wish to express to you my most sineere thanks and my earnest
wishes,
And this mother writes,
“This is to Tet you know that my son was released the Srd of
December and is now at home, He is working in Richmond
TAI aaines and initials are fititious
‘Tae Assocu.tion’s Senvice BuRnAUs 49
Hill maki T want to thank you fromtite bottom of my
hieart for your interest in is ease and may you have as bright
‘and happy a Xmas and New Year as I know Twill have. You
cannot imagine the joy on my son’s face when he sew his
Gaughter for the first time sinee she was 6 weeks old. She is
now 3 yeurs old. In the 3 years my boy has been away there
isa great change in him. His boyish ways are all gone and he
facts and talks like a man and realizes he has a responsibility in
his little daughter. Tiknow he has learned a great lesson and 1
feel sure he will never go back there again, No matter what
hhe has done Dad and I are still proud of our son and kmew he
‘will reward us by being the man we want him to be, ‘Thank you
again, Mr. S. and God bles: you for all the mother’s sons you.
have helped,
We wish to conclude this portion with an excerpt we have
selected to represent the appreciation of our efforts as expressed by
the chaplains of various ins
“Yon people are doing a grand piece of work, and may God
bless you in your endeavors to get men started on the road to a
anew life.”
Some letters may surpass others in legibility, coherence, and
expression of thoughts, but all are equalized by their eommon bond
of rue spirit and heartfelt sincerity.
‘The purpose and accomplishment of this Burean are most con
structive and worthwhile as ean be certified by the men whom we
have helped, inasmuch as they continue to remain loyal, trustworthy,
and efelent. pon rare occasions we ar advised that one of ou:
1s failed both his employer and this Bureau, but these dis.
appointing recurrences ere vo rawota, however, Ut they sre com-
pletely smrmountea by the multitude of those who have fulfilled the
onfidenee placed in them. And thus are rewarded our great efforts
STATISTICS FOR EMPLOYMENT AND RELIEF BUREAU FOR 1945
‘fice interviews
(Other Interviews?
‘Total interviews
Dislrent men interviewed,
‘en ceaaed from New otk Gly penal inition
‘Men released from New York State penal institutions
Men released from out-ofatate penal tetiutions
Men relessed on probation
Mon with no crtsinat vocord (pela.
*Tasindes personal and telephone faterviews with clients, parole and pro
tetion faces and agency offlae
Tux Prisox Assocation op New York
‘Manls provided 5
Nights! lodgings” provide
ployment contdets mado by porconal visit.
obs submitted for iomates at various Hate penal hitita
Men placed in eniplopnient
Mex fiven cach raiet
‘Total amount spent
iy ‘foe volte?" Gneten can, mae
tad lodgingy peer
2,281.10
A Lift to the Prisoner's Family
Family
Service
Bureau
or)
The disruption of fam ie, the Buren tes is eontacts to geoure
timployment, placing the younger children in day nurseries.
Tie hes pete the lctieg of brscort 46 aer ee b eed
sone. In ite Yealltic guidance the Buren able to render ite most
aluable services, by helping in the somtimes intangible futon
hat eontribute toward morale
‘THe Assovtarion’s Seavicn Bunnaus 51
1 works to prepare the family psychologically for the return of
{we husband. Here it helps in a practical way to maintain family
relationships und to prevent further estrangement, It provides the,
wives with railroad fare to visit the prisons, a service not rendered
by any public ageney. ‘The wife who is ambivalent in her attitude
toward her hestand. able to decide whether she should or should
hot ive with him upon his release finds these prison Visita most heli
ful in clarifying ber own thinking. ‘These visits eontribute toa
better understanding between the wife and her lmsband and thie
pave the Way for a relationship which helps toward asstirine a ene
ssiul rehabilitation. (Being realistie the Family Service Burean
does not Bring pressure to bear upon the wife, if she feels that her
husband was too eruel or irresponsible before his incarceration, to
take hima back ayain into the home,
‘The Bureau continues its old tradition, beyond the scape of public
agencies, of supplying Thanksviving and Christies «inners and
toys for the: children
Te enc the children to engage in settlement house,
Y.MC.A.. and similar constructive activities after school, Tt pute
them and their mothers in touch with merical, dental, legal, and
mental guidance services. It sees that probletn children have proper
‘idaneo and that bright children are iiven opportunities
‘Though handicapped by the present housing shortage, the Burean
‘lows all it can to help families move to a more wholesome environ.
went, Every year it enables mothers and children to get away to
sitmmer camps for two weeks
In short the Family Service Bureat tries always to live up to its
title, and further to stand in place of a friend to the families of
men in prison. ‘The Bureau is under the supervision and guidance
of Miss Margaret Murdock. Her experience of many yeats ia deal
ing with families im cireumstances less fortunate than tost,. well
‘ualifies her for the task of direeting the Bureat,
Regrettably, the need for such service will inerense in 1946, Latera
five employment will not be so easy to obtain as-it was during the
war years. The inevitable postwar let down in morale is already
evident. Factors over which the Burean naturally has no control,
Buch as erowded housing, the rising east of living and freedom from
wuilitary discipline, will mai for an inerease in erime. ‘These condi
ons the Family Service Bureau will meet as a challenge to be of
increasing use to fhe eommenity
‘tux: Prison Assooiarion or New You
STATISTICS OF FAMILY SERVICE BUREAU FOR 1945
Families under care January 1, 1MS
New canes rocsive! ii
Ont cater reopened a
‘total number of eases under care ‘i
Cases losed
amities under care December 31, 1045.
cone prod wit Chita ders and bye
Ghilinenand mothers sent to summer upe
LEGISLATION—1945
Once again the Association, consistont with its practice of many
‘years, concerned itself with bills before the Legislature. ‘The 1945
‘session was particularly fruitful in the eorrectional feld, Many
bills of a progressive character were passed, and some of these, as
indicated in the summary below, harmonized with recommendations
made or bills introduced in other years by this Association, We
‘again take the opportunity to cominend Governor Dewey on those
parts of his Message to the Legislature relating to Delinqueney and
rine, with its four subdivisions, Juvenile Detingueney, Custodial
Cave, Parole, and Rehabilitation of Persons Convieted of Crime,
‘The Governor's declarations were followed up by a series of bills
recommended by bis Interdepartmental Committee on Delinqueney,
Tt was gratifying to the Association to be able to give support to
these measnres.
Following is a brief summary of those bills reeeiving our support
oo opposition during the 1945 session
Approved
Sonate Int. 115, Pr. 115: Reduces terms of persons sentenced to
life imprisonment prior to 1932 as 2nd or Srd offenders of Ist degree
robbery ov burglary from maximum of 80 years to minimun of 20
sents; sneh prisoners shall not be released tntil serving at least 13
ears and 4 months instead of 20 years, bringing such eases in
jormity with those of offenders senteneed after 1982. Chapter 726,
Senate Int. 118, Pr. 78; Assembly Int, 249, Pr. 250: Creates a
Youth Correction Authority in Bxecutive Department, requires
conrts t commit to the Anthority for rehabilitation of youthful
tifenders between 16 and 21 to determine type and length of treat
‘ent needed ; it may set up detention and diagnostic centers and use
uew methods of correctional treatment such as hostels, work camps,
foster homes or existing correction institutions. Approved in prin
viple. Failed of passage.
Senate Int, 210, Pr, 210; Assembly Int, 907, Pr. 208: Creates in
Bxcentive Department a youth service division with direetor and
advisory conneil of ten members appointed by Governor to organize
local councils in varions commanities for preventing delinquency
and erime by promotion of serviee for ebildren and young people,
fand by assisting schools and courts with programs i
appropriated, Failed of passage. (Approved in principle but not
‘supported because of preference for Senate Int. 921, introduced as
port of Governor's program.)
(51
Tue Paisox Association or Nuw Youre
Senate Tut, 247, Pr. 247; Assembly Int. 410, Pr. 411+ Proseribes
‘method for waiver of jury trial in criminal uow-eapitat eases. Failed
of passage.
Senate Int. 564, Dr, 569; Extends term of eligibility of eligible list
of candidates for appointment as prison guards now in force and
continuing until June 24, 1945, Zor period of two years next follow
ing maximum term of eligibility for sich list. Chapter 52. (See
our Recommendation X to the Legislature.)*
Senate Int. 661, Pr 068; Assembly Tat. 927, Pr. 971: Changes
alifentions for ‘veteran’ preference in vil service appoitmenta
thd promotions, extends provisions to any member of U8, armed
forets who atrYedtersia in tn of War and war hoyorailyy di
tharge, allows him 5 points additional credit to be added to tna
armed rating after examination and 10 points if he isa disabled vet
ran; dinabled vetoraus shall wntsl December 3, 1982 or for fe
youre after dscharye, be prefersed for teteution tn competitive
Poritonsy in other positions, lgiatare may. grant preference fn
Eppolntmeat and tention Fated of pacagee "(See our Iecom-
sundation 1k to the Lepidatave)®
Sonate Int. 704, Pr. 1196: Providles imprisoument for offenses in
mira Reformatory shall be for period not to exceed five years
instead of for maximum term for crime. Failed of passage. (Amend.
iment included in Assembly Int, 2126, Pr. 2655, Chapter G78.) (See
ur Recommendation VIE to the Legislature.)
Sonate Int. $59, Pr. 888: Strikes ont provision Himiting to three
‘the number of ease supervisors in Parole Division and changes title
of employment director to parole employment supervisor, Pazole
Board to fix salaries of supervisors and also of parole offleers
Petoed,
Senato Int, 897, Pr. 2250: Provides Children’s Conrt Judge may
order that either or both parents make reparation or restitution of
amount of damage resulting from child's delinquent avts in amount
not exceedin: Failed of passage
Senate Inf, 921, Pr. 961: Creates temporary cotamission to eansist
of Commissioners of Cortection. Education, Mental Hrgiene, Social
Welfare, Industrial Commissioner. member of Pavole Board to be
designated by Governor and member to be appointed by Governor,
to cooperate with public and private agencies for preventing youth
delinquency ; counties and cities with approval of commission may
establish youth bureau, or vecreation oF education project and
receive state aid for one-half of expenses; $800,000 is appropriated,
Chapter 356, (See our Recommendation V to the Legislature.)*
“Report to the Legislature during 1945 Seaton
Lmerstarion — 1945 55
Senate Int. 937, Pr. 977: Provides if ten years ihtervene between
suspension of sentence or expiration of parole or probation or
imprisonment for first felony and commission of second felony and
it defendant has not been convicted of misdemeanor in sueh period,
ourt may sentence defendant to indeteriaate hook ether er ha
or second offender, Vetoed. ‘ *
Senate Int, 107, Pr. 1180; Assembly Int. 744, Pr. 760: Changes
civil service title and clarsifivation of eriminal I attendants
hos
to guards, sergeants, lieutenants, and captains, Failed of passage
Senate Int, 1151, Pv
those holding
7 ; aleohol permit, solieitor's permit, tem:
Porary beer permit and miscellaneous permits; Liquor Authority
Inay prescribe rules for licensee or permittee fo fle an emplayee's
‘questionnaire with fingerprints and photographs of employees,
Failed of passage. (See our Recommendation IV to the Legis.
Tature.)*
Sonate Int. 1594, Pr. 2124: Defines as wayward ininor one who
without just eanse’and withont consent of parents or custogians,
deserts his home and is morally depraved or in danger of becoming
nioralls depraved or who deports himself so as tov wilfully injure
or endanyes morals or health of inslt or others; wayare minors
may be placed on probation dating any. part’ of last voor ot
mivority.” Chapter 736 - ;
Senate Int. 1539, Pr, 1690: Tuelndes penitentiary with other
places where child coming within provisions of Children’s Court
Act shall not be placed in or committed to. Chapter 868. (See our
Recommendation XT to the Legislatwre.)*
Senate Int. 1540, Pr. 1691: Provides in New York City Domestic
Relations Court, child may be temporarily detained in custody of
authorized association, ageney. society ot institution other than
prison, jail, penitentiary or lockup, nending investigation or trans.
fer to institution to which child has been committed; ineludes pen
tentiaxy with other prisons and places where children may not be
placed. Chapter 870. (Bee onr Recommendation XT to the Legis
Senate Ini. 1711, Pr. 1912: Changes reference from keeper to
warden of New York City Prison and strikes out reference to New
York County in form of bench warrant to be used in felony cases
Chapter 766,
Report to the Tagislature during 1945 Session.
58 ‘Tun Paisox Association of New Yous
Senate Int, 1784, Pr. 1936: Provides where child or other person
is committed from New York City Childven's Court or where child
is detained upon ovder of any court while proceeding affecting sueli
child is pending in such Children's Conrt, notice shall be given to
presiding justice of Children’s Court and latter shall be represented
by Corporation Counsel, Chapter 783.
Assembly Int, 65, Pr. 65: Permits issuance of Licenses as private
Gotectives and investigators to persons who have beon convieted of
certain felonies and misemeanors if thoy have received executive
pardon or certificate of good conduct from Parole Board ; sueh per-
sons may also be employed by private detectives and investigators,
Chapter 93. (See our Reconimendation IV to the Legislature.)
Assembly Int. 67, Pr. 67; Permits the practice of medicine, den-
tistry, podiatsy, and as certified publie accountant by persons eon
vieted of felony if they have received certificate of good conduct
from Parole Bourd. Chapter 95. (See our Recommendation IV to
the Legislatwre,)*
Assembly Int, 68, Pr. 68: Removes disabilities of pervous eon-
vieted of felonies aud certain mistlemeanors in connection with traf.
fie in aleoholic beverages if they have received executive pardon or
certifieate of yood conduct from Parole Board. Chapter 94. (See
‘our Recommendation IV to the Legislature.)*
Assembly Int. 69, Pr, 69: Permits Appellate Division to vacate or
modify order of disbarment of attorney convicted of felony, after
grant of vertifieate of good conduct by Parole Board. Faited of
passage. (See our Recommendation TV to the Legislature.)®
Assembly Int, 70, Pr, 10: Authorizes Parole Board by unanimous
action to grant certificate of good conduet to avy person convicted
of erime with good couduct for not less thou five consecutive years
certificate to be granted only where provided by law; evidenee of
good moral character is required or stich grant may end a disability
otherwise imposed ; ve year period shall hegin from date of pav-
ment of fue, oF of unrevoked release from eustody, but not while
subject to parole supervision, Chapter 96. (See our Recommenda-
tion IV to the Legislature.) ®
Assembly Int. 11, Pr. 71; Provides voting prohibition in ease of
felon shall not extend to person who has received certificate of good
eonduet from Parole Board. Chapter 97. (See our Recommenda
tion IV to the Legistature.)®
Assembly Int, 107, Pr. 167: Digests State Correction Commis.
sioner to establish division of elassifieation with advisory board to
Lmorsuation — 1945 87
Uevelop system Zor classifying prisoners. Approved in principle.
Failed of passage. (See our Recommendation VI to the Legis:
Assembly Int. 192, Pr. 192: Creates in Executive Department a
juvenile delinquency division to organize local councils for preven
tion and control of juvenile delinquency by encouraging moral,
social and educational development, director and advisory cauneil
of nine wiembers to be appointed by Governor. $208000 is appro-
priated. Pailed of passage, (Approved in principle but not sup.
borted because of preference for Senate Int, 921 introduced as part
of Governor’ program.)
Assembly Int. 737, Pr. 758: Authorizes Correction Commissioner
{to permit prisoner to report to induction eenter for pre-induetion
examination for Ui. 8. Armed Forees but expense of prisoners there:
for shall not be paid by prison or Correction Department or the
State, Chapter 81
Assembly Int. 883, Pr. 914: Budget Bill. Tnereases annual sal:
aries for grade B positions in prison safety service from $1,600 to
$1,600 for minimnm and from $2,000 to $2,100 for maximum, Ohap-
tor 161,
Assembly Int. 907, Pr. 2738: Continnes to Tuly 1, 1946 special
city magistrates” courts in Kings and Queens Counties, known as
Adolescent Courts. Chapter 600,
Assembly Int. 1004, Pr. 1644 : Provides guard or employee in state
prison or reformatory who is physieally or mentally incapacitated
for duty after twenty years’ employment shall be retired with pen-
sion of 40 per cent of salary paid for year immediately preeoding,
plus 2 per cent for each year of servive after 20, pension not to
exceed one-half of salary paid for preceding year, Chapter 663
Assembly Tnt, 1019, Pr. 1847 : Provides no person shall be entitled
to real estate broker or salesman license who has heen convieted of
felony and who has not received executive pardon or certifieate of
00d conduet from Parole Board to remove disability. Chapter 268.
(See our Recommendation IV to the Legislature.)
Assembly Int, 1062, Pr, 1817: Authorizes Supreme, County oF
General Sessions Court by orier to bring before it any prisoner
‘confined in jail or prison within state, natead of eounty jail, without
issuing habeas eorpus writ or other proves, Veloed
Assembly Int, 1744, Pr, 2634: Authorizes War Coneil to empower
Governor to take action in its behalf for meeting wnforeseen emer
eneies, to adopt plans for change of offices, powers or duties of
Report to the Tagisiature during 1945 Seaaion
58 ‘Tae Prison Association or New Youre
council, makes other changes relative to local officers and eouneils,
to use of armories and to production of prison made goods con:
tinues act for another year. Chapter 648,
Assembly Int. 1758, Pr. 1988: Preserihes procedure t0 be fol
lowed in Wayward Minor Court for girls in New York City. Chap.
ler 873.
Assembly Int. 1921, Pr, 2740: Kstablishes in Civil Serviee Depart-
ment a permanent Salary standardization division and board:
chaiiges some grades within present services, resulting in salary
imerenses for some zroups, abolishes grades with sninimum of less
than $1,200; empowers budget director to establish differential for
hhavardous or arduous work, a new service is established for labor
group; $50,000 is appropriated, Chapter 902,
Assembly Tut. 1973, Pr. 2190: Provides person practicing funeral
Aiecting, undertaking and embalming and whose license has bees
revoked because of conviction of felony, may he given right to prac:
tee if he receives certificate of yood conduct granted by Board of
Parole pursnant to provisions of Executive Law to remove disabilit
Chapter 443. (See one Recommendation IV to the Legislature.)
Assembly Tut. 2052, Pr, 2276: Provides there shall be established
aud tnaintainied in family court building in each eonnty or borough
of New York City a place for temporary detention of adult persons
under jurisdiction of City Convection Depactment. Vetved,
Assembly Int. 2321, Pr, 2650; Authorizes sumicipalities to estab:
Jish bueean or ageney for coordinating annd supplementing activities
of publie and private agencies devoted to welfare and protection of
onth, to promote projeets for leisure time activities for youth or
‘assistance to childven and to raise money or to receive moneys from
state, federal government or private individuals, corporations or
associations, Chapter 557. (See aur Recommendation V to the
Legislature.)
Assembly Eat 352: Authoriaes Social Welfare Depast-
vent th establish and maintain for five years temporary branches of
Stato Training Schools for better care and security of juvenile
Aelinquents committed ta sich schools who require special care oF
attention, Chapter 555,
Assembly Int, 2824, Pr, 2688: Anthotizes a state training school
superintendent to pay for eare of any child paroled from the seliool
fof which he is superintendent when ‘in his opinion there is no Bit
parent. relative, guardian or friend to whom the child ean be
paroled and when suitable eare cannot otherwise be necured. Chap-
ter 852.
Report to the Tagialatuce d
Lnarsnavioss — 1945
Assembly Int, 2825, Pr. 2825: Provides foF tranafer of dangerous
mental defectives from Mental Hygiene institutions to institutions
for defective delinquents in Coreection Department, Chapter B74
(See our Recommendation VI to the Legislature.)*
Assembly Int. 2326, Pr. 2695; Provides for unification under
State Parole Board of all parole systems of Correetion Departament
institutions. Chapter 678. (See our Recommendation VILL to
the Legislature.)
Assembly Inf, 2327, Pr, 2656: Provides for transfer of persons
vuder 21, confined in veformatory, Napanoeh Institution for Male
Defective Delinquents, or « state training setiool, to eettain insti
tutions under jurisdiction of Social Welfare, Mental Hygiene of
Correstion Departments; if confinement therein is no longer sult,
fable, such persons shall be transferred to institutions from which
they came, Chapter 558. (See our Recommendation VI to the
Legislature.)*
Assembly Inf. 2328, Pr. 2657: Provides for commitment, elassfl
cation, and confinement of male offenders between ages of 18 and 21
\who are sentenced to imprisonment in state eorrectional institutions,
und for transfer of those fonnd to be mental defectives to institu
tions for defective delinquents. Chapter 554, (See our Recon
Imendation VI to the Legislature.)
Assembly Tut, 2008, Pr. 2215; Requives State Correction Commis
sioner to searerate first offenders from otler prisoners in state
prisons. Failed of passage. (Approved in principle but regarded.
s inadequate in the light of the need of a well rounded classifeation
system 10 take into consideration nat only the number of affenses
ut many other items regarding cach indintdual prisoner
Senote Ind. 1845, Pv. 1450; Assembly Tnt. 1483, Pr, 1606 : Provides
five instead of four members of State Probation Commission shall
be appointed by Governor and strikes ant provision requiring State
Correction Commission to designate one of its members as member
Pailed of passage
Opposed
Senate Int. 36, Pr. 26: Provides that prisoner reeeived in state
prison prior to Tune 1, 1943 sentenced for receiving stolen goods
‘under subdivision 1-a, Section 1308, Penal Law, may be released
on parole as though convieted for misdemeanor if property was
worth not more than $100 and was not purchased for resale or by
‘iealer and if prisoner was not previously convicted of receiving
stolen goods and is subject to jurisdiction of Parole Board. Poited
of passage
“Report to the Lepislatore using 2045 Session.
60 THE Prison Association oF New Yor
Senate Int. 68, Pr. 1803: Defines prison guards as prison officers
and fixes salary schedule for prison offeers with minimum and maxi
mum within which Correction Commissioner may preseribe pay for
each grade; persons receiving less than minimum shall be raised to
‘minimum at beginning of next fseal year. Failed of passage. (Dis.
‘approved on the grounds that if conflicts with the whole theory of
compensation jor state employees as provided for im the Peld-
Hamition Bill. Tt is not sound to take out one group of state
employees for speeiat consideration when it ie the state potioy to
have an over-all system of classification and compensation.)
Senate Int. 238, I'r, 329; Assembly Ini. 347, Pr. 348: Creates in
Executive Department commission of three members appointed by
Governor to rehabilitate persons convieted of erime after completing
maximum term of last sentence and having good moral character
for three years prior to petition for cortifieate of rehabilitation
except that honorbly discharged veteran may apply at any time;
certifleate if issued shall remove all civil disabilities ineident to con:
vietion and shall be eaneelled on subsequent conviction of felony or
‘may be suspended for misdemeanor. Failed of passage. (We gave
Assembly Int. 70, now Chapler G, having similar objective our
preferential support.)
Senate Inf 618, Pr. 624; Assembly Int. 718, Pr. 728: Requires
court in which persou is convicted of abduction and certain other
sex crimes, bere expiration of sentence to enuse defendant to Be
txamined. by peyohirint- and. sociologist. designated by Senta
Hygiene and Social Welfare Commissioners, respectively; together
with judge thoy shall act as Parole Board with respect to defendant.
Foiled of passage.
Assembly Tnt, 645, Pr. O58: Poobibits Drash making in state
prison, penitentiary or rformatory for state or politial baivision
Ur for public inattation, exept for uae in sate corrcetional and
charitable institutions, Failed of possope
Assembly Int. 79, Pr. 749, Changes qualifeations for veterans?
preference in eivil service appointmente and promotions, extends
Provisions to any tember of US, armed forces who served therein
ime of war end was honorably discharged and diabled to extent
tertifed by U, 8, Veterany” Administration and disabil
talstence af tine of appotntment or promotion, wntil Dee
Within. 5. years after disoharze,nenrdinubled.etorarm” shal. be
Untied to preference after those disaied; removal shall be inverse
order of preference. Passed,” (Po be submitted to voters af general
Aiection, 101, as proposed amnentment fo Constitution) | (See Sem
ate Int 81; also uw Recommendation ZX to the Legislature.)*
“Report to the Legislature during 1045 Session
Lreisuarion — 1946 a
Assembly Int. 2101, Pr, 2836: Provides mininiuu term for second
aud thitd felony offenders shall be not yore, instead of uot less
than, one-half of longest term prescribed upon first. conviction
Vetoed.
Nore: The following bills were ofered toward the end of the
vesiot by the Probation Commiaton’ Sieg. aay
tnouncement or ciretation of explanatory meneranty. eats
tie bills immediately met vith the strong opmeiton ot the ee
tu it waa desided bythe Lexlative Case ara ee
inehangeto hold them over betnuse of thee entraneesl ohne
‘one of te ills uadoubtedy have ood features We secre ee
ever that it might be jst ws well o hold them over fos sacle oe
sont they could be beter explained and udertont
Senate Tut. 1334, Pr, 1489; Assembly Int, 1485, Pr. 1608: Pro-
vitles court may at any thne discharge probationer from probation
instead of from further supervision
Nenate Int, 1935, Pr. 1440; Assembly Int, 1486, Pr, 1609: Pro-
vidles probation officer unless otherwise directed’ by court. shall
investigate and submit report on soeial history of defendant and
ou adutt as well as child in Children’s and Domestic Relations
Courts; investigations may be made before, during or after hearing
+ adjudication,
Senate Int. 1986, Pr. 1441; Assembly Int, 1490, Pr. 1619. Requires
probationer in criminal ease to earry out reasonable additional con
‘litions imposed by probation officer if sueh power is vested in proba
tion officer by judge.
Sonate Int. 1387, Pr. 1442; Assembly Int. 1493, Pr. 1616 : Author:
ines probation officers with approval of court to act as parole officers
of persons released from penal, reformatory or other institutions.
Sonate Int. 1838, Pr. 1442; Asversbly Int. 1481, Pr. 1610: Extends
' Buffalo provisions permitting supervisors to establish county pro:
bution department aud provides that all county probation employees
shall be in competitive civil serviee; includes senior justice of
Mipreme court with other judges authorized to appoint county
director and excepts therefrom judyes of courts other than chil
‘lren’s eourt and eounty court
Senate Int. 1389, Pr. 1444; Assembly Tut, 1492, Pr. 1615: Pro-
Vides directors of probation shall be in competitive class of civil
ervice and provides no person shall be eligible as probation officer
who is over 40 instead of 55 years of age and changes provisions for
iDpointment of volunteer probation officers
42 ‘Tue Prison Assoorarion oF New York
Senate Int, 1240, Pr. 1445; Assembly Int. 1488, Pr, 1611; Changes
definition of probation officer to include one who investigates for
sean prior to an adjudication and defiuition of court for probation
purposes to ineluce Domestic Relations Courts
Senate Int, YBA1, Pr. WAG; Assembly Int, 1M, Pr, 16UT:
wiges that investigation of person to deteemine whether he is eligid
Tee Rajudged a youthful offender skal! be made by probation
Gfieer who shall suimit a report fo court in writing,
: i probation department from provision
comition having cont :
: “i ed of probation officers to appropriatine
justdietion of State Direetor of Probation to inehide Domestic
L449; Assembly Tt, 1484, Pr. 1607: Pro.
Hony nor have exeeution 0
COMMITTEE ON INSTITUTIONAL CARE OF
JUVENILE DELINQUENTS AND YOUTHFUL
OFFENDERS OF THE WELFARE COUNCIL
OF NEW YORK CITY*
REPORT ON FACILITIES FOR THE DETENTION OF
‘CMMLDREN HELD FOR THE CHILDREN'S COURT
AND THE POLICE DEPARTMENT
Shelter core for some of the
hildven who are brought t0 the
Children’s
‘ourt or who are iu police custody is required. Tn court
‘cases a period of study takes place between the time when the child
first appears before the court for a hearing on the allegations in the
petition and the tine when the court makes its order and disposition,
tir practiee in New York City this period varies from one to three
weeks depending upon the nature of the study. A probation study
under existing conditions takes about a week and a psyehint
study through the court clinie requires from twa to three weeks. Far
periods such as these some children need to be detained, while
othors can be permitted to return home, paroled, to stay with their
parents or guardians,
Children in polive custody who require shelter are those who are
rmaways, or stranded, as well as some delinquents apprehended st
atime when the Children’s Cont is not in session, for example, over
a legal holiday. With runaway or stranded chil
to provide a short period of shelter eare during whi
Toeate the parents or guardians and return the ehildven home with
ont the eases going to court. Children apprehended as delinquents
and sheltered by the police when Children
are produced in court when the court next conven
cases, it is possible for the police to avoid using the shelter by
securing a parent's bouid tinder whieh the parent guarantees to pro-
Auge the child in court and is permitied to take the child home. Use
of these bonds should be encouraged as they relieve the shelters of
thildzen who are admitted for periods of one or two days and who
iu many oases, ean safely return home pen
ue their appearance in
court.
Proper Function of a Shelter
‘The function of @ shelter for eases remancled for the period of
‘iudy prior to disposition by the court, should te short-term care
for the children. ‘The period for whieh children are remanded
“Seo "Detention of Juveniles” on page 12
ton
6 ‘Tux Pawson Association or New Yous
should be the shortest possible for thé court stndy ana disposition to
be made. Iu such a short-term shelter the program should be simple
designed largely to protect the childven and to improve or at least
keep up their morale. In thet sense only the shelters ave therapeutic
agencies. Therapy, in the sense of attempting to treat the eauses of
behavior that brought children to eourt, while they are in. the
shelter is not recommended. Such therapy is snitably carried on
only following the disposition by the court when the ehildren may
e committed to 20 institution or he placed under the supervision
of the eonrt and returned honie, Therapy or treatment of ehildre
in the shelter canuot be carried out with any degree of adequaey in
the short stay provided and, if attempted, will undoubtedly eause
feanfusion as t0 the purpose for which the shelter is here recom.
‘mended, will eonstitite a temptation to use it for more extend
periods of eare than are proposed, and ultimately, will eonvert the
Shelter into an institution for short-term treatment
Shelters should not be used for any disciplinary purpose, 'Thie
vommittee is not convinced that remands for short periods in
shelters for purposes of treatment or discipline ean be justified.
Children committed to institutions should be transferred
promptly. ‘Their presence in the shelter more than 48 hours after
‘commitment is an nnwarranted burden on the shelter and an unjust
fable penalty on the children.
Responsibility for Ordering Shelter
Responsibility for determining whether or not a child should be
placed in the shelter should be restricted to a Justice of the
Children’s Const, Childven apprebended between sessions of the
court may be placed in the shelter at the discretion of the apprehend
ing authority wutil the next session of the court. The praetice in
some communities of permitting police officers or court sovial servier|
Staff to authorize detention of ehildren while the court is in session
and able to act, is most questionable and may reselt in serious
abuses. Requiring that the holding of ehildren be only upon aetioy
bof a court provides the necessary guarantee of protection to the
igits of children
Criteria for Determining the Need of Shelter
In practice, shelter care is not vequired for the great majority of
children browght to court on delinquency petitions. ‘This accords
with the principle that every efart should be made to avoid the
removal oF childven frow their homes, Administrative conyenienet
oes not constitute a valid reason for holdin any chi iu a shelter,
‘The criteria pow which to determine whether or not a chili
should be sheltered are, broadly, (a) the need of the child for pro}
tection, (b) public safety.
Comsrrae, ox TxsrerviowaL Cane 65
in Drotestion of the chil, ie
8 nesnsary consideration in some cases ad eal fr the choles
ofthe ehila ntl appropriate plans can be made, Boge sent
in gang warfare or in cass involving rape charges are iyghet et
‘howe seauiving that eousieration be given tothe Gaugene keen,
in immediately returning. these boys to the vommenity aie
<hildven with histories of continnons and serious antisocial behavion
Jeaumot safely he paroled to their parents or guardians, pending the
oust stuly and disposition of thett cages,” Sam Pending the
In addition to thew reasons, sheltering children wh
sy sheltering children while they are
lnder study by the court pavehiatrie clini is reopen nee
here competent observation of the child ia the sige horse,
jan essential element in the diagnostic process, ree
with 6-10 beds, should be available particularly for some of the
jof other childven lends on such occasions, ee aie
rooms or cubicles for many
A Proper Shelter Regime
‘The sueceas of the administration of a shelter is to be measured.
[fy its maintenance of good morale among the children. ‘This is
}chieved primarily through a regime which keeps the children busy
est inteested. A simple but adeqoute progam or tone any
eerfal surroundings both in personel sad farniings Seca
pensabte, ‘These conditions largely depend upon the oalty an
[resourcefulness of the management and the staff, aualitg and
Paisow Assoctarion op New Yout:
Shelters are twenty-four honr services, with admissions at all
honvs and eonstantly shifting populations, They require, therefore,
larger staffs than other types of child-care institutions. Hiffeetive
supervision of the children at night is indispensable.
Shelter Staff
Attending staff in the shelter should be carefully selected and
suitably qualified, Tt should be adeq
humbers. A deficiency in either or bot
for the childven sheltered and for the staff employed. Sai
in staff cannot be attained without compensation sufficient to attrac
dud hold competent and qualified people.
‘Sta selected should understand the nature of the difficult
problems they are to handle, A worker who is afvaid of the ehildren
js obviously not qualified. Such fears frequently eause attendants
to be harsh toward those under their eare. Staff should be selected
who have had experience in handling youngsters ata high-tension
Stage aud who have, in addition to an tmderstanding of the motiva
tions of their Dehavior, ability to cope constructively and imagins
tively with their problems.
Dificult Cases
Aggressive behavior of all types can often be avoided, and cer
tainly is more easily contvolled, if children are placed in separate
rooms where they ean be watched and handled individually as their
heeds require, In providing for the older, larger and more difficult
boys or gis, separate rooms are an absolnte necessity. Attending
staff should not be expected to meet and handle situations arisi
ut of gromping these boys er givls in adormitory. Such an arrang
ment shovld be avoided throweh planning that provides segregation
for this oldes, more serious, and physially more developed group.
Separate rooms, well ventilated and lighted and easily insp
suund-proofig, simple sleeping equipment, walls and furniture of a
snitable type, are minimum requiren
Additional Uses for the Shelter
Neglected Children
‘The Department of Welfare should take leadership in providing
for this group. Many neglected children need not be brought to
court at all and ean be given whatever attention they need through
the Department of Welfare. Tt is resognized that some children who
‘may conte to the attention of the Department of Welfare as neglected
are also sorions behavior problenis. These should be browght into
Children’s Court on petitions alleging delinqueney when their
Comerzen ox Iserrrunionat, CaRie er
behavior is such as to warrant their being so treated. ‘The shelters
receiving children from Childzen's Court will thus he free of neg:
leated children who in the past were placed theré but who are more
suitably sheltered with the group of dependent children who are
not behavior problems,
Material Witnesses
Comparatively few ebildren are sheltered by Children's Court
stviethy as material witnesses, Most of the children who are needed
t» testify against adults are before Children’s Court oa petitions
alleging delinquency or neglect. The classification of these children
in the shelter can be made quite as though the meterial witness
factor were not present, exeept that, a8 the peviod of their detention
extends wireasonably, care outside te shelter in a foster hone or
suitable institution should be arranged whenever possible.
Sheltering children who ave needed as material witnesses, but who
are neither neglected nor delinquent, is another matter. ‘These
ehildren are sheer vietims of eireumstance. ‘They wituessed a crime
and their testimony is essential to the prosecution of the offender.
Tt may not be safe for them to he at liberty until after they have
testifled and the court, accordingly, directs that they be detained.
in these situations no expense or trouble should be spared to provide
suitable and comfortable eare for them which would approximate,
fs nearly as posible, normal home surroundings. Few, if any
should be Kept in shelters unless the period of their detention is
exceptionally short, possibly never over one week.
A Plan for New York City
Por New York City a single shelter administration that will
operate all of the shelter facilities in the varios boroughs is a
fundamental need. A shelter operated Locally, within each borough,
should serve the courts and polive in that borowh; a unit for diff
‘cult eases should be located coutrally to serve all borough
Local Shelters
‘The local shelters shomla he used for the following eases only’
a. Delinquents, other than “Difientt eases!”
D. “Safekeeping” eases for the police
(1) Runaway and stranded childven awaiting return home if
“delinquent” or if not “delinquent” until suitable
shelters for such eases have heen made available.
(2) Children apprehended while Children’s Court is not in
. Material witnesses for very short-term care
6 ‘Tae Prisox Assocuwon of New Yore
Shelters situated Joeully s1eur the Childven’s Courts would be eon-
venient to the eonrts, police, and parents of mest of the ehildeen
cared for. Transportation of children between boroughs, a eostly
fand time-consuming service, would he virtually eliminated, Loca
interest in the shelter and the eare of ebildven sent to it would be
inereaser! andl might be used to good advantage in building a Toeal
program of foster homes for those ebildven who would seen to be in
need of this eave rather than that given in the shelter
Foster Family Boarding Homes
The use of foster family homes should be an important part of
the program of the shelter administration. Their use would assist in
reiicing-shelter popalations, provide specialized rave for e
requiring it, sud would be of immense valne in material witness
cases in which fairly long periods of shelter care may be needed and
‘a congregate shelter is not suitable, Adequate financial zemunera-
tion for foster home care is of fust-rate importance. The tendency
4o represent foster home care as a cheap alternative to institutional
ceare is to be deplored,
Cases Sheltered by Uio Police
Runaway and strauded childven, found by the police, are placed
in the shelter by the police, who then proceed to arrange for their
return home. No court proceedings are begun in these cases, shelter-
ing the children bei: ed at police diveetion and their return
home negotiated ss expeditiously as possible by the police
‘To avoid the possibility of a child of this catexory being detained
excessively long, itis suggested that the shelter administration seek
‘an appropriate revieyr by a sTustice af the Childven's Court in eases
whieh have been detained hesond three dass.
Unit for Difficult Cases
‘The Joval shelters should not be expected to eare or the most difi-
cealt delinguent bey or girl. Special provision must be made for
their cure, I the past, some of the older, nore serions eases were
pvlaced in the City Prison or Women’s Honse of Detention, At the
last session of the State Lexislatuze the use of these as places for
Aetention of boys and yirls from Children's Court was eliminated,
effective September 0, 1945. It is urgent, therefore, that the wap in
facilities thus ereated be provided for without delay
‘There should be a ventral unit designed and operated to care for
this type of boy and pti. It should provide for not more than
hoya and for 25 pints: this is the best estimate that ean be made, Tt
should be located in the seme building as the shelter for minor delin-
quents for Manhattan, rather than in a separate bnilding, although
strict segregation is essential
Comaneme ox Inssrronionat, Cane 6
Need for New Sheller Building
‘The Manhattan shelter should be a combined local shelter and a
specially bnilt unit for difienlt esses from all boroughs. No existing
available structure is suitable for this purpose. ‘There is a great
anger in improvising with an existing building. It ja recommended
that the special shelter for Mankattan be provided through the con-
struetion of a new building, especially designed to anit the varied
requirements it will he expected to meet and carefully planned by
competent specialists. Tt should be located as near as possible to
the present Children’s Court building in Manhattan
In the other four borouhs, the shelters should be examined with «
view to Detter adapting them to the provision of good shelter care
for minor delinquents. In Richwond, partienlarly, there is an
urgent ateed for improved facilities.
Assignment of Children in Shelter
‘The shelter administration should have the authority to assign
ehildren to the various units and resources at ite disposal, Transfer
of children from one local shelter to another, because of quarantine
in one shelter or for other veasons, is thus situplified and expedited,
Assignment of ebildren to the unit for difficult eases and tranxfer
‘therefrom should likewise be at the discretion of the shelter adminis-
tration. Te should not be necessary for the shelter fnst to obtain
court approval to make such assignments and transfers. With the
addition of foster homes as adjuncts to the existing congregate
shelters, and other facilities and secviees whieh might later be pro-
vided, an organization would be created with great flexibility of
resourees at its disposal; this would provide excellently for all
children coming within the seope of its funetion.
Auspices of Shelter
Shelter care for, Court and police cases is u City responsibility.
For some tine the inajor share of the cost of providing suel services
has heen earried by the City throngh annual appropriations to exist
ing private shelters, This is a thoroughly ont-of-date and unsatie
factory procedure. Absenee of any over-all control or city-wide
administration of the shelter program has resulted in service which
is spotty iu nature, variable aud uncertain in its approaeh, lacking
in coordination, and without promise as to future developments as
experience may warrant,
‘A single city-wide shelter administration is essential in order to
provide suitable and uniformly good service
Tt is recommended that the Mayor and the City Connell ereste a
uasi-publie authority to administer a program as outlined herein:
the authority to be an incorporated body governed by a board of
0 ‘Tux Paison Associasiox or New Yore
15 non-slaried members, one of whom shall be the Presi
of whom shall be the Presiding Justice
of the Deraesiio Walstions Court of the City of New York « 1d the
shxing member be eppsinted by the Mayor vho shall give
fee ating «proper eproentton frm each of
hinldng sich appotstuvents, The bostd should have power to estab.
Tish and carry out the pregrasn aad polices ofthe orgunietion and
ate seleet and emplay all personnel necessary to its operation."
order fo ae ts wide lea! interest and support as posable
the Mayor shot appolut for etch shelter a shelter committee of wok
torexcced nine persons properly sepreeentative of the three major
figs donors "Thepesoie so appt Bold bce
cane of their special knowledge ot conditions afecting ehildren
inthe aves Sn which the selter located andthe general interest
in the problems of children, IU should be the duty of the shelter
Canty ta alta ino and aptenatic ent the
interval, to confer and advise with the superintendents aad to
formulate and commuticate Lo the shelter authority seb obaerva
tate such commenicaton and generally to promote contact between
She hier thoi ae healt ote, a oma
embers of he shelter authority should, in sition to thei regular
{nti bo deeigutad to neve i ocaisio members of the shell
comnitees
Tis aryed upon the Mayor and the City Couns tht the shelter
authority, ax herein proposed, be ereated sumediatsly a0 that neces:
sary steps canbe promptly taken Tosking towasd an at
plishment of this plan. y
COMMIPTEE ON INSTITUTIONAT, CAR. OF JUVE
DELINQUENTS AND YOUTHPUL OFFENDERS
@, Howsan Suaw, Chairman
Mag, Somer C, Bows
Mis, Donor Brtaassca
Haney I. Carn
Preveno W. Eo
Txoxano V. Hantisox
Du Pasi J. "Bn
‘oeora N. Erste
COMMITTEE ON INSTITUTIONAL CARE OF
JUVENILE DELINQUENTS AND YOUTHFUL
OFFENDERS OF THE WELFARE COUNCIL
OF NEW YORK CITY?
REPORT ON LONG TERM INSTITUTIONAL CARE OF
JUVENILE DELINQUENTS
Of institutions for long term treatment of delinquent cl
sume are operated tinder private auspives and some under the State
New York City operates no institutions for such eare of juvenile
Haluquents, Private institutions reeeive from local Children’s
Courts, children who have been adjudged delinquent aud, also,
(eoopt by private arrangement with parents and others, ebildren,
with behavior problems. State institutions are restricted to recs
Iie children adjudged delinquent and committed by Children’s
Chasis, The capacity of the State institutions is limited and for
(outiderable periods during the past eighteen months the New Yorke
‘State Training School for Boys at Warwick ad to close its éntake
with serious consequences in torms of the effective handling of
Juvenile delinquents from New Yorke City
Intake Policies
“Admission policies of some private institutions have been unduly
reatvistive and rigidly applied with the result that these institution
Tetelpecn able to merve only a limited numberof detinquents. Soni
aoe teen take is excental to the good operation of these instit
cere Pe remtestvity cannot be defended, particularly wher
based on racial considerations
Tre on Tiber this Committee are of the opinion that the com-
nants thoutd af no tine luce accommodation for children who are
aan aero inatiutions of limited prozzam. No child, however
Tapeeeptatarbed o: deviciont, should be without some sultable
nine t go.
Tins 2d-1046 Buaget for the Cty of Now York ax adopted by the
‘Doan of Betimats contains the following provision which is para-
pea Gf the Preamble to the Section “Conditions Governing Poy.
fonts to Charitable Institutions”
No money shall be paid out of any appropriation made te
any charitable institution Zor the care of dependent, neglected
any clinquent children duly committed by the Commissioner of
Soo “Fave Institutions” on page 33.
m
‘Tue Prison Associastox or New Yous
Welfare or a court of appropriate jurisdiction if, after due
notice by the Commissioner of Welfare, sueb ehavitable institn.
tion shall refuse to aeeept a reasonable proportion of inmates
From any racial group because of race or color, provided that no
institution of a particular religious faith shall be required to
accept persons from any race or group other than those wha
belong to its own religious faith, What constitutes a ‘reason.
table proportion” shall be determined by the Commissioner of
Welfare on consideration of the nature and activities of the
institution in all its branches, the vacancies occurring, in. the
institution aud the need of a racial group for the type of service
rendered by the institution.”
‘This provision tas had a beneficial influence in bringing about x
broadening of institution intake policies and in stimulating recoxni
tion of a busic human issue, AM of the effects sought to be achiever
have not as yet been realized but change and improvement are
proceeding. ‘The slowness of the process of ve-edueation, essential in
giving full effect to this provision, is often irvitating. Practical
problems of institution management Ihave beew ereated ancl require
patience and intelligence in their solution if all ehildven in institw
tioual eare axe to be helped in the fashion best suited to meet thei
physical and emotional needs. Fusther progress must bo based upon
Tunderstansing and cooperation and upon a recognition that the
maintenance of sonnd standards of practice in child care is an
essential consideration
Delinquents Accepted by Institutions for Dependent-Neglected
‘The interpretation of Rule 14, of the N. ¥. State Board of Social
Welfare rales governing the reception and retention of children in
private institutions, was recently revised to permit the granting of
exceptions under cevtain specified eonditions. ‘The rule requires that
Gelingwient children be separated from others in institntional care
and has prevented private institutions from accepting all types of
children. ‘The Board now allows some private institutions to seeure
‘an exception to the rule tins enabling the same institutions to accept
Aelinquent, dependent and nogleeted children.
‘This practice has brought about « much needed measure of flexi
bility in the interpretation of these regulations, It appears to point
tovrard an nltimate program of fustitutional eave based increasingly
upon a recognition that the beliavior of children and their immediate
needs often require treatment which does not coincide with the
neveseary legal adjudications of “dependent,” “neglected,” or
‘deingmtent.'” It is to be hoped that the experinteut will be extended
and that in the treatment of these various classes of children the
distinetions which have existed will come to have # diminishing
Comerrer ox Instirunonat, Came 3
significance and will eventually be replaced by the broad concept of
the child in need of institstional care
Selection of Institution for Delinquents
Children’s Courts commit delinquents direetly to institutions
after study by the court staff. Tn eases of children committed to
private institutions, the court must first seoure the acceptance of
fie child by the institution in advance of making the commitment.
‘The task of having a ehila accepted by a private institntion often
involves delay with no assurance of an eventual aseeptance. Rejec
tion of a child by an institution creates a serious situation Zor the
court, aud Zor the child, particularly when the delay has been
protracted or when no other institutional resource but a State train-
{ng sehool is available.
Selecting the institution to whieh a child should be committed is
an important and difficult task. Tt should be based upon a study of
the needs of the child, his religion, the program of the institution,
and {he ability of the institution at a given time to accommodate a
particular kind of child requiring @ particular kind of eave. Tn
order that the placement may be made as precisely as possible, the
Study should be earried on while the child is im an institutional
etting, with # view 10 observing his reactions to institutional Tite,
his particular needs, and the ability of am available institution to
sueet therm
The study of the child by Children’s Court staff is suffeient to
enable the court to determine whether or not a child should eontimue
{o be treated in his own home or whether he seems to need eare in an
institution or foster home, apart irom his family and immediate
‘community. ‘The type of study required in order to select a partis
ilar institution or a child is another matter and ean more effec:
tively be done at a reception center for children,
“At the present time the function of the Children’s Court should
be (1) to determine whether or not a child is delinquent as alleged;
(2) to determine whether oF ot @ child ean be treated at home or
requires care outside of his home; (2) to eommit a child to an insti-
tution or otherwise por recommendation from the reception center
after appropriate sindy; (4) to provide supervision through its
probation staff for those children returned home who may need
‘eh treatment.
‘in carrying out these functions it is essential that the court be
properly staffed throughout and, particularly, that it have an
Adequate probation service both for investigation and supervision
‘The budget allowed the court should be enough to enable it to seenre
staff of suitable quality and quantity for the performance of
required services to children under eourt care.
‘Tame Prison Associarton of Naw Yorr
A Children’s Reception Center
Itis recommended that there bo established under the auspives of
the New York State Department of Social Welfare a Children's
Reception Center, or Centers, at appropriate geographical locations,
which should reseive only delinquent children remanded by the
eourts for study in anticipation of eommitment by the court: to an i=
stitution, At this eonter, or eenters, there should be complote Facil
ties for the study and observation af all children received. It should
be the funetion of the venter (1) to make a study of each child's
problem aud needs, utilizing all data and studies available whiel
ay assist; (2) to recommend to the eonrt the institntion, publie or
private, to which the child should go—commitment of the child to
the fnstitutiou would then be made by the court; (3) to revorneud
to the court, when institutional eare is uot advised, other treala
‘ag indicated such as foster boarding eare ov continued eave of the
ehild in his own home,
‘The Committee believes chat throngh the Children’s Reception
Center it will be possible to bring together the exeentive directors of
the private and public institutions caring for delinquent childzen
aud to encourage higher standards and the development of plans
which promise ever-improving and better-integrated programs of
imutitutional care than now exist for the delinquent ehild, The
exchange of ideas in these conferences should bo a stimulating
experience for all participating and should spread knowledge of
institutional facilities and make Zor greater flexibility in the utiliza
tion of such facilities. Tt is essential that the many different pro-
‘grams and practices in institutions be related and integrated im &
broad over-all program, Por example, the institutions operating on
principle of furnishing a very specialized type of care olfer
facilities quite diferent from the institutions, the intake policios and
programs of which are shaped with a view to maintaining a certain
“group climate," Also, there are institutions which are yery
“open” while othevs are ineve restrietive in their eustodial organiza
tion. ‘These various types of service need to be related, modified in
some cases, and nsed in the most effective manner possible, Simaple
and direet methods for transferring children from ono institution to
another, as their needs require and without recourse to the court
shonld be established, 1€ nécossary by the revision of existing laws
under the jurisdiction of the New York State Department of Social
Welfare,
Public and Private Care
Institutional care for delinquent ehildven under private ausp
is desirable and should be continued and extended wherever possible
on condition that a high standard of sorviee is maintained. Ade
quate public subsidies and effective smpervision by the State are
Countnrer ow Tesrrromowar, Caen
essential in fostering a program of private eave aud they should be
provided.
tate program of institutional care, supplementing private
fuse, shpat be provided wenorte tavaarte of lanen tees
it, ‘The inability of private sources or the disinterest of local offelals
to meet these needs should stimmlate State action toward promptly
finding a remedy, It seems self-evident that the responsibility of
the State for the maintenance of good order within the State places
japon it this obligation,
‘The members of the Committee vall attention ta the great need
which exists for etter coorrlination of services between State and.
private institutions, At present, overselectivity on the part of
private institutions las tended to foree State schools into the unen-
viable position of “enteh-all”” for the very diffleult delinquents, who
are not easily handled, and has ereated for the private institutions
function s0 narrow as to unduly restrict their social usefulness. A
sound program for public and private institutions requires that the
Tato acer a wide wariety of eases han they have accepted ore
tofore and strive constantly to improve the quality of their services
‘The Committee suggests that the Department of Social Welfare, ky
systematic and regular contact with private institutions, make every
effort to enlist their eooperation to this end.
Size and Staff of Institutions
‘The lange size of some institutions roilitates against their useful:
ness. It would appear that smaller institutions for socially mnalad
justed children of a capseity of 150 to 200 are preferable to the
larger institutions
Creation of smaller institutions should not, however, be made an
exouse for decreasing salaries and operating expenses in relation to
those provided for larger institutions. "The directors, supervisory
personnel, and other staf required in smaller institutions need to
he just at competent as those in larger institutions and salavies
shonid be relatod to comparable skills, experience and responsibility
Within the oxganization,
‘Adequate salaries and living conditions ave essential for all stall
members in institutions if qualified people are to be seenred and
retained, These conditions have not applied generally im the past
‘with the result that the care provided by the institntions has often
suflered, In State institutions, the budget granted should be suff
Cent to enable the institutions to employ a thoroughly qualified stat
fand to earry on a program of esre up to the highest standards. In
private justitutions exattly the same considerations and standards
should apply.
‘Tue Prisow Assocrarton oF New Yor
After-Care
Responsibility for the supervision of a child returned home at
present rests With the institution from which the ehild is paroled.
It is suggested, however, that eaxe-working agencies in the com
munity, to which the ehild returns, be used whenever possible in
situations where the services of these agencies seem appropriate
Such ageneies can work effectively in numerons cases. When parole
expires and a ease is closed, the after-eave worker shonld endeavor ta
secure help from a community ease-wouking agency if help is still
needed.
Case Toads of after-eare workers have heen far too high and, in
many instances, have made impossible really careful work of super
vision. Aftereare work requires competent staff, familiar with
institution practiees and trained in individnal case work methods.
Inereased recognition of the importance of these factors should
produce marked improvement in after-care work,
Hostels
‘Small residences of this type can be an invaluable aid in facilitat
ing the return of children to the eommunity after their release from
fan institution, Some children, ready for release, have no homes to
whieh they can return or their homes axe so unsatisfactory ax to
bbe wholly unsuitable for their care. In these eases, there is often
considerable delay in getting the child ott of an institution heeause
fan acceptable place for him to live in the community is not readily
available. In other eases children are unable to make the adjustment
fat home when institutional controls are abruptly ended, A more
radial elimination of controls is necessary i the transition from
institution to home is to he snecessfnlly achieved by thera. Hostels
eau furnish an important aud esvential service for sneh childzen in
process of returning to normal community life
‘The Committee recommends that hostels be developed ; that they
be small, acoommodating 12 to 15 children; that they be equipped
to provide care suitable to the needs of those placed in them. ‘The
organization and operation of hostels should furnish a challenge to
‘esponsible private groups interested in experimenting with and
Aeveloping this newer and mnich needed server.
Payments for Delinguents—A State and Local Responsibility
‘At present the State pays the full cost of maintaining all dein
‘quent children committed to State institutions; the City pays a fixed
sum per child, as annually appropriated in tho City Budget, for
each delinguent child committed to a private institution, without
reimbursement by the State, ‘The sum paid by the City is far below
‘the cost of maintenance training and the difference has to be raised
Commerrens on INsrrrunoxat. Cane n
by financial appeals on the part of the private institutions. ‘This
division of financial responsibility on the basis of the type of iustite:
tion, whether publie or private, is unsound and militates against the
development of a well-intexrated program of eave for these children.
The Committee strongly recommends that grants-in-aid be paid
by the State to the City er County on a per vapita basis for children
committed as delinquents. Under this plan, all ehilden committed
fy delinquents would be paid for by the City whether the children
fire sent fo.a Stato or a private institution. ‘The City would be’ reli:
bursed for a fixed share of the total cost of eare and should meet the
Dalance of the cost itself, ‘The features of the current poliey whieh,
in effect, discriminate against one type of institution in favor of
another would be eliminated; « more equitable and a more earefully
planned use of all institutional facilities would be made possible:
focal interest and responsibility would be stimulated and the danger
of children committed being “Mforgotten’” in the mass of a large
State program would be redaved to the minimum financial relie®
‘vould be provided to local communities unable in the past to moet
the needs of children because of inadequate Snancial resources;
ually, private institutions would be more likely to reeeive an ade-
{mate allowance which wonld go far in assuring their eontinuanee
and make them more fully effective
Summary of Reeommendations
Intake Policies
Soue selection at intake is essential to the good operation of insti
sutions for juvenile delingnents but over-seleetivity camot be
defended particularly whew based on racial considerations,
‘The community should at no time lack aceommodation for children
who are unacceptable to institutions of limited program. No ehild,
however difficult, disturbed or deficient, should be without some
suitable place to go.
Delinquents Accepted by Institutions fur Dependent-Neglected
tin to be hoped that the practice of aecepting some delinquents in
institutions for dependent-neglected ebjldren will be extended and
nat in the treatment of these various classes of children the distine
tous which hue existed will come to have n diminishing significance
and will eventnally be replaced by the broad concept of the ehild in
need of institutional care.
Selection of Institution for Delinquents
This should be based upon a study of the needs of the child, his
religion, the program of the institution and the abi
8B ‘Tere Prisow Assoctamon or Naw Yorit
tion at a given time to acoommodate a pertioular kind of child
requiring a particnlar kind of care. ‘The study should be earvied on
ie he cla ean atti! wtng wil viet oberg
his reactions to institutional life. ‘The type of study required i
‘onder that the placement of the child may be made as precisely as
possible should he made at a reception center.
A Children’s Reception Center
It iy recommended that there be established sunday the auspiees of
the New York State Department of Social Welfare a
Reception Center, or centers, at appeomiate geoisraphival locations,
whieh should receive only delinquent chiki Y
courts for sindy in anticipation of commitment by the court to an
instimntion
Itshoutd be the function of the center (1) to make a stady of ench
child’s problem and needs, utilizing all data and studies available
which may assist; (2) to recommend to the court the institution,
Dublic or private, to which the child should go—commitment, of the
child to the institution would then be made by the courts (2) t0
recommend to the court, when institutional eare is not advised, other
treatment as indicated such as foster care or continued care of the
chile in his own home.
‘The Committee believes that through the Childven's Reception
Center it will be possible to bring together the executive direstors of
the private and public institutions earing for delinguent ehildren
and to encourage higher standards and the development of plans
whieh promise ever-improving and better-intexrated progvams of
institutional care than now exist for the delinquent ehild, ‘The mang
ifferent programs and practices in institutions need to be related
and integrated in a broad over-all program.
Simple and direct methods for transferring children from one
institution to another, as their needs require and without re
course to the court, should be established, if necessary by the
revision of existing Jaws, under the jurisdiction of ‘the New
York State Department of Soeial Welfare,
Public and Private Care
Institutional eare for delinquent childzen under private aus.
pices is desirable and should be continued and extended wherever
possible on condition that a high standard of service is maintained.
Adequate public subsidies und effective supervision by the State
are essential in fostering a program of private care and they
should be provided
A State progran of institutional care, supplementing private
facilities, should Wided whenever’ the needs of children
Comnenes ow IvemirunoxaL Care i)
yoquire it. ‘The inability of private sources or the disinterest, of
local officials to meet these needs should stimalate State action
toward promptly finding a romedy. Tt seems self-evident that
the responsibility of the State for the maintenanee of good order
within the State places upon it this obligation
‘A sound program for puitie and private institutions requires
that the latter accept a wider variety of easea than they bave
accepted heretofore and strive constantly to improve the quality
fof their services. ‘The Committee suggests that the Department
of Social Welfare, by systematic and regular contact with private
stitutions, endeavor to enlist their enoperation to this end.
Sie and Staff of Institutions
Tt would appear that institutions for socially maladjusted
children of a capacity of 150 to 200 are preferabie to the larger
Institutions.
‘Creation of smaller institutions should not be made an excuse
for decreasing salaries and operating expenses in relation to
those provided for larger institutions, Adequate salaries and
living conditions are essential for all staff members in institutions
if qualified people are to be secured end retained.
After-Care
Responsibility for after-csre of a child returned home at
present rests with the institution from which the ebild is paroled.
It is suggested that case-working agenoies in the community, to
which the child returns, he used whenever possible in situations
‘whore the services of those ageneies seen appropriate,
Case loads of after-care workers have been far t20 high and, in
mary instances, have made impossible really careful work of
supervision, Aftercare work requires competent. staff, familiar
with institution practices and trained in individual ease work
methods.
Hostel
The Committee recommends that hostels be developed ; that they
be small, accommodating 12 to 15 children; that they be eqnipped
to provide care suitable to the needs of those placed m them, ‘The
organization and operation of hostels should furnish a challenge
to rosponsible private groups interested in experimenting with
and developing this newer and much needed service,
Payments for Delinguents—A State and Loeal Responsibility
‘The Committes strongly recommends that grants-in-aid be paid
by the State to the City or County on a por capita basis for thil
80 ‘Tue: Puisox Assooraniox of New Yous
dren committed as delinquents. Under this plan, all ehildren
committed as delinquents would be paid for hy the’ City whether
the children ave sent to a State or private institution. The City
would be reimbursed for a fixed share of the total cost of care
should meet the balance of the cost itself
COMMITTEE ON INSTITUTIONAL CARE OF JUVENILE
DELINQUENTS AND YOUTHFUL OFFENDERS
@. Howzanp SHAW, Chairman
Bas, Swnzy C. Bore
Howey K, Carn
Fexpenie W, Eexen
Laosano V, Hansson
De. Fras J. O'Baws
‘Toray N. Pesoven
APPENDIX
Jngiomtions Granted Exceptions to Rule 14 of the N. Y; State
‘e Rules Governing the Rece
‘and’ Retention of Inmates in Private’ Insitutions
November, 1945
A.lnslitutions for Dependent-Negleeted Accepting Some Detin-
quents
1. Convent of the Sisters of Merey, Angel Guardian Home
for Little Children (unmarried mothers)
2 Children's Aid Society of New York, Brace Memorial
Farm,
8. Brooklyn Children’s Aid Society, Harriman Farm School
4 Dominican Convent of Our Lady of the Rosary, Holy
Rosary Convent. .
5, Dominionn Convent of Our Lady of the Ronaiy, St. Agnes
Conv.
Little Fiower House of Providence
Mission of the Immaculate Virgin,
Jewish Child Care Association, Pleasantville Cottage
Sebool
9. Riverdale Children’s Association,
10. Roman Catholic Oxphan Asylum, St. John’s Home for
Boys.
Roman Catholie Orphan Asylum, St. Joseph's Female
Orphan Asylum, .
Institutions for Delinquents Accepting Some Dependent.
Neglected Children
1. Children’s Village
2 Children’s Aid Society, Wallkill River Cottage (closed at
present)
dewish Board of Guardians, Hawthorne-Cedar Knolls
School,
4, St, Germaine’s Home,
5, Wiltwyek School for Boys.
(Data furnished by the New York State Depat
Welfare.)
INJUSTICE IN THE COURTROOM*
By Francis Brooux
Attorney General of the United States
Before the war we had a daily average of 30 murders and
over 700 rapos and robberies. Crime will increase uness
we stop revenging ourselves on criniinals and start the
job of ewring tron:
Joseph Smith was a taxi driver who, while on WPA, stole from
an apartment honse mailbox some letters containing $1,000 in
cheeks. He was eauglit by postal inspectors and pleaded guilty.
‘An older sccomplice was tried with him and sentenced to five
years. Smith, a first offender, was sentenced to Sfteen years
Stunned, he exclaimed to the judue, “I hope you're here when
T get out.” ‘The judge called ‘him hack and raised the sentence
to twenty years
This sort of thing obvionsly does not square with the motto
earved abave the entranee to the Supreme Court of the United
States: ‘Equal Justice Under Law.”” Tt illustrates a basic short-
coming in our bandling of offenders, and it fosters erime.
‘As the Cabinet member in charge of the Department of Justice
Iam responsible for the Federal Bureau of Investigation, which
apprehends law violators, and the Federal Bureau of Prisons,
Which looks after them,
‘Thos a large part of my Dusiness is concomed with exime
Just now it is urgent that we prepare for what has been the in
fvitable aftermath of every war: a widespread resungence of
criminal activity, What makes the task doubly important is the
fact that some of the fighting men to whom we owe so muck wil
be involved. After you have killed Japs and Germans and seen
them Kill your buddies, you eamnot come back unchanged. Some
fof the men who have lived for months under the incredible
strains of battle, who have dealt daily in death, will not adjust
easily to the hnmdram pace of efvilian living. |Add to allthis
the dislocations and upheavals that have taken place on the home
front, and the outlook becomes seriows,
A. Crime Wave After the War?
But I have faith in the good sonse of the American people
to believe that a largeecale postyar grime wave ia not nocawarlly
inevitable,” Hf se salve the base problem of providing jobs after
‘Reprint from Collier's, May 19, 1945; soe Recommendation Von ‘page
5 ante Sentencing Brncen™ a age 24,
Insuemien 1x Taz Coumtodx 83
the wars if the returning veteran is aided over his diffieult: read.
ustment period, by understanding, by neeessary schooling for
how work, Dy loans to bay a farm or a gas station; if the purposes
lint aims of the C. 1, Bill of Rights are realized; and if we plan
bots recouversion intelligently, we can go a long way toward
avoiding a erime epiden
‘But even if we are resourceful enough to forestall war-brought
lawlessness, we shall still have on our hands the rising tide of
peacetime erime in Antevica. Por erime has been increasmg
Madly, and we haven't yet learned how to cope with it, Be
ree 1920 and 1940, the number of persons convieted increased.
Siveral times faster ‘than the growth in popu
York State back in 1020, only one of every 15
afoul of the law and was committed to a penal institution,
1940, however, it was one out of 740 persons. Any normal day,
hefore the war, was mathematically certain to find 20 persons
nuedered, 27 raped and 729 robbed. Fach year 980,000 persons
wvere committed to our prisons and jails.
“AU this, argues that something is wrong with the way we
jandle ¢rime and criminals, But there is no single answer. 1
do not suggest that I have any expert or unustal knowledge
to bring to bear. Like most people who have studied the matter,
T’ lave come to the conclusion that it must be attacked from
any angles, We must, of course, wipe out those bad economic
fand social conditions which breed exime, We must have better
housing, better schools, more reereational opportunities and a
strengiltening of the sense of moral responsibility in the home and
in the community.
Progress toward these will be made slowly. But there is
something whieh we ean do now. We can change our methods
of treating offenders. No one who has visited a penal institution
fand talked to judges, wardens, parole officers and the offenders
hemselves (as'I have done frequently during these last three
or fone years) ean fail to be conscious of confusion in the way
wwe handle offenders. here are several ways this confusion ean
he eliminated,
We must, as a first step, reviso and modernize our system of
sentencing, A few eases will indicate why
‘Three youths of seventeen hired a taxi, robbed the driver
of about $8 after placing a soda-pop bottle against his back.
‘They then tied him up, crossed a state line, and after spending
the wight in the woods with the driver, returned his cab and
ome of the money to Rian, Arrested Jater, they were sentenced
fo thirty years. in the Bl Reno (Oklahoma) reformatory, for
technical violation of the Lindberg kidnapping Inw. ‘he’ sen-
fence was Tater vedueed to Steen years. I have recommended
that @ fuxther reduetion be made.
8 ‘Tne Prisox Association of Naw York
In contrast, Bill 25, a repeater who had already served
4 sentence for automobile theft, Mduapped a taal dene Seehed
‘im, and Tet him bound and gagged on the bank of 4 eeeale ve
as given only eight years. Dy a" diferent cont
In the recent uprising at the Atlanta peultentiry, some pris
uers Barvicaded thenuselves in a wing and! threatened te Mit te
four offcers whom they’ were holding as hostages, illo thes
demands wore mel. One of the leadeis was a tana witha it
Joug record of serious crimes, who was wanted in another state fe
armed robbery, and in sill another for musder “Iie ae ee
a sentence of only two sears in Adanta for sealing and toe
Porting securities valved at $100,000!
sentencing system. ‘They are lack of unilormily: which orton
4 sense of unegnal justice, failure to coordinate sentencing eat
sien with the prison program, parole and probation, hasesapeG
‘formation inthe hada of the judge ef the time of water ea
articularly, sentencing for the offense rather’ than Tor the we
Fender.
provedures is Tong overdue, Now, on the eve of the sete ot
aillions of young soldiers, sonie of whom will simply tieeugh
the aperation of the law af averages, brush with the aor ake
Inodernizing becomes a 'ninst-” “We face’ the chose ives
these and other offenders ‘vith understaning ‘Cebich
leans eliminating. their indidual ‘exime. impulse). Swit te
tools that sionce and’ the increased knowledge uf men’ tend
and emotional procenen lave given us; oF pteishing tren ete
old, blind, haphazard ‘wey
courts. The moonshiner in Northern Alabama is peactiealty Son
tain to get tivo sears or more; in soutlionn Alabama he is hat oe
tain toget of with afew mouths. The several hundred Teak athens
aud seamen who were convicted of wabotage autly in she went
had all comuitted the same crime, but some got if with’ en
nouths while others who were tried before different judkes ees
fenteneed 10 three yearsi"In soine Instances, acainon Sto Wed
aera followed theit offers’ onlers got five sears while te Cat
For veats judges have complained of oar present seutensing
‘methods, by which they seldon have any extemive kneeled of
the individual prisoner. “Tt is all slopdaah methed” 6 Beng
solvania judge! once said me.” *"Three months, six wonths he
yours. Tis often a gues, a coin toss, acting on a facet” ae
have no thorough unilersanding. of the eflendes, bis problons
suentality, ennonment; and this is‘true even whe preseutoncog
Ixaustion ne THe Cousot 85
investigations are made. ‘These, of course, are helpful, but not
THethe punishinont ix to 6t the criminal as well as the crime,
tie judge needs help and needs it badly. IF out senteneing pro
ce HK antiqnated,s0 lsd one general handling of the: pris
one, despite advances ii payelatsy, suedisine and. eociology.
he meanaring sifc, of course, iy tho-offender's bd
release Does the term he has served ater hit
Crime? Has he been rehabilitated, provided with a job skill and
fitted to become a nseful citizen? "Iles he been peepared to hold
‘Memaured by these stundards, our system fils badly. Ror itis
a. mathematical certainty thet’ one of every” two men” who, serve
tine in our prisocs. will got into trouble when feed” and’ wil
"The Criminofogints have a word for it: Resiivit, In the Bast
con Penitentiary, near Philadelphia, two of every three prisoners
the ‘two-time towers” In some ‘New York prsony seven of
tery ten have served time more than once. In Louisiana, cight
of every tem
This state of affairs led my friend, Geonte Wharton Popper,
eenident of the American Law Bnsitute, to testy, lt is arrest.
We is tral, Jt te convietion. Ut punishment. Tt is imprison
ent Te in veleae Te aera
et os nacleeses nll ceric oi Giles en tad
ied. He mst expiats his sin with am equal amoant of sifer
hig—an eye for nn eye and a tooth for a tooth. The “honest
thieves” ofa. hlf’ century ago—oullaws, counterfeiters, and
fthers-who ctase to ott federal prisous sonia have been startled
atthe madieal idee that their sentence was for any other purpote
fan punishment.” They served their Gime and went out as they
liad. gone’ i~felons, "Their discharge was a receipt for the
prnalty they had paid, ‘ley vwere free to break the’ law again
Criminals Must Be Cured
We have been slow to learn that making the criminal pay for
his crime does not seem to keep him rom repeating i, Crim.
inologsis now agree fhat the criminal must be ented: rather than
mmorely ponithed-—not Breau. we ove him anything, Bit beeause
wre owe ocety something. If you dont robablitate him, hel
Cane’ more misciet when e's Free
Brery day cox offenders and other psychopaths are sentenced
for some relatively minor offase, sent to Jal for bref sentences,
then freed to repett their offenses over aod over again, sometimes
Srriting nie to the story with murder. By and large, no attempt
86 Tux Prion Associamon of New York
i made fo erent purely perches of ering and, by
coring them, prevent tirtherffeuscs, ‘This parteatas ype
crime’ can be imeligently cell with oaly ner yatem whice
tilows for abetreation aid examination by payehiatrins sed tier
expers, and makes chet ndings available to. the, seutonsieg
Sedge.
We urgently need such a system not only for this, but for ail
types of eriminaty. Our judgen mast have the benef of vies
find asian from competent board of experts en the faa
idual problem presented by the offender. We aloo eed a peo
fram for treating the offender, and detaining hin not ashlee
for ene or ftcen year, bute long adit hecenney to Bt ine
rohan to stot
Legislation embodying such reforms hes already boon into
duced n-Congress by: Senator Harley M. Kilgore: of, Weat Ye
Eni, and. Representative Francis H Waller of’ Pransslvania
Knowm as the Federal Corrections act, it Tas, the basking, of
ges. (including. the. Chief Justice of the Supreme: Cont
Bris vardous, br esocitions and’ paral oflcos
Under the bill the cone. would rererve Anal sentencing tn
six months after the offonder had’ been found “gully, Hees
Sout the vay Te would work
“Joa White age 25 has been convicted, with others in a gang,
of robbing federal bank."He bad only @ minor part, but the
offense calls fora jit term of up to 25 years. "The fuge deca
thae dob must go to prison, 20 he gives ima. gonstal sentence
but reserves nal determination foreate month
‘John White is ‘then remanded fo the nearest sorretiual ins
tation, which happens tobe in. ‘Chilieathe, Oboe There the
rjehlatsint, Aton, a slerzyman, a vocutfonl traning, exper
Sit the warden of the priv stay: him. ‘hey probe his faces
feckyrovnd, cberrer his acon sed windy Mi eet” thse to
presribe treatment mick ns a physician would preseribe madieine
foran ilnese—medieal etre, perhape a hers to be optentel tae
an teth to be Sued pareiatrie treatment to ton oul monteses
Scenpatioual training at a reformutory a8 soon an White
Sahieied to iy aay aaveonent
Al of the facts on the prisoner's personality, is attitude and
beliavior, are then Teported to the Baaed of Corettions. wich
the act establsien, "hi board, made np of lawgers, crimote
gfats and others siled in understanding human Behavior, mae
Mile has heen, gathering’ information conceming. the, circum
Sianows of Jolin's ofenae, geting the opinion ofthe polis, the
Prosecuting attorney, otn's telghbore, "One ore of the
Board! menters then give John hearing t0 gee his site of tee
Slory and to size linn generally.” Finally tree members of the
Esguetior mun Coviimooss st
board go over the ease with fhe judge and seommend the sen-
tence that. ey deom appropriate.
‘The judge. can confit or reject the recommendation of the
toard ot he plete, "And this fe as it should bo. ‘For the federal
fuadgeteanicd, experienced and. fair—should) make. the. final
iictslon, The’ Bill does not propose jo change. tbat ultimate
sponsibility. But it gives the judge ak-opportanity to act nat
Tr bompereiive ignorance, bur witt all the pertinent formation
Tefore him, “This is parietariy important fn canes here a plea
of guilty has been catered, and the judge has uot beard the mi:
hoses or the prisoner, on the stat, And about 89% of all
persons indicted in federal courts plead gully
Syotem for Young First Offenders
TE tho offender is under 2 the proposed lay gives the jadge
ihe prerogative of turing iin dvor t0.a” Youth Comettons
‘hutionity which would giv him the kind of treatment it tong
whos edeetive, "The Antioviyy a division of the Board of Cor-
rovtion could send hin to prison ad later release bite when the
time wee right, could put him ta a mental Bospital or vocational
tool, or could place him in some industry. esntially fi
{ten for young fst efentery and it would employ whatever
Tfentment would work best forthe offender
‘AT of these experimental methods would, of course, be applied
uly after the young offender had. been subjected to. an ‘initial
Denod in an institution and after bie case had been thorougHly
Siidied by experienced officials in eflecs the court would not
try to dingiooe the caso at the tine of tial but would turn the
ang man over to the, Youth Corrections Authority, jast as it
Counts a mental defective 40 a hospital
‘The choice of age 24 as the limit. for the youth offender
group in significant’ Peycholognts and psychiatrists have found
fat, generally speaking, this age represents nal arrival at phy
tea, fteletual and emotional atari. Before thea, doles
tone, with ter etherdantreslen instability, hap not ended; and
the agen between 16 and 20 are the focal oaee of rime infection.
Tops and gisisin this group eowprse only 18% ofthe popdlation,
hut they are ranponsibi for 269% of all rpbories, 40% of all bare
flaies, 50% ofall car thefts Prom this ron come the Bull of our
Sifeadere, Nineteen year-olds couse nest. Crier hy. youthful
Offenders ave increasing st a shocking raie. Bnd it mast not be
forgotten tat our returning Sighting men ave lngely im the 8-0:24
group, and if they brosh with the law, they deserve the best under-
Fiandiag and selontie treatownt of yar born malagjustments that
we ean provide
‘any tafe have gone a Tong distance slong the way proposed by
this law, bot few hee yot achieved such broad and ecienibe trent
88 ‘Tae Prisons Assocretion of New York
ment methods, Nor have they obtained the teamwork between
prosecutor, judge, prison warden and pavoling authority, whiel is
vital in salvaging’the offender. Some thirty-nine states have some
form of indetorminate-sentence law, wnvler which the cont merely
sets the minimam and maximum limits, anda bowed determines jst
hhow much time the prisoyer wil serve. In many OF these states, the
boards have much wider diseretion than is here sugzested for the
federal system. But. United States courts have been tied down to
much more rigid system of defined sentencing provedures,
California is one of the states whieh has zone muich farther than
the federal government in modernizing its machinery of criminal
justice. Some time ago, it instituted a fully-indsterminated se
tencing system whereby the court merely passed on the question of
guilt or innocence. ‘The exaet amount of tinie to be served was deter:
mined by a special board. In 194, California made this system
really effective by centralizing senteneing, prison and parole
administration
‘The California program includes special boards or “authorities,”
to handle the problem of sentencing both adolescent and adult
offenders. The act provides machinery for eavefal study of every
convicted offender and for the use of this information in determin:
ing the length of sentence, where it should be served and what
training and treatment the prisoner should receive while in prison
‘There is indeed nothing radieal or even novel in the reforms T
hhave sketched here. As far back as @ century ago, lawyers, crim
inologists and others who really: understood the problem suggested
that judges ought to have nothing at all todo with sentenei
offenders. ‘They urged that the committing jucae's eonnection with
the case shonid cease when the defendant was found gnilty.. ‘The
offender would then be turned over to the detention place, where a
board of experts would study him and proseribe the length of time
and the course of treatment needed to este him,
In England, Parliament has made part of the eentury-ol@ plan a
practical reality. The Borstal plan segregates youths from older
offenders and trains them to make a living when freed.
‘The British Prison Commission yeported hefore the war that only
89 of England’s adult prison population were “Borstal. boys,”!
youths who had graduated from Borstal training. Here in America,
although various states havo undertaken special reform measures
for youths, the shadowy outline of a juvenile delinquent is behind a
very large proportion of adult offenders
And yet progress has heen made in the United States toward
{treating and curing the eriminal rather than merely punishing him.
Under the wise leadership of James V, Bennett, director of the
Federal Bureau of Prisons, the grim, traditional bastille, the old.
Aine human storage warehouse, is giving way to specialized detention
enters tailored to the particular offender's needs.
Ingustice mv ne CouRTRooM
. Plan of Diminishing Restraints
At Danbury, Connecticut, for example, a federal correetional
institution, completed in 1940 at $2,000,000 cost, has a unique pro
gram of handling the prisoner. From the day he enters, the
offender becomes subject to a plan of diminishing supervision. He
vill beyin with a strong steel cell and, on good behavior, will gradu-
ste to a dormitory. Ultimately, he may be permitted to live in one of
Danbury’s “honor rooms” with doors unlocked, windows wibarred,
Prisoners who don’t behave get the usual inside cells, Danbury has
‘a well-stocked library, a school, a full eurriculum of eorrespondenee
courses. Its vooutional facilities inelide paint, sheetmetal, plumb:
ing and othr trade shops, now almost standard equipment in most
federal priv, Ttalso provides training in farming, dairying and
animal husbandey
"Then there's the reformatory at Chilligathe, Ohio, which
ines in resocializiny men between 17 and 30, “To Jim Bennett and
tne, it a prison in name and form only. We think of it as 2 school
that graduates useful youry men. The proudest of the men Chilli-
cothe turns out are the airplane mechanies, for Chilli
‘only penal school for airplane mechan dl
aerodynamics, theory of flight, mathematics; and the men I
honor dormitories while they are students.
‘At the other end of the seale from Danbury and Chillieothe is
Aleatvaz, the grim ‘Rock’? set. in San Francisco Bay overlooking,
the Golden Gate and the Pacific. Tt is not a pleasant place, and yot
it is no Devil’ Istana.
Alcatraz has a library of 10,000 books, occasional moving pictures,
sofiball teams and other ways of easing the atrophying effects of
monotony and testing the ability of the prisoner to get along with
others and demonstrate a changed attitude, For good behavior,
men can win the reward of transfer to other less security-minded
inatitutions,
But whether the prisoner is in Danbury, Chillicothe or Aleatrar,
the essential point to be determined is how much and what kind of
treatment he needs to reform him.
What yood is it for the doetor, the psychologist, the social worker,
to make a thorough study of a young offender and preseribe treat
ment when the offender has been sentenced to serve a fixed term and
must serve time long after he is ready to retarn to society? Not
that the sentences are necessarily always too long. Very often
sentenves are too short and are inadequate to make possible the
rehabilitation of the offender who may require several years of
custody and supervision rather than a briefer term applied without
reference to his backyround or environment, ‘The men who admin:
ister correctional treatment to federal prisoners and who have no
control over the length of the seutenees find themselves in the
90 ‘Tue Prisox Associaston of New York
position of a doctor who is not permitted to decide when a eure kas
been eifecte
‘The theory that the punishment must fit the erime must ulti
mately give way to the more humane and eilective theory that the
punishment mist it the eviminal. ‘The indeterminate sentence,
Segregation and treatment of prisoners as contemplated in the
Corrections Authority Bill will take us a long way on that road.
‘MILITARY JUSTICE*
By Tie Hoxosanue Rosewr P. Pavers
United States Secretary of War
tis a pleasure for me to be present at the annual dinner of the
Congrese of Correction, particularly to express iny appreciation of
the assistance the Army has reeeived from the eorreetional field and
from individual members of your profession in handling one of
oar most difficult problems. Wher the Army found itself faced
with a steadily inereasing prison problem, those of us who had to
concern ourselves with military justiee did what we eould te become
penologists over night
We tmned to some of the leaders in your fleld and enlisted their
serviees on a Board of Consultants which has helped us greatly in
the determination of sound policies. I say candidly that their aid
has been of inestimable value to the Army in this work.
In the development and operation of outr installations, programs
of training, and clemency pracedures, we have accepted and followed
: articularly the prin.
ciple that every offender and treated as an
Individual, We have used standard elassifeation procedures and.
have utilized professionally trained personnel in our institutions
and in the processing of clemency eases. We believe that our pro:
‘gram of reliabilitation will stand your professional serating, Per
haps the best way for me to convinee you of that fact: is to tell you
what the Army's problem has been and how we have tried to solve it,
I
‘What I have to say tonight is concerned chiefly with our program
of rehabilitation and restoration to duty and our release proce-
dures, T'do not want you to forget, however, the safeguards whiel
ave thrown around the rights of the individual in our court-martial
system, He has all the rights of a defendant in a United States
Distriet Court and some additional ones. He is not recommended
Sor a general court-martial until after a formal investigation at
whieh he as a right to question witnesses himself o through coun:
sil. At the trial he is represented by military eonnsel or ean employ
‘civilian lawyer. ‘The “law member” of the eourt is also respor
sible for safeguarding his rights throughout the trial. If he is
convicted, appeal is nutomatie. The stall judge advocate checks the
record, reviews the evidence, and on the basis of his Sndings the
+See “TSth Annual Congress of Correction” on page 41
on
92 ‘Tue Paisos Assootarton op Naw Yous
reviewing authority confirms, reduces, or sets aside the sentence
The eae then goes to the Judge Advocate General's Oflie, or to its
representative overseas, and is carefully reviewed. Finally, if the
‘man is sent to a disciplinary barracks or federal institution his ease
4s reviewed by the Office of the Under Secretary of War within six
months and annually thereafter
u
‘The mumber of general court-martial prisoners in confinement in
this country and overseas when Japan sitrrendered was 38,500. OF
these, 18,500 were in disciplinary barracks, 6,000 in rehabilitation
centers, 2,700 in Federal iustitutions, 900 in guardhouses in this
country awaitiug transfer to disciplinary barracks or rehabilitation
feenters, and 10,500 overneas, largely in disciplinary taining eenters
where they still had an opportunity for restaration to duty.
Tn addition to those ot karsd at the cid of active hostilities, we
al restored to duty 17,000 men in this country and another
4,000 overseas, and haa given meslioal discharges or other types of
release to another 6,000 men. ‘The total mmuber of general prisoners
‘we have hanced is therefore elose to 60,000, This isa large number
Dut itis the grist of over three yours of war aud of the largest Army
‘the United States has ever had.
"The size of our military prison population is not abuormal, when
‘one considers all the facts, Sinee the Selective Serviee Act was passed
{in 1940, 10,000,000 men have joined the Army and its strength at
the end of Hostilities was 8,000,000 men. ‘The total intalke of 60,000)
general prisoners is only 2 little more than half of one per cent of
the men Who passed through the Army, and the total in eonfnement
on VJ Day was less than half of one per eent of the strength of
the Army. Over 4,000,000 American soldiers served in the Fiuro
pean Theater of Operations from January, 1942, when the first
Americas troops aesived overseas, until V-E Day. "OF this number
10,280—Iess than one in every 100-—were sentenced to confine
Tiont by general constemnartial, Phin record isa tribute to the men
who lave gone throtizh the greatest military campaign in history
Tt is evidence not only of their fine training and leadership, bu!
also of the fact that almost all of our boys served faithfully’ and
maintained an honorable status,
Aside from the size of the Army from which our general prisoners
came, it is not to be wondered that a relatively small aumber of
Americen soldiers got into enough trouble to warrant trial by gen-
eral court-martial. They fall in the age group, 18 to 40, which
contributes 80 percent of the eivilian felony eonvietions in this
country in time of peace. A lange part of them are in their late
toons and early twenties, the aye bracket that leads all others in
ian offenses, as you know. As a matter of fact, the total nam.
‘Murrary Jusnioe 93
wwe of 60,000 general prisoners xeosived in our military prison
installations in the past four years is just about equal to ane year's
intake of felony convietions alone in our State and Federal prisons
iu uormal times
‘Our armed forees served sll over the world, Country boys who
bad never been more than a few miles from home before went to
sections of the globe of which they had never heard before this war
began. ‘The Army erossed the International Date Line so often that
‘any a man had two Mondays or Fridays a week, although nobody
ever got two paydays in secession, We bad men in the polar
regions and in steaming hat jumgles, in the capitals of Europe and
on lonely atolls in the Pacific
Many’ of these men suffered new privations, felt new pressures,
tensions and temptations. ‘They wore living a rough and a violent
lite, Tt is not remarleble that men under these conditions, Jacking:
the steadying influence of their homes and communities, did foolish
and veokless Uhings, and that others did brutal and. vicious things.
In this latter group were some who would undoubtedly have fol-
jowed a criminal pattern of life if they had never entered the Army.
It is only fair to say, however, that there is no evidence that men
who lad eivil eonvietions as adults on their records before they were
indueted got into trouble in large numbers in the Army; the only
cvidenee that has appeared clearly so far on that point is that a
large proportion of our general prisouers have records of juvenile
‘lelingueney.
mr
Our general court-martial eases cover a great range and variety ;
every type of offense from AWOL to murder and rape, committed
by ull types of men under all conditions and eireamstanees, ‘There
are mountain: boys who went AWOL from homesickness, men who
overstayed 2 furlough and were afraid to come back, gang-plank
Snmpers, and deliberave deserters from the Anzio Beaehthead and
critionl points in the Battle of the Bnlge, ‘There are men convicted
of misconduct in the fave of the enemy who are admitted cowards,
and others who eraeked up after good combat vecords. ‘There are
sotng officers who passed bad checks, and black market operators
With elaborate schemes aud large profits. There are manslaughters
resulting from knife fights over erap games, and cold-blooded mur
ders, There are cases of rape committed in every theater of war.
There ave mutiny eases and disloyalty eases.
‘Taking it by and large, however, the Army was suxprisingly well
hehaved, its discipline was good, its morale high. If you eould
nareh the whole Army by a zeviewing stand and had to pull out
only one soldier to try by general court-martial af every 200 men
that passed, you might have a very imposing group of general
prisoners when you got through; but a tremendous mumber of men
ot ‘Tue Prison Associamon or Naw York
with clear records wonld have passed by. If you subtract from
those you pulled out and tried, the 25,000 men, virtually the strength
of two infantry divisions, who have been restored to duty or are
to be, the remainder would look even smaller in comparison with
the 10,000,000 men who saw service in the Army.
‘There was a time, however, when we found it diffleult to think
in terms of the relative smallness of the load. Now, when we feel
that the peak of our prison Jond has passed, we ean view the
wre philosophically than we did in the days when the
keeping pace roughly with the growth
‘was Taounting fast. We not only had a very large
jrigoners (o handle but were in @ niost unustial aud un
comfortable situation, from the prison standpoint: our intake was
Steadily rising and there was not much in the way of outgo, We
had to open a new 2,000-man installation in this country every
four months, find commissioned aud enlisted personnel to operate it.
‘in them in a type of duty most of them ad never performed
before, and develop practical and proper procedures trom the
ground up. When we reached our peak, we had enough prisoners
{fil all the institutions in the Federal prison system, with enough
left over fo fill all the New York institutions from Sing Sing 10
Dannemora, ‘The Amy was in ‘the prison business,”” whether it
wanted to be or not,
Iv
the end of 1942 we were embarked ona well-planned program
desigued to restore as many general prisoners to duty’ as possible
in the shortest practicable time, ‘The basis of this policy has bee
a mixture of hardsheadednest and soft-heartedness. ‘There was the
Inanpewer problem, Every available man would be needed before
the wet was Won, aid we haa no intention of letting restorable neu
zo to waste in confinement, , We were not going to all on the Selec
tive Service System for a mlarsied man vith children to replace au
Induetee without depenclents who had been serapped but eould be
salvage
Tn addition to the hasd-headed reasons for a policy of restor
wen to duty, there were humanitarian reasons of which the War
Department was fully conscious. Lf a soldier, especially a young
fone, got in trouble, we new that we must not deal with him any
move severely thaw military necessity required, and that we must
give im anther chanes to make goed Ae seed ale and wing
to profit by
‘Riyou kno the backbone of one program for restoring as many
‘men as possible to duty was an institution of a new type, the
rehabilitation center, Nine of these eonters were established in
December, 1942, one for each of the nine Service Commands. Sev
ral consolidations have taken place sinee, and there are now five.
Muxrany Jusnion 95
Sino they wore opened they have sesived abgut 35,000 men, of
whom 14,000 have heen restored to duty, with 2,000 to 3,000 more
to be restored before their present population is Hquidated. Onl
10 per cent of those restored are known to have become general
prisoners again
‘Men who secia Likely to prove restorable are sent to rehabilitation
centers, regardless of how long thelr sentences mi
in ordinary barracks on Army posts, in azeas sn
fences. ‘Theis cases are stnulied exhaustively, and they appear before
8 Payehiatry and Sociology Board of three officers before being
finally approved for tvaining and eventual restoration, ‘The train-
ng eonrse consists of Hire months in a pre-honor company, where
the schedule is half work and half military training, and another
three months of intensive full-time military training in an Lonor
company. Most men graduate from the eouters in eight months,
Honor eompany men live “outside the wire,"” wear regular uni
forms withont insignia, go on long marches and over night bivonaes,
and fire a great variety of weapons on the range. They are usually
ativen the freedom of the post in of€-dwty hours and, in general, are
treated as soldieys in regular status, exept that they do not get
passes or furloughs,
Every offort is made to maintain high morale and to send the
Rehabilitation Center geaduate back to duty with his head up and
his shoulders squared. The success of the program is due to the
care with which those who are not good prospects for restoration are
‘weeded out, and also to the quality of the training. given the
vomainder
Our installutions overseas, usually known as disciplinary training
enters ave primarily rehabilitation centers, They have to handie
also a considerable number of men who are non-restorable and are
awaiting transfer to disciplinary barracks and Federal institutions
bbut will not he brought back io this country until the return of
soldiers with honorable reeords is substantially eompleted. The
worsens diseiplina iers have restored 4,000 men to
‘uty and will restore another 4,000 or more before they close down,
‘There have been disciplinary training centers in various parts of
the world. ‘They were moved frequently as one theater of opera-
tions became quiet and another active, There ate now. two in
France, one at Brussels, one im Italy near Pisa, and two in the
Pacifio, one near Honolulu and another near Manila,
7
If the rehabilitation conter prisoner in this country is screened
out as not suitable for restoration to duty, he is sent to one of the
Gigeiplinary barracks. ‘This doos not mean that he is east into outer
Aarkness, iowever. ‘The primary function of the disciplinary bar-
96 ‘Tun Puison Association or New York
racks, so far as the greater part of the men are eoncerned, is to
prepare them for return to oivil life, but they still have an oppor-
tunity to be restored to military serviee. Hach disciplinary: bai
racks maintains a training company in which earefully selected men
enters and are eventually restored to duty
men, however, the diseiplinary barracks program is similar to that
of our better State and Federal prisons, They are employed in the
‘maintenanee work of the institution, meh of whiels involves killed
trades in which the men have had Army training, in elothing and
shoe repair and other salvage work, in the operation of laundries,
Ary-eleaning plants, quarries, and otber facilities of the post, and in
f variety of labor projects of definite military value, ‘The work
program is supplemented by academic and vooational edueation
and by the other activities which civil prisons have found to be
Deneficial to morale and discipline and likely to increase the ehanees
that the prisoner will make good on release
Tt is Atting to pay tribute at this point to the war work carried
fon by the genoral prison gystom of this country 6 quantities
of war equipment were produced, and War Bond sales were actively
pressed. ‘The war effort was aided messurably by the loyal support
of our prison population,
‘The Army accepted and acted on another principle in whieh T
know you all believe: the use of medium security facilities wherever
possible, Al present we have twelve disciplinary barracks, of
whieh two are the maximum security type; Fort Leavenworth and
Green Haven, the new prison which was leased from the State of
New York. ‘The Central Branch Disciplinary Barracks at il-
Waukee is between maximum security and medium security. ‘The
remainder are of the medium security type, most of them being
large blocks of barracks and other buildings in Army posts, eneiosed
by wire and sentry boxes and closely resembling rehabilitation
centers. ‘The Correction Division has planned a new diseiplinary.
‘barracks of the most modern type, a modification of the Pederal
Penitentiary at Terre Haute, and it is now under construction at
Camp Cooke, California,
VI
In addition to the general prisoners in our own installations hore
and overseas, we have 2,700 prisoners in Federal penitentiaries,
reformatories and correctional institutions, Soldiers convicted of
crimes of a non-military character and of certain militar
‘ean be sent to Federal institutions in the disevetion of the reviewing:
authority. ‘They are in the same status as other Federal prisoners
as to good conduct time, parole, ete., but the War Department does
nnot Jose sight of them and reviews each man’s ease annually with
view to clemency or other action, During the past year we have
Duuwrany Justice oT
transferred a substantial nomber of Army prisoners from Federel
institutions to our own installations for restoration to duty.
wish at this time to expross my appreciation of the whole-hearted
cooperation we have received from the United States Bureat of
Prisons, its direetor, Mr. Bennett, and the wardens and staffs of
the Federal institutions. Not ouly have our military prisoners
bad the benefit of the industrial, edueational, and other opportus
lies these institutions afford and of the programm of training
which the Federal prison system is famous, but we in Washington,
have had the benefit of intelligent and discriminating vecommenda-
tions on eases under consideration for clemeney or restoration from,
the classification committees and wardens of the institutions, Frou,
Mr. Bennett personally we have had invaluable advive and counsel
on matters of general policy as well as on specific problems, This
is a most heartening example of cooperation between two govern
ment agencies, one of whieh is a professional in the prison busitiess,
while the other is really an amateur,
vn
As you-can see, the Army is operating a widely seattered prison
system as well as a large one, In order to give coordinated super
vision to the various types of installations and to establish polivies
and procedures that were not only consistent with Army standards
but with accepted standards of modern penology, a Correction
Division was established in the A@jutant General's Office, Colonel
Marion Rushton, who had been for some time in el
matters in my offic, was made diector of the divisio
s, was made deputy director. ‘The staff of the
division includes a mnmber of offieers who have had professional
training and experience in the corveetional Geld, ‘The Field Sec
is headed by Major Jobn C. Burke, warden of the Wiseonsin State
Prison in eivilian life. ‘To make up for shortages in personnel and
unprecedented difficulties due to turnover, the Correction Division
‘worked out the plans and curriewlum of a training course whieh is
now in operation at Fort Oglethorpe, Georgia, and is training 800
enlisted men und 50 officers & month,
vu
Tn Jume, 1945, an Advisory Board of Clemency was established in
the Offce of the Under Seoretary of War. Its membership includes
‘wo civilians as chairman and vice-chairmon, are offer with combat
experience, an offeer from the Judge Advocate General's Depart-
ment, and an officer from the Under Secretary's office, ‘The original
chairman was Judge Sherman Minton of the United States Circuit
98 ‘Tum Pawo Association or New York
Court of Appeals, who rendered most valuable sevviee but later had
to vesign because of illness, We were happy last week to announce
that former Supreme Conrt Justice Owen Roberts has agreed to
serve as Chairman of the Board. He brings to this publie service a
tinguished reputation for wisdom and integrity
"To assist the Advisory Board, the Under Secretary bas authorized
the establishment of as many Special Clemency Boards as may be
necessary, each with three members; a civilian, an offleer with com.
Dat experience, and an ofiecr from the Judge Advocate General's
Office, The Clemeney Boards are committed to a task of a great
magnitude and deep significance. That task is to review the
sentence of all general court-martial prisoners now in confinement,
in the United States, and the-sentences of those now in overseas
installations as soon as they ave retumed to this country. A con-
servative estimate places the number of cases to be reviewed at ¢
minhaum of 27,500, Tt is an enormous task, bunt the review is to be
aystematio and thorongh. Cases will not be disposed of in blocks
and categories, and there is to be no general jail delivery. Each
‘ease will be reviewed individually. Information on the offender's
life history not available to the court, us well us institutional reports,
will be considered, Sentences that are unnecessarily severe will be
reduced, and disparities will be corrected.
‘The Army has set itself to review the actions which its courte
martial have taken under the stress of a war fought around the
world, and to adjust unnecessarily severe or disparate sentences,
Uf this task is cacried out carefully, with due regard for the individ.
dual differences in ollenders and offenses, with the desire to deal as
justly as possible with the oftender but, at the same time, not forget
ting the vast majority who maintained an honorable record, the
Army will retain, and deserve to retain, public confidence in its
system of military justice.
Tam thinking of a day last stnimer, when I went to see the ‘grad
uation’’ of 150 general prisoners. ‘These men were heing restored
to the military serviee that day and ware destined for service in the
Pacific. "Their offenses were serious. They had drawn terms rang-
ing from five to twenty-five years. "They had pnt in seven month
of hard work at Slaeam, and the Army had done its best to arouse
their pride in being soldiers in the nation’s service. ‘There was
resolution and firm purpose in their faces ax they went through
their final dvill that afternoon, ‘They were on their way “back to
the Army again,” to an honorable standing and with the prospect
of an honorable discharge, with the words on the discharge certificate
that soldiers over the years have treasured, “*serviee honest and
faithful; character exeellent,’””
THESAURUS OF PENOLOGY*
An Index to the Contents of the Anual Reports of The Prison
Association of New York, 1844-1944
Compiled by esas K, SecoVom Chief Libravion
Bepurtmen of Cameson of tae Giggol Meg Wa
Special Articles
sunicon, H, EB. ipcetal. Arete
What ona am aan imi,
Bamows, Saxcoe J
snd what status dows he occupy?
Defects of our prlom ayatert (1906) 75-60
Inumanity'as 4 gare Yer aime (1904) 11-229
odo! jails; some potats that need to be considered (1903) 105-111
New crimes and punishments (1902), 107-112
Notes ea Europea prisons (1900) 4-49
Safeguarding, the indeterminate sentenes (1005) 110-115
United: States prison at Leavenworth (1903) 1294
Bevxern, Oxsven P.
Experieice of protien im the Services (1644) 84-58
Presentment of Grand Jury, U, 8, Ciralt G
form national jait and elaon’ (1879) 10:
Troe war, 2.
Anwolute Indeterminate sentence (1908) 12-77
Sis and penitentiarin fm New York (1902) 31-07
Moral laatieation of prisoners (1904) 80-86,
Baows, aut R
Bertilion ayeter (1808) 197-142
Bows, Jou E,
Pelsoa manufactures
concerning the necessity
brief eiotract (1807) 91-98
ted
Slatenient concerning the priaons of New York aa ing staten
‘deray ares nc aaa aneh
Css, HR,
Correct
(1026) 70-202
prevention of erine (102) 89-76
: Gommiston Conference (1087) 65-80
Sovlety's responsibility for crime (1981) 79-06 "
‘Youth junto T1840) 08 168
LTA work should not be regarded as x complete index, bit instend as
ftseral tend to the valuable material contained iy the varlong reste
to
100 ‘Tue Paisox Assootston or New You
Cuanon, Jone B.
‘Question of # prison newspaper (1870) 299-910
Cone, Me A,
"Prisons and prisoners im France (1808) 576-035,
Conaranr, ALoERxOX 8 Ro
‘Prison methods (a sermon) (2901) 89-80
Ccaorrox, S12 Warr
Report on Tnglish prisons (807) 81-88
Dana, Marcouae Me. 6.
‘child saving” (1501) 144-147
Darron, Josers B.
Met eto fr he span of ema In New York at othe
Tinao)an-116
De Mareaney, M- Borsivinas,
Criminal regstars (1608) 546-354
{nthe mode of preventive detention (1807) 18-268
Prepatory Herston (867), 108-1
Princ ae Teance Ober IS
Doensts, Rican E,
"eoralsdy of the rations af rine, pauper ad late (1ST)
F
eye St ep examination of oni inthe sate pone (85
(of tie Tegstation sifecting county penitentiaries (1879) 1016
sot Ta the justia abd sorvetonal trentinent of ebildren, (17S)
3
Fuse, Avsnix
"Relation of cine to disesou (1807) 96-87
Won, Jonx Pransix
Thdeterminate sentence (2902) 100-100
Gwees, Reonunor: T.
{Criminal ebilésen (1800-91). 115-188
orcs, avousein HL
‘Bietrocution” (1804) 162-107
eaont, Hixey Buxsworrt
‘After cave of inmates of prizons and reformatories (1909) 81-9
Guascox, Jou H.
"Beray on prison hygiene (1807) 44-04
Hamas, Boagm
“Fuventle delinquents and] hld-erininals (1876) 153-155
Hiexomsox, Jou X.
‘Lease epstem in Texas (1808) 167-192
‘TuesauRus oF PRNoxoer qo
uz, Fromxce
‘attray, from ix commoncoment to the pfosent time (1868) 244-911
Boarding out pauper children (1808) 312-918
omer, G. B,
Report on the prisons of Bagland and Teeland (1860) 05-106
Pelgoas and pritom associations. fa Denmark (1888) 677-578
pines, C2
Priton Tabor (1890) 33-44
Tuberculosis la prieons end reformatories (180) 74-82
‘Tuberculosis in state penal Insitutions (1904) 80-100,
Lowen, Laws B.
Plan of classification, segregation and treatment meade (1920) 20-20
russ, Heavens
Aaldress (1097) 110-241
Parole (1987) 112-120,
Lewis, Cnanzo. 1.
aglah prisons (1888) 48-50
Lewis, Cuaniros 7. and McConDT, RIOWAKD A.
‘Report uf special commitve spon the psnons of Gront Dain (188)
ews, Onzaxno HF
English prisons (2901) 151-2075 Borstal aysteu 108-178,
‘Tramp problem in the United States 1011) 170-287
Proulem of European mendicaney and vagrancy (1011) 76-112
Prison Atsolation and the prison labor question (1804) 129-198
Prison Assocation and he jail eyatem (address) (1904) 126-180
County jails 26 relormatory Institutions (1893) 6-89
Mae, P. H
Prison labor (remarks) (1807) 86-91,
Mornenscases, Worseane
Geriean progress in penology (1890) 188-190
Moummstx, RoxatD B.
Court of rebebiitation (1008) 67-00
Moons, Fuaxx
‘Classifeation—what has st accomplished
102 Das Prisox Associaton or Naw Yous
Conoas, Ja 2.
Report on the Kish prom system (1867) 88-100
Perensox, ALsxAOn
Waited States way with erie (1031) 47-85,
Pasmns, Tuowas Mt
‘Prisons Japa (2684) 92-95
Puoscowe, Monti
Taluation of the Indeterminate sentones (3648) 90-96
Parenter, W. P
"New constitation of New ork bn elation to prison labor (1885) 126-190
Paisow Some
Commision apy nor Smith 1918—4D6 seyort
Saupe ewistln churnen (oe) 33
Summary of recommendations (1020) 85-68
asso, J. Be
‘rare you in favor of « bond of medial experts" (1867) 115-110
esr, Sasso
“ry bw grvecton ain papa funtion, a rzniation
Tb 90-00
Seana, Brera
Trisoae of Rly (2667) 112-281
susan, onsre
Crime and the epilation of 2092 (1938) 75-106
‘suist0o, JP.
Potideal Jolla case study (2962) 120-128
Suaw, 6. owas vs
ing delinquency from within (Paper delivered at the New Yor
Pipa of Socal Work Rochener, N.Y, Nov. 16,1048) (1088)
scxernen, Cuaniss 3
Discharged convict (1901) 69-78
suaxses, Faauers W.
‘Navy coretional programs (2044) 100-100
Tiieon ator (2805) 106-225
Statetie cf crime” (1001) 68-73
Tnetcrminate aratence for erine (1004) 109-110 (110A) 13-82
Tistrstonte sentence for evens wee a0 ase (1905) 62-71 (2097)
Inevensing? (2000) 66
‘ston, Puan
‘ited States penitentarise (1699) part 111
TaEsAvgus ov PENoLoY 103
Toaxesrr, J.
L
Tieton of capital punishment by separate conéement, in Bngland,
‘North America end Wrauce (84r-1so0) ‘14-228
Pricons of France, Ragland, Sweden, Pracsia (184d) 48-56
‘Tow, Haxscan
DBassachusetts sytem of probation (2804) 186-144
‘Tormey, Euzaserst b,
Probation system in Mascachucetis (1900) 110-198
Wauies, Cram
Wonee's pris of Undana (1804) 190-201
Vax op Want, Waraarac
‘Music in corretional institutions (1982) 48-72
‘Vax Howzexoonr, Baton Franz
Prisons of Germany” (186%) 100-112,
Waeruano, Faaxcts
‘Relation of the Prism Association to the State (address) (1804) 107-109
Wines, Monsax
“all st Neste, Bahama Tslends (1808) 101-102
‘Captatiats of erlme® (1980) 295-207 *eontenel fom several eae
‘ent by Edwin TM. (ot Lonton
er, Rovers J
Digest of Indeterminate sentence and parole lane (2985) 70-158
Subject Index
Aaministration (1852), 115 (08a) 5; G40) 305
Sew’ atho Fire Apparasue; Prison “"(intn) 48, (i042) 305 Lanast
Tnspoction 18
(1865) M2; (sA7) ai-s2; (1835) Aftercare
See also Rarvera; Discharged Con
(0845) 4,97 218, 127 tomate
1847-60) 62,” (1908) 8195
1023) 1; {fods) 88-76
Alatama--Prisone
See also Chilirens Juvenile De- (1868) 05-1885 (1000)
Tinguency; Juvenile Teattutions; — Aleatras
Youth authority (190) 50
. 32, 36
aa; (1823) 13, 30; (1088) Io
92-200
108 ‘Tae Prisox Assoors10x oF New Yous
{9108} 20, 47
(2935) 2b; (assT) 90
(1s) 65
(ieee) 30-22
“Amerionn Prison Coayressce
Se ato Natio Prison Conran
crest)
18)
1989)
{nOMt) soe=tnb; (bas) 318-185
1 Tatende Jat
Mattoo) 0-102
‘iss7-s0) 50; (1937) 26
Berbers
(1032) 08
Pawnee bu
‘ee also Lesislation, Prison Lewe
(828)
Beortitton Sten
Tse) 51-32; 187-14B; (1806)
ieee
Biographical
Barrows, Tea (1942) 5
Bareows, Samet J. (1800) 133
(183) 1605
(ame) ti
tries Rayinond
HRyptington, Proderice D, (1908)
rary
Hurd, Richasd Bf. (141)
haan Semel taeey 2012)
‘kinchuy, Googe W. (1048) 8
O'Brien,
Parl, Witan M, (1033
Pim Wendel 11008) 40"
Round, William AB, (4900) 192
(1006) 15144
Sage, Dean (1002) 113, (1042) 5
orstal System
See alea Begiand—Prigons
Cini) srt, 168-1788
Capitat Punishment
isco) 72-4825 ast) 2
(uagr) “2tostt1; “(1Dke) 35,
(1945) 28
Contrad Guard Schoo!
(apea) 20)
Chaptaine
Seq alto “Prison Sunday”; Retip
(O86) 245 1870) 425 (2940) 3
{ioL) 475 (1948) 58
herter Reviion Commiesion
(i924) 145 (1986) 28)
enstaren
sie-ais;_ (lsrs) 22
wats (1809)
(i9ia) 3
‘nitaren's Courts
(ago) eas: (ven) Te:
(ia20) 1
(eas) a2, (1940) 33-965 (ADK)
‘21; (1042) 285 (2044) 16-17
Clansfcation
on;. (1881) 40;
sy cindy te-a0y, (1842)
Cssigeation Clinic Bing Bing
(oar) 2
‘Tussauaus o Pexouocy
(1916) 64; ny 895 (191) 3h,
Ah, 825 (1918) 235, (1910)
o'sty dees) tests
(Usitns0) 45-46
Contasion ta Iaveetvate Prison
(2923) 30 (1030) 30) (992) 29,
"2, 81 Aly 43) 48, (0998) 185
F390; 94-98
Comminsion for the Study of Bivea
‘onal Problems of eval fet
(19g) 24; 00-77; (1836) 39-00
Compensation
(1016) 505 $25 (3926) 12 (1027)
13," (dae) ‘2h, (bdo) 2
(ihe) any) cindy 205" 0ea}
(568) 151-170, (1081) 25
‘Conditional Liberation”
See also Parole
(1807) 105-178
Contre on Orin, he Criminal
3835) 28
(Coppieg « Pw
(9sz) 20
mporel Punishment
(1848) 38, 76; (1846) pt 159,
pt 2 1, $8)" (1st7-a0) 24, 30
21a, aL4/32s; (1881) 385 (1859)
‘bs, 166; (ieee) 215 (8D)
15,214) (S20) 40! {ago
‘iaast 295 (aon) es (2948) 28
Court Stenographers, Peet
(1920) 65
(ea) 175 (1942) 30)
‘See also Crime Prevention Bureau
(ise) 235-207; (1873) 78-873
(OL) 9-78; A015). 8b, 3b,
Br (lens) 65; "(2u8i) af-35
(Has) 75-106," (1988) 92
Grime and Criminats
See also Crime Couses; Dischorget
‘Gonciote; Habitunt Criminate
(ey 10F-112; (1908) 6-19
Oriloay ns (sor) eter, 114
(1854) 48-125, 55) (1609) 380
‘gy (isra) 23," (aete) BI
Grime Prevention
(1sz4) 107-110; (1907) 215
127) YF; (1990) 25, (19954
Tay (ga) lao; (1044) ae
Grime—trestmont
(2001) 15-805 (2008) 05-095
(hada) ites
rine Prevention Burson
(asta) 107-2205 907) 215
(leet) 173 “(1890) 285, (1985)
18; (1048) 81-30
(834) 48
Defective Delinquents
(19108) 225 (1918) 22
Se ala Jaente Dlnguney
corns
“Phe Detinguont™
(ini) 94; (1918) 48
Denmart—Prisons
(1868) 877-318
Detention c
(i857) 1s8-166; (1876) LAK
sity 13
106 ‘Tax Puisox Assootation or New Yous
(186T) 49; (2816) Loa; (1943) 43
Diecharged Conviore
(190r) 182-1835
(1920) 77-80; (1982) 48
Bavcation
(14s) 18; (1894) 26
Blestroeution
(1896) 162-1675 (2908) 2
Bimira Reformatory
(ers) 20, 21, 185-188, 190-107;
(1880) 395. (1607)
Mi; (pai) 0
See alo Borstal Syston
int
‘080) Tea;
(1867) 26; (0935
amily Sereice Brean
(1919) 47; (1990) 92-88; (4981)
7-0; (1082) (a938)
(Ho36) esr)
(1938) 830)
(i840) Sesto}
7 (ines) Tero) (048) 00-88;
ibd) tote;
(1968) 175 9104) 16-17
Federot Indeterminate Sentence Lav:
(982) 56
‘(st9)" 16-17; (1923) aT; (1924)
155 (1926) 117-118 (1987) 25
eo Syoton
(ae02) 1015 (a6) 54
Feebte-minded
(ogo) 325 9108) as Gets)
5 (110) Ides (1017) 58
(1827-0) 503 (1852) 28,
Fingerprinting
(1085) 285 ao42) 225 «1942) 5,
(1049) 22
(1800) pes a9; (2940) 21
(1868) 79
(80)
France—Reformatories
(868) 244-911
Gattup Pott
(1942) 52
Georgio Pricons
(3908) 147
Germany—Powotooy
(1803) 3188-169, (2911) THA
(1a6o) 360-3815 (2990) 101-130;
Mabitwat Criminals et
(1876) 26-27; (2877) 155 (1988)
Heath
Sc aio Dit, Pie, Lip, Sait
‘anon. 688;
(era) 205 (asel) 25-24
“asoe) 62
Houses of Detention
(855) 25
(925) 120
‘Tamsaunvs ov PENoLoGr
(1902) 215 (u0aF) 24
dtenees im Prisons
(191g) 19; (1923) 7
Indeterminate Sentence
196; att)
0-08
(1804) 100-201
Tigh Syotem
See avo "afark System”
(leer) 34; (1868) 932-868,
(1884) 305 (1880) 48 (1800
"
Insene Oriminale
‘Soe Crime and Dissase; Twsonity
‘and Grime
atts) "28
(285) 2905 (1886) 29
‘nao Control Oward eon
(Teee)
Iaternationat Prison Congresses
eas (loss) a0 (1988) 04-28
(40)
Interstate Orime Conference
11035) 20-85,
(1868) 95-196
tsk Prison System
(1867) 88-100
Jats
‘See also Farm Colones
Se also Amondment Constitution
Cay a a ate 28,
205) (ins
{ion} aseiges ieee) 6
Japan Prisons
(1884) 92-055 (1804) 175-1765
(isos) 69-85
“aes”
(asta). 128-159; (875) TT-120,
190-183; (1811) 51
(srr)
(3600-01) a15-1185 «2o0) 32
60; (1000) 74, 76, 138} (Leda)
1; (i050) "345" (1042) 305
(das) 18, 40
(oes) a
Javenite Inatitutions
(1888) 27, 85; (2869) 84; (1920)
‘s
(oa 4
(1005) 16-154
(1934) 37
League of Nations
(1050) 25-28; 987) 25
Legislation Aetisities
‘See also Prison Zawe—2ew York
(1022) 9-063
‘Tue Parson Assooustion ov Nuw York
20, 00, 104
(lina)! a8)
bibravien
(1845) 115) (1846) pe 2 35, 58
1083) 88
ibvary—Americen Prion Aecovi
(2885) 915 888) 25 288) 3
ussstan, Cate)
Innacy Conmiasons
(Hoon) #3) (1997) 265 0925) 10;
hoor} ast 0ae)
Magistrates’ Courts Ceatvalivtion
(ange) 1; (1904) 30
‘ists 9
Meine Prisons
(isu) pe 2 T2t-144
aart Systen"
sa 459 me) 0) sty
tos) 12 Cee
(1) 198-144, (1900) 10-188
Matrone
(1888) 62-060; (2940) 975 (1942)
28; (1088) 24
Medical Problems
‘See also Taboroaton
(lees) 25; (1028) 28, (1982) 38,
(1807) 116-116
Atienigan—Privone
Aontesixon
atasio
(1922) 46-72, «75 (1925) 202-201
Mutuat Wayere Leepue
(1916) 37-38, 40
National Commission on Lane Obsere
«a05n) 2
Netionel Committee on Prison Labor
(amon) 22
127) 28, 65-80
National Parote Conference
989) 85, 65-775 (102) 85
National Prison Congress
(1880) 495-496; (1905) 40-44
(18108)
New Jersey
(1917) 8
fee alee Amen Report
CHa" st-075 (007) 205 tn990)
81; (1038) 20; (109%) 9-B8
(1916) ase—tss;—CiMI9) 48
(1835) 29°30
(1805) 86-87, 98, 1125 (2896) 102-
Tox; (1902) "17; iret
oo, (ate) 109; (ao
157; (i019) 26, "(1921) @1-63;
(ip) sg tes) sect,
Gee) 03-1105 (1827) com
0
sy (1092) 49-84; (1993) 35-
‘Tuxsaveus o PexoLocy
2,2 8, 20-05, as)
® claany cont
(1940). 76-4;
cl) 780
Now York City—Sherife
(ees) 4; (08) 39
New York Sohio! of Philenthropy
(ois) 19, 53
New York State Division of Povote
(1944) 15-16,
‘(187a) 117-125 (1803) os-1185
(1982) 60-783
(1888) "19, 60; (1945)
New York State Constitution
(sz9) 21
“Bows Letter"
(1921) 68
Norfolk Ielana
(1an0) 882-389
See Gormeny Prisons
(1845) 1075 (1815) 10; (2018) 30
‘See lio Nowe York City—Poroles
15-16, 60-07
(1945) 8-89
Penat Cote
‘See also Low Revision Commisvion
30; (1887) 205
Weal) at
(1842) 20, as, (1948) 22, 28
(ame aT as ery ass ast
a8 33)
24; (1809) pt Ps
See also Senitation
(1900) pe 2 88
(1845) 30; (1802) 495 (1843) 12
Privo Architecture
25 (1808) 402; (1803)
crentya2, cier6) ‘se,
148, 151; (1010) 28-20
Prison Assosiation of New York
(2990) 25-26, (1948) 28, 35,
Prion Aesoviation of New York Hts
(1845) pt 2 17, 19-20, 22) (1886)
PET ST, 28,80, 81,85, 375 (1847
uo Tue Patsow Assootanton of New York
so) t 18 18, 2, snes
33) a)
"i; (800) 41,
‘0; s67) 212
iat 70, 1 a3
(siz) 925 913)
Sy clay 1b, 2,
(isie) 180-H90, (1817)
S28 04, nto) 43,085 (aman)
31,825 (1021) 29, 26, 273 (1980)
24; (i052) 10) (0033) 27
(tas) 92
Prison Clothing
(19de) pt 2 an; (1804) 205 (1st)
Prison Discipline
‘ee lao Prisow administration
Prison Biucation
‘Soe also Prade Schools
(185891, "OSt4) 16; (188) 900-
385 (1902) M5" (1985) 105
{ish 9, Fast
Privon Parme
(ase) 215
Privon Food
(846) pe 2 94
Prisva Industries Reorgonication
(1930) 27
Prison Inspection
sere
105; (1800) $45; (1867) 31-82,
(2808) 29; «2860) 90, 290, 227
1
(nin) 9
Prison Lator
as (ans)
(1890) ro-ms oor) 25, 83-00;
tuoi) es, (leet)
(1025) 28; (1027) Sleae
Br-30ts (1980),
(ieee) a6, ir,
Prison Lavce—Wow York State
See also Povat Code Correction Lase
“asay ty
iad-142; (1921) 89-08, (1840)
ca)
Prigow Reform
(ager) 26, (asra) 74; (1890
TsL-ast, i718; (1900) 124
128; (1000) 7-803 (1024) 140
Privo Rood Camps
‘eae) 24
(1860) 32; (2001) $1
(9108) 20
(i940) 56-375 (048) 62-63
Prisoners Rights
(srs) 4s (10e0) 63
Prisone
‘Bes aleo Farm Coloniee; Federal
Prisone ; Houses of Detention
assay 17} (1855) “445 (L883) eas
(1864). "xppendix, 23; (1886)
‘Toasavevs op Pexoroay um
180-299; (18eT) 33; (1868)
480-605, 51-545) (1809) "289
80 -Buconochie ani his penal
(1982) by ete
Privons—Por Women
(1876) 38, 40, 425 (1980)
(ston) 21-325 927) 6
Prisone—Perveroneh
woo Cvtral Guard Sohal, Fe
fie
85 cinen) ade, (988)
Sc aso Rewards and Punishments
38, (904) 35-
144; (2600) 17-185,
Paychiatri Seroioes
68) 28
1) 18; (1042)
21; Coan iby Cae) 8
Pubite Opinion
(2850) 30; (asta) a4
‘See alsa Corporat Punishments
1809) sia-g185
82-08, OT, 1035, (1804)
188-106
Reereation
(1865) 85; ete
Reformation
(1858) 42; (1885) 455 (1859) 02)
sb) "58-01;
190; (872) 83
(srs) 985" (1600),
120-192, (1908)
Reformatoriee—Adult
(1808) 171-212, 218-258, 299, 249;
(late) 408-47, (1872)
(1890-81) 192-1265 (1808) 10s.
Hoss (ns) Gott) 48;
(isto) 26; (1034)
Raformatorice—duvenite
(3860), 220-230, 240-2735 (1876)
150-167
(2944) 19-14; ee
Relivious Education
‘Sev also Cheplaine
Os (see) «3; (1989) 30;
(Ish) 390-398)
Restityion
(1003) 665 (1932) 69-675 ete
Rewards and Punishments
(1353-06) 225 (1801) 145 (1809)
30; (0860) ‘194
Russie Prisons
(1808) 80-076
(2057) 27-28; ete
‘Se aleo Indeterminate Sontonce
25:27; (1000) I0-IT;
Separate System
Prison Disipina”
(ist) 18
Besuat—Prychopath Lave
(2043) 23; (1944) 20
Sheri
(1935) 215 (1082) 905 (192) 62
Solivary Confinement
‘eo also Corporal Punishment
(isaa)"2r;"(ie0e) Te
Spain—Prisons
(1860) 976-8705 ete
Stote Commiesion of Covrention
(1906) 13, 18; (1986) 275 ete
‘tate Department of Correction
(1920) 49, 60,73; (1885) a
(ast)
a2
(928), 80; (1992) 21} (2995) 20
‘Teaining Schools
(1910) AB 54
aberoutonie
(1800) 74-825 (1002) 765 ete
United States Attorney GeerePs
‘rime Conference
(1954) 5042
Voorants ond Tramps
(s80) 2-22; (2846) 58; (1800)
‘pe 1 61-625 (1011) 178-18
‘ae Paasow ASsocIATION or New You
Wayer (Inmates)
(asi) 34s (4so9-96) 215
24; 860) 0
(1855) 385 ete
Youth Convection Authority Act
(1999). 44; (1840) 14, 95-116,
(ea) 40; et
Youthful Offenders Lave
Index to Mlustrations
Atbany County Pesitentiony
‘exercise peried (1915) 1085 idle
‘mes im, (1014) 1083 (1910) 32
(duty 48h)
Cy
‘asker beds—erowding
exterior (1012) 100
Vy fists)
work nv higheays (2919) 170
yard “(ioida} "se, (912) 12;
ious) 20, (mip 42h).
(isi0ay 58;
Redford Reformatory
(ae08) 90
ematrnction at, (1012) 52, 82, 9
Aten work, (oudoor work)” (1812)
Ne
‘eggar colony (1911) 62, $2, 94
fabinct shop (2911) 18, 100
fcutral fountain (2011
hidden officials biog reviewed
1)
shops (unity
‘washroom (201) 04
‘ewving sho lent) 82, 100
cell, part of (1911) 18
Neepilal ward) (1011) 2
california State Prison
(1908). 8
women’s quarters (1908) 58
‘im general use im prisons (1927) 4
(1913) 280, idleness fa (1914) 18
(ricnge—House of Correction
(1908) 10, Gettaromen,
1908) 17
factory innate
‘atlaing, labor
(rrliniber—prkoners employed
a (025) 81
call block, mew (1942) 50
one (1042)
ettoo lop. (18104) 08
exterior view (1042)
fait eau" (o10a) e4; {u9T2) 114
ruese hal (1910A) TO
oad work by inmates (1
4) 8
‘Taxsavaus ov PeNoLoay
Columbia. Connty—Jast
(1926) 74—north wing, Interior of
Toa) 68
Dannemors State Hospitet
(19108) po; (812) 100
Eitchen’(10t0A) 60
astern tote Rsformatory, Nepanoeh
1913} 200; cell (2013) 200
fall blone (1813
(904) 6
bataom (29108) 65
lane Ja. physical ealare (10208)
2 01g) 182
stress parade! (1010) 12
juad (1910) 28
inmate fnd (1810) 24
fraate alert (1010) 20
Intemational Prisoa Congress Tour
1010 "delegete)
Slepworks meer shop (L012) 126,
th
opener pulinied Wy famaics
‘Goin a0
training fm idleness ond crime in
‘ees or lag to. seta?
(ois) 2
Bagtond—Borstat
Duilding ove baiting; ain fa
building operations (on a6
strpenery shop (2910) 1
Instruction "a seeranship (1911)
180
Exgtond—Comp Hitt
Preventive detamtion prison (1911)
Toe
England —Portiond Prison
‘all (1801) 130
Sal Block corekdor (2812) 8
Snterior 1911) 32
Interior view (911) 28
yard (1007) 48, 50, 64, 72, 68
Brie County Jait
cell corridor (1016) 192
atte hare window goard (1918)
Sunday afternoon sevice, visitors
(aia) 390
eses Morket Court and Prison
(aos) 78
Parretty, Patrick
(1005) 5
(1999) 9
‘Royal Pruseiana Prison (1004) 4
Germony—Braweitor Workhouse
ye (01) 1a
GermanyOrefed, tenet ee
isciplinayy building (1011) 42
Great Meadow, Prison
Yrand, iamete (1824) 212
exit (1013) eo
‘all bloc, ell intarfor (28208) 96
fall block, completed (2818), 194
oll Block, contidor (1914) 212
a4 ‘Tue Prow Assocramow or New Yous
cell block, west-ade (2012) 104
(i914) 108
otae’ ander onstruction (1904)
"200
fics! houses (2018) 194
nor tah pte (1018) 3
nut Comstock (1914)
site (1918) 104
Stockade (1913) 00
Snder smstruction (19108) T, (2)
72
7,
wing. (1013) 60
Harts Teton
sisplane view (1984) 65; 98 plan
Holtens—Amersfoort
juvenile reformatory (1011) 110
‘Punietanent call, boy's reform school
tien) 42
Mtand—Apsoot
Sh prisoners ald society colony
Yor dlasharget piseners (1911)
no
juventie reformatory (1011) 06
Hollen—Heartem
‘Stato prisons (2011) 1085 1
Holtond—Veerbiven
‘vegraney colony (2912) 665 100
Indionz Penal State Pero
(1015) 72, 1265 (016) 182
dorastory (1015) 36
og house, repair (1015) 34
prisoners going to work (1910) 108
Ennis State Ingbriate Reformatory
‘a0r)
‘Maryboro Prison (1007) 18
Columbia County (1018) 234
Cortland County 1913)' 300
elferaon County (1915) 230, 31
Seneca County Waterloo corridor
{ioia) 40s; wauat scene (1014)
St Lawrence County (1918) 404,
ise
0813)
logs County—Oewego (1018) 416
Yater County (1018) 416
Lessig, Ohortton 7.
(1908) 4. 42
County —. Monticello
Aatteawan State Hospital
{1908} 985 (1913) 100
Michigan State Prison—Jachson
‘34, ontelde ell (1918) 75
Napanook Reformatory
(ase) 128
domestic building (10108) 84
few reservoir dam” (19105) 84
futdose work (1912) 84
‘rail (1912) 8
Now York Cty Reformatory—ew
Adminictration Walling, founds
‘ton of (1910) 148
baseball teas, Domate (1914) Ta
Daildings, layout of (plan) (1916)
Iulldings, temporary (1916) 186;
‘cement loge "sanuf, Rikers
Ysied (015) 116
158
sundar dire
tay famate
14: excavate
fing (0015) 460
‘TuesauRvs op Pasorooy 5
‘tay moving tn (1914) 70
‘ite of (1013)
ork, coming a from—eome of the
Toys (1914)
Yep Yok iy Png
view (192
Sediortum, chapel (plane) (2028)
‘st
Dockots used_as chamber-pote in
the old penitentinry. (1826) 81
I look plan
Salleorridor in ‘old penitentiary
call, ola. (1924) 18,
ground plan (LOB4) &
favate cviian visiting (1040) 84 ~
Inside esit (1040) 73, 80
Lice ad’ mess ais (2028) 68
Municipal farm for dug addiete
old plan (1024) 24
oto {lane completed) (1924) 77
plot plam (1928) 4
Sot dd wl risk (294)
Wow York Juvenile Asylum
‘ministration building (1912) 146
‘ottage wnder constraetion (112)
ie
printing shop (1012) 174
Naw York State Prisons
honor bars (10108) 625 (1912) 104,
sew York. State Vooational Inetita-
plans (1982) €9, 72, 13
Oneide County Jait—Ution
(3012) 890; (91s) 416
Onondage
Gounty Penitentiary —
tte
‘madiersl survial of pun
‘shment (1915) 63 (1010) 11
tue balling rad ua) 250
ns) B84; (1914) 258
Bnenis Goes sk
(1913)
quarry (1918) 108
Ontario—Prison Farm —Gusiph
Tura and creamery (2914) 238
Wide sonication (1014) 250
‘ulldings (1814)
‘ulling th prigon (1014) 260
ting wader conection (1814)
ell house, dormitary (1914) 260
14) 148,
Industrial bilding. (1914) 242
Inecior of cow harm (2014), 238
gia ostan dorky (14)
wey fand inmate labor
aang,
Warden J. 7, Giimour (1914) 148
window of outside cell (1918) 250
Penitentiarice Federal
Stante—Geoein (078) 08
Terre Hints, Indiana (2029) 88
Portugat-—Oporto
aformatory for boys (1907) 96
Villa" Persando—Agricutasal sol
coy (1806) 98, 104
Prison Association of New Fork
(1801) 48, 26, 64, 72, 80, 96
roployment bares (1918) 120
Renascleer County Jait—Eroy
‘outside eoridor’ (1923) 120
Round, Wo Me P.
(1900) 120
Scotland—Greenock Prison
(isnt) &
Seotand Peterhead
(ao) 16
quarry work (2011) 36
buing orci
(1883)
Suing aout fo (1) 15
fall block (1014). #8.
al een (1018) 100
Sal bok, deaison (048)
Sei, eypieat ofa (2888) 20
fell Bloak, inside (1988) 24; old
(umes)
16 ‘Tu Puisow Astootnion op New Yous
‘eo, typical new inside (1028) 30;
tothe (1028) 3
unk ing (0835) 14
‘ess all (1812) 100
Pitving stston and Caring bone
‘onstruction (1815) 85
“rstraction (1918) 88, 00;
(1928) 2
Ste orieret ant Industria
{aot} 12,164; ae) 500
‘tate Farm for Women
central corridor, cottages (1913) $0
uperintendents resifence (1913)
Stote Industrial arm Prison
proposed by Privon Association
(eta) fps 1918) 26; (1998)
“tombs (City Prison —Manhettan)
(Gomi) 405 (1912) 1845 (081) 82
commiary (1915) 1185 ete
Training Soho0l for Boye —Warwiak,
cu9sty a6
Troixing School for Girls -Hudeon,
ie ‘iow 210
(2940) 5
Westchester County Joit
(aes) 192; (2018) 148; (2915)
wll block corridor (1919) $8
Ghart facade. of adninistration
saitaing (i)
Wingiate State Prison
Propored site (1913) 20,
Iunder eonstrvction (1017) 7
‘Reaving completion (1910) 14
FINANCIAL STATEMENT
‘THE, PRISON ASSOCIATION OF NEW YORK
GENERAL FUND
SPATEMENT OF INCOME AND EXPENSES
, YEAR ENDED DECEMBER 31, 1945
Drgations—apecal yangoue
ie Grevter New Work Fund. #2,031 24
Otier Pane sara 8
Donetlons—unrentietal 0. Ten 10,208 80
Endowment Incoine ———_ ee eine
Dividend on Stank
14,062 86
Reet prisagers and taiics (ea, iu,
Bnuplyiment edieistradion
oneal administration
‘Traveling expenses
noe ‘and statiery
Es fan fee and sieellancous
Total Bxpenses
Exwese of Income Over Bapen 62
Syacint “Donation rofl "withdraic’ Yom Datoiemaat ==
2,000 00
‘Bove of Income forthe Year
AUDITORS’ oprstoN
wi anette gaia,
Presents,
Wenerm, Hoan & soo
Now York, N.Y April 20, 1946 Corset Bie Meoenante
am
CONSTITUTION AND BYLAWS
An Act to Incorporate ‘The Prison Assosiation of New York
Passed May 9, 1846, by a two-thirds vote, (As subsequently
amended.)
‘The People of the State of New York, represented in Senate and
Assembly, do enact as follows
Seetion 1. AU sueh persons as now are and hereafter shall
ecome menibérs of the said association pursuant to the consti
tion thereof, shall and are hereby constituted a body corporate by
the name of The Prison Association of New York, and by that
name have the powers that by the third title, of the eighteenth ehap-
ter, of the first part of the Revised Statutes, are declared to belo
to every corporation, and shall be capable of purehasing, holdi
land eonveying apy estate, real or personal, for the use of said corpo
ration, 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 corporation is formed.
'2. ‘he estate and concerns of said corporation shall be mau
aged and conducted by its executive committee, in conformity to
the constitution of the said corporation ; and the following articles
that now form the constitution of the association shall continue to
‘oe the fundamental laws and constitution thereof, subject to altera
tion in the mode therein prescribed.
The objects of the association shall be
1, The amelioration of the condition of prisoners whether detained
for trial, or finally convicted, ov as witnesses.
2. ‘The improvement of prison discipline and the government of
prisous whether Zor eities, counties or states
‘2, The support and encourazement of reformed convicts after
thoir discharge by aording them the means of obtaining an honest
Tivelihood and sustaining them in their efforts at reform,
The oficers of the society shall, be a president, four vice-presi
dents, a recording secretary, @ corresponding secretary, and a
teeastirer, and there shall bo the following committees, viz.: a
finance committes, a committee on detentions, « committee ot
prison discipline, a committee on discharged conviets and am exec:
hitive committee, The nuuber oF the exeeutive committee shall con
(18)
CoxsrtuTion axp By-Laws us
persons other than officers. am eball ts
The officers named in the preceding article shall be
nembers of the exeeutive committe, who shall chose ono a thee
number to be chairman thereof, | ae me ete
‘he exsontive committee shal
2 shall meet once in each month, and
oop regular iiates of their procedigr. ‘Thy shall kant a
general superintendence and divestion of the alfa of he eae
4d shall anmually report to the socety all thelr roctedioeg: at
sch other matters at shall be likely to advance he cis othe
gall pciety shall meet annually inthe ety of New York, at such
ine and plac a the eset commits hl! apply an
‘such other times as the president, or in his absenee, one of the vi
presidents, shall designate. the Wes
Any person contributing annually tothe funds of the ance
tion not les than five doers shal, owing to meh eta as
4 member thereat. "A contribution af fie betes eee ee
Consitute a ife patron; a contribution af ee Menges ta
shall constitute an honor member of the association for lite
and 4 contribution of Afty dollars shall constitute a maeber ot at
‘aseciation for life. Honorary and eamrespondiag mete oe
from time to time be appohited by the executive committer
A female department shall be formed eonsiting’of such
a shall be selected hy the executive committse’ who shall here
charge of the interest and welfare of prisoners of their sex, under
‘such regulations as the executive committee shall adopt. .
‘The
annual meeting, at which time such persons may be elected
snembers ns shall have rendered exental seve te
prison diseipline, ci
officers of the association shall be chosen annually at the
1 honorary
18 cause of
390 Tae Prison Assocramion or New Yous
Any sosiety having the same object in view may bee a7
to ‘his esrocation by contributing to its funds and cooperating
witht
“ie exctne comes sl Rave power add to any of
torpromote the objects of the soviet, and shall have power £0 A
Pea nas sos in peg 1s alee of ts goes,
Suecmodiote fe qancal tiny
‘ment has been given at the next preceding meeting. .
4 workhouse in the county of New York, and in their discretion, to
and disposition of the estate, and concerns of said association and
nate their duties. And the said exeentive committee shall make an
Consrirunioy axp By-Laws 1a.
tures of said executive committe 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,
tobind out the said persons so being minors, as aforesaid, as apprem,
tices or servants, with their vonsent during their minority, to such
persons and at such places, to learn such proper trades and employ-
ments as in their judgment will be most condueive to their reforma.
tion and amendiment and future benefit and advantage of such
§ 6. The said exeentive committee by such committees as they
shall feom time fo time appoint, sball have power, and it shaik
be thetr duties to visit, inspect, and examine, all the prisons in the
State and annually report to the Legislature their state and com.
dition and all such other things in regard to them as may eneble
th Legislature to perfect their government. and diseipline, And
to eanble them to execute the powers and perforia the duties hereby:
granted and imposed, they shall possess all the powers and anthority
‘that by the twenty-fourth section, of title frst, 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 imposed on the keepers of sach prisons in relation
to the inspectors thereof; provided, that no such examination or
inspection of any prison shall be made antil an order for that pur.
pose to be granted by the chancellor of this State, or one of the
Indges of the Supreme Court, or by a vice-chancellor or circuit
iudge, 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 examined, the:
name of the persons, members of the said association, by whom the
examination is to be made, and the time within whieh the same must,
be concluded.
BY.LAWS*
1. Thore shall be a stated meeting of the exeentive committee
ou the third Thursday of each month, and special meeting shall
hold on the requisition of the Chairman or any three members
of the executive committee. The eall for a special meeting shall,
iu all eases, state the business to be transacted at said mecting
‘The annual meeting shall be held on the third Thursday of Jana
{As amendet hy the Hawoutive Committee ofthe Assocation at its monthly
‘wcrting om Thureday, December 17, 1081
122 ‘vie Prisos Association or Nuw Yor
ary in each year at-an hour and place to be designated by the
executive committee.t
The number of members composing the executive committee
exclusive of the officers of the association, is hereby fixed at twenty.
four, and divided into four groups or classes as follows: At the
lection held at the annual meeting of the year 1916, there shall
be eledted, to serve from that date, six members for the term of one
year, six for the term of two years, six for the term of three years,
fix 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
bership of the committee by death, resignation or otherwise, may
be flied either by the association at any ammual meeting or, in
interim between the annual meeting, by the executive committee
TT, At every meeting of the executive committee five members
shall be necessary to constitute a quorum.
UIT, The order of business at the annual meeting shall be as
follows
Blection of chairman and secretary,
Reading of minutes of the last meeting.
| Report of comuitize on nominations.
Election of officers
Report of corresponding secretary on work of year.
Annual report of the treasurer.
IV. ‘The order of business at every other stated meeting: shall be
as follows
1, The
meeting.
2. Report of treasurer.
8. Reports from standing committecs.
4 Reyort trom the corerponding seretary
6
\ding and approval of the minutes of the last preceding
ports from special committees.
Report from the general agent
Miscellaneous, business.
no other business shall be transacted that
neetings was called.
fa special meetin
that for which the said
TAG the Pebrunry, 1998, meshing of the Haeeutive Committe, ection 1 of
the Bylaws mas atuended to peoside Dat che monthly meeting of the cons
Ines fo holt on the ssond Monday of anh ant ead that he anal
Provide that the monthiy mectag be Seldon Uhe hire Tauradag’of ea
Shee is heretofore, aad a he anal resting of the Association be hel
tn the find ‘Thoreday tm Sasoary of exch yer,
Coxstrruvion axp By-Laws 123
V. The chairman shall appoint all standing and special com-
mmittoes and decide all questions of order, subjest to an appeal; and
the rules of oxder shall be those embodied in Cushing’s manual 80
far as they are applicable,
‘VL The recording secretary of the association shall be the
eerelary of the excentive commitree; and it shail be his duty 10
keep the minutes of the proceedings of said committee, to record
thom in a book provided for that purpose, and to give due notice
nf all meetings of the committee.
VIF. The corresponding: seeretary shall conduct the correspond-
ence of the executive committee and of each of the standing com.
nittees; aud shall aet as the general financial agent of the associ
tion, and shall report at each atated meeting of the committee,
VIII. The treasurer shall have charge of the funds of the asso
ciation, and shall give such seenvity as the executive committee
may require, His duties are more folly defined in by-law X
IX, There shall be at least the following standing committees;
executive; finance; law; detentions; nominations; probation and
parole; prison administration, Sueh committees in addition, to
any powers or duties conferred by these by-laws shall severally
posses the power and be subject to the duties designated from
time to time by the exeeutive committee, Purthermore, the cot:
mittee on probation and parole shall function as the committes
on discharged convicts mentioned in the constitution, and the eotn:
mittee on prison administration shall fuction as the committee
on prison diseipline mentioned in the constitution
‘The duties of the above named eommittees, not otherwise pro-
vided for in the constitntion or by-laws, are as follows
It shall be the duty of the committee on detentions to inquire
os far as may be practicable or necessary into the eauses of com:
mnitment of persons held in institutions of the Department of Cor
veetion of the City of New York, and, when deemed desirable, to
adopt available measures for procuring the diseharge 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
fre made therefor, to extend its work to jails, penitentiaries, re
formatovies ancl praons outside of the City of New York and
within the State of New York.
Tt shall be the duty of the committee on nominations to consider
the qualifications of persons available for clection as viee-presidents
or available for membership on the executive committee of the asso
tiation, and to make recommendations theveon to the exeentive
committee for final action.
