THE INSANE IN COUNTY JAILS

The sufferings of the insane in the county Poor Farms would so stir the compassion of the humane people of this state, could they but walk among these fellow-citizens of theirs and witness the misery to which they have been abandoned, that almshouse care would not survive the next session of the legislature. Take away, however, the meager attention given in the Poor Farms by those who, while they know nothing of mental diseases or of how to care for them, are moved by kindly impulses and recognize that the insane are sent to them for care and not for punishment; take away this and substitute the harsh discipline of the prison which is designed, by its painful memories, to restrain evildoers from crime. Then some picture can be formed of the lot of these poor sick people in county jails. Almost without exception, they have committed no crime, unless it be a crime to suffer from mental illness, but they share the lot of criminals and in many cases through the fears of their jailers they are denied even the small liberties allowed the criminals. Men and women, white people and negroes, those scarcely out of childhood and those filled with the pains and infirmities of age, those with types of mental disease which would yield readily to even the simplest treatment and those doomed to mental darkness all their days, I have seen them in the cells of the county jails of Texas and learned their needs and witnessed their sufferings at first hand. I can only say that I have never witnessed such depths of misery as those in which these unfortunate people drag out the months and years. Death releases some—the more fortunate—but the others continue to exist in filthy cells without that hope of release after a definite period, which cheers the criminals whose lot they share. The rigors of the jail are intended to impress evildoers with the terrors of the law but with few exceptions the prisoners in county jails are young men, most of them in sturdy health. It is needless to point out how much more severe punishment confinement in such places is to the unfortunate insane, broken in health, many of them acutely conscious of the terrible wrong which their state is inflicting upon them and the prey to delusional and hallucinatory terrors, as well as to those which depend upon actuality.

In not a few instances I found the insane in solitary confinement, simply on account of their mental disease, while the criminals enjoyed the companionship of their fellows. Every convention of life is swept away when these unfortunate people enter the jails. Women are bathed by men in the presence of male prisoners, persons with elusions of sin and impending punishment lie in cells which face the gallows, the weak and helpless are not even protected from physical violence, and, in most cases, there is not the slightest semblance of personal care or nursing. The jailers feel that they have discharged their full duty if the insane are prevented from escaping. Persons convicted of serious crimes enter the jails, serve their sentences and regain their liberty while the insane, who have led upright lives and have contributed by their honest toil to the prosperity of their state, lie in their cells without hope of release. A pathetic fact is that the counties pay the sheriffs more just for feeding the poor people than their care would cost in the state hospitals for the insane. It is needless to dwell further on the inhumanity and the injustice of confining the insane in the county jails. It constitutes a blot upon the honor of the state which every citizen would demand erased were the actual facts widely known.

BIBLIOGRAPHY
THE COUNTY GENERALLY

Books and Collections of Papers

American Academy of Political and Social Science, Philadelphia, “County Government....” (Its Annals, v. 47, whole No. 136.) May, 1913. 326 pp.
Fairlie, John A., Local Government in Counties, Towns and Villages. New York, The Century Co., 1906. 289 pp. (The American State series) Bibliography.
The New York short ballot organization: Proceedings of the First Conference for better County Government. Schenectady, N. Y., Nov. 13-14, 1914.

Book References

Beard, C. A. American Government and Politics. New and rev. ed. New York, The Macmillan Co., 1914. 788 pp. See Index under county.
Bristow, A. S. H. “Counties.” (In American and English Encyclopædia of Law. 2nd ed. Northport, N. Y., 1898. v. 7:898-972.)
Clark, F. H. Outlines of Civics; being a supplement to Bryce’s American Commonwealth, abridged edition, ... New York and London, The Macmillan Company, 1899. 261 pp. “The County”: pp. 148-178.
Fairlie, J. A. “County Government.” (In Cyclopædia of American Government, New York, 1914. v. I: 492-497.)
Fisher, S. B. “Counties.” (In Mack, William, ed. Cyclopædia of Law and Procedure. New York, 1904. v. II: 325-615.)
Fiske, J. Civil Government in the United States, Considered with some Reference to its Origin. New ed., with additions. Boston, New York, Houghton, Mifflin & Co. 1904, 378 pp. See Index under county.
Flickinger, J. R. Civil Government as Developed in the States and in the United States. Boston, D. C. Heath & Co., 1901. 350 pp. See Index under county.
Goodnow, F. J. Municipal Home Rule; a Study in Administration. New York, The Columbia University Press, The Macmillan Co., agents, 1906. 283 pp. See Index under county in United States.
Marriott, Crittenden. How Americans are Governed in Nation, State, and City. New York and London, Harper & Brothers, 1910. 372 pp. “Counties and Towns”: pp. 256-259.
Miller, W. A. Civil Government, State and Federal; an Exposition of our Policy. Boston, New York, B. H. Sanborn & Co., 1910. 264 pp. “The County”: pp. 23-37.
Moses, B. The Government of the United States. New York, D. Appleton & Co., 1911. 424 pp. (Twentieth Century Textbooks, ed. by A. F. Nightingale.) “County Government”: pp. 313-315.
Rader, P. S. Civil Government of the United States and the State of Missouri. Rev. ed. Jefferson City, Mo. The Hugh Stephens Co. 1912. 351 pp. “Counties”: pp. 246-257.
Sherman, W. H. Civics: Studies in American Citizenship. New York, London, The Macmillan Co., 1905. 328 pp. “The County”: pp. 48-53.

Magazine Articles and Monographs

Bailey, W. L. “The County Community and its Government.” In Annals of American Academy, May, 1913, pp. 14-25.
Cartwright, O. G. “Some needs to be considered in Reconstructing County Government.” In Proceedings of the First Conference for better County Government. 1914. The New York Short Ballot Organization.
Childs, R. S. “Ramshackle County Government.” Outlook, May 3, 1916.
Gilbertson, H. S. “The Discovery of the County Problem.” American Review of Reviews, Nov., 1912. v. 46: 604-608.
Gilbertson, H. S. “Elements of the County Problem.” In Annals of the American Academy, May, 1913, pp. 13.
Taylor, G. “The County, a Challenge to Humanized Politics and Volunteer Co-operation” (president’s address at forty-first annual meeting, National Conference of Charities and Corrections. 16 pp.)

Individual States

Miller, E. J. “New Departure in County Government: California’s Experiment with Home Rule Charters.” American Political Science Review, Aug., 1913. v. 7: 411-419.
Fairlie, J. A. “County and Town Government in Illinois.” In Annals of American Academy, May 1913. pp. 62-78.
Illinois. Laws, Statutes, etc. A compilation of the laws of Illinois, relating to township organization and management of county affairs. 26th ed., rev. Chicago, The Legal Adviser Pub. Co. 1910. 863 pp.
Indiana, State Board of Accounts. Information concerning the business in county and township offices during the fiscal year ending Dec. 31, 1911. (Indianapolis, 1912.) 352 pp.
Lapp, J. A. “Checks on County Government in Indiana.” Annals of American Academy, May, 1913. pp. 248-254.
Wilhelm, L. W. Local Institutions of Maryland. Baltimore, N. Murray, publication agent, Johns Hopkins University, 1885. 129 pp. (Johns Hopkins University studies in Historical and Political Science, 3rd ser. v. 5-7.)
Scroggs, W. O. “Parish Government in Louisiana.” In Annals of American Academy, May, 1913, pp. 39-47.
Bemis, Edward W. “Local Government in Michigan and the Northwest.” Read before the American Social Science Assn., Sept. 7, 1882. Baltimore, Johns Hopkins University, 1883. 25 pp. (Johns Hopkins University Studies in Historical and Political Science. 1st ser., v.)
Carter, C. P. The Government of Missouri. Boston, New York, Silver, Burdett and Company (1912). 171 pp. (with Lansing, Robert, Government: Its Origin, Growth and Form in the United States ... New York, Boston, 1902). “The County”: pp. 39-47.
Loeb, I. “County Government in Missouri.” In Annals of the American Academy, May, 1913, pp. 48-61.
Paul W. “County Management in New Jersey.” In Proceedings of the Conference for the Study and Reform of County Government (second meeting). 1914. The New York Short Ballot Organization.
—— “The Movement for County Reorganization in New Jersey.” Annals of American Academy. May, 1913. pp. 255-257.
Gilbert, F. B. Bender’s supervisors’, county and town officers’ manual, containing the county, town, highway, general municipal, tax and poor laws in full and all other statutes of the state of New York, relating to boards of supervisors, town boards, county and town officers, and the affairs and business of counties and towns, as amended to the close of the legislature of 1912 ... 6th. ed. Albany, N. Y. M. Bender & Co., 1912. 1349 pp.
Cartwright, O. G. “County Government in New York State.” Annals of the American Academy. May, 1913. pp. 258-270.
Gilbertson, H. S. “The New York County System.” American Political Science Review. Aug., 1914. pp. 413-430.
Buck, Geo. S. “The Organization of County Government.” In Proceedings of the Academy of Political Science, New York. Jan., 1915.
Rockefeller, L. K. “County Government from the Comptroller’s Standpoint.” Proceedings of the Conference for the Study and Reform of County Government (third meeting). 1914. The New York Short Ballot Organization.
Guess, W. C. County Government in Colonial North Carolina. 1911. 39 pp. (The University of North Carolina.) The James Sprunt historical publications pub. under the direction of the North Carolina Historical Society, v. II, No. I.
U’Ren, W. S. “State and County Government in Oregon and Proposed Changes.” Annals of American Academy, May, 1913. pp. 271-273.
Ramage, B. J. Local Government and Free Schools in South Carolina. Baltimore, Johns Hopkins University, 1883. 40 pp. (Johns Hopkins University Studies in Historical and Political Science. 1st ser., v. 12.)
Channing, E. “Town and County Government in the English Colonies of North America.” The Toppan prize essay for 1883. Baltimore, N. Murray, publication agent (Johns Hopkins University Studies in Historical and Political Science, 2nd ser., X) 2nd ser., v. 10.
Hitchcock, L. E. Powers and Duties of Sheriffs, Constables, Tax Collectors, and other Officers in the New England States. With forms and precedents. 2nd ed. Boston, Little, Brown & Co. 1914. 472 pp.
Updyke. “County Government in New England.” In Annals of American Academy, May, 1913. pp. 26-37.

Studies and Surveys of Individual Counties

Alameda County, Cal. Bulletins covering the investigation of many phases of county administration. Tax Association of Alameda County, 823 Oakland Bank of Savings Building, Oakland, Cal.
Cook County, Ill. Surveys of various county offices, in pamphlet form. Bureau of Public Efficiency, 315 Plymouth Court, Chicago, Ill. 1911-1916.
Monroe County, N. Y. Government of Monroe County, N. Y., organization and functions. The New York Constitutional Convention Commission. 1915.
Nassau County, N. Y. Government of Nassau County, N. Y., description of organization and functions. Commission on the Government of Nassau County, Mineola, N. Y. 1915.
Suffolk County, N. Y. First Annual Report of the Suffolk County Taxpayers’ Association. 1915. (Secretary’s office, 44 Court Street, Brooklyn, N. Y.)
Westchester County, N. Y. Various pamphlet publications of the Westchester County Research Bureau, 15 Court Street, White Plains, N. Y. 1911-1916.
Hudson County, N. J. The government of Hudson County. (Dissertation for Ph.D. degree, Columbia University, 1915.) The Citizens’ Federation of Hudson County issues reports on special phases of Hudson County affairs from time to time.
Cuyahoga County, O. The Civic League of Cleveland, Guardian Bldg., Cleveland, publishes reports on county offices and methods from time to time.
Milwaukee County, Wis. The Milwaukee County government, a bulletin of the City Club (a joint report of the committee on county administration, civil service and county institutions and buildings). 1915. The City Club of Milwaukee, Wis.

City-County Relations

Bruere, H. and Wallstein, L. M. Study of County Government within the City of New York and a Plan for its Reorganization. Prepared for the New York Constitutional Convention, 1915. 44 pp., diagrams, tabulations.
Chicago Bureau of Public Efficiency. The Nineteen Local Governments of Chicago, 1915. 30 pp., charts.
Hormell, O. C. “Boston’s County Problems.” Annals of American Academy, May, 1913. pp. 134 et seq.
Hatmaker. “Schenectady’s City-County Plan.” In Proceedings of the first Conference for better County Government. The New York Short Ballot Organization, 1914.
King, C. L. “Report of the City-County Committee of the American Political Science Assn.” American Political Science Review, Feb., 1914, sup., v. 8: 281-291.
Long, P. V. “Consolidated City and County Government of San Francisco.” American Political Science Review, Feb., 1912, sup., v. 6: 109-121.
Ludington, A. “The Relation of County to City Government in New York.” American Political Science Review, Feb., 1912, sup., v. 6: 73-88.
Paul, W. and Gilbertson, H. S. “Counties of the First Class in New Jersey.” American Political Science Review, Feb., 1914, sup., v. 8: 292-300.
Young, T. P. “The Separation of City and County Governments in St. Louis, History and Purposes.” American Political Science Review, Feb., 1912, sup., v. 6: 97-108.

Charities

Burritt, B. B. “County Management of Charities and Special Institutions in our Own State (N. Y.).” In Proceedings of the Conference for the Study and Reform of County Government (second meeting). The New York Short Ballot Organization.
Harris, E. F. “Charity Functions of the Pennsylvania County.” Annals of American Academy, May, 1913, pp. 166-181.
Haviland, C. F. The Treatment and Care of the Insane in Pennsylvania. The Public Charities Association. Philadelphia, 1915. 94 pp.
Lane, Winthrop D. “A Rich Man in the Poor House.” Survey, Nov. 4, 1916.
Macy, V. E. “Administration of County Charities.” In Proceedings of the First Conference for better County Government. 1914. The New York Short Ballot Organization.

Civil Service

Belcher, R. W. “The Merit System and the County Civil Service.” Annals of American Academy, May, 1913, pp. 101-111.
Paul, W. “The County Employee.” Annals of American Academy, May, 1913, pp. 81-84.

The Coroner

Chicago Bureau of Public Efficiency. Administration of the Office of the Coroner of Cook County, Ill. 1911. 68 pp.
Civic League of Cleveland (formerly the municipal association). The Coroner’s office, 1912. 30 pp.
Du Vivier, J. “Abolishment of the Coroner’s Office.” In Proceedings of the Conference for the Study and Reform of County Government (second meeting). 1914. The New York Short Ballot Organization.
New York Short Ballot Organization. Abolishment of the office of Coroner in New York City. 1914. 16 pp.
Schultz, O. T. “The Coroner’s Office.” In Annals of American Academy. May, 1913, pp. 112-119.

County Courts and Court Clerks

Bureau of Public Efficiency, Nov., 1912. 44 pp. Administration of the Office of Clerk of the County Court of Cook County, Ill.
Harley, H. “The County Judiciary.” In Proceedings of the First Conference for better County Government.
The Chicago Bureau of Public Efficiency. The Judges and the County Fee Offices. 1911. 15 pp.
Woods, K. P. “The Passing of County Courts.” (In Virginia.) Outlook, Jan. 31, 1903, v. 73: 264-265.

County Politics

Jones, C. L. “The County in Politics.” In Annals of American Academy, May, 1913, pp. 85-100.

The District Attorney

Gans, H. S. “The Public Prosecutor: his Powers, Temptations and Limitations.”... Annals of American Academy, May, 1913, pp. 120-133.

Financial Administration

Boyce, J. E. “County Budgets: Economy and Efficiency in Expenditures.” Annals of American Academy, May, 1913, pp. 199-212.
Buck, Geo. S. “The County Auditor.” In Proceedings of the first Conference for better County Government. The New York Short Ballot Organization. 1914.
Cartwright, O. G. “County Budgets and their Construction.” Annals of American Academy, Nov., 1915, pp. 223-234.
Chicago Bureau of Public Efficiency. “The Budget of Cook County, Ill.” Jan., 1911. 54 pp. “The office of Treasurer of Cook County, Ill.” 1913. 68 pp.
Cookingham, H. J., Jr. “Taxation and County Government in New York State.” In Proceedings of the First Conference for Better County Government.
Coker, F. W. “Administration of Local Taxation in Ohio.” Annals of American Academy, May, 1913, pp. 182-198.

Home Rule

National Municipal Review. “County Home Rule,” Jan., 1913, sup., v. 2: 2-7.
Works, L. R. “County Home Rule in California.” Annals of American Academy, May, 1913, pp. 229-236.

Prisons

“Centralization of the Custody of Prisoners within the City of New York.” Report of the Commissioner of Accounts, Transmitted to the Mayor, Feb., 28, 1916.
Lewis, O. F. “County Prisons.” Proceedings of the Conference for the Study and Reform of County Government, first meeting. The New York Short Ballot Organization, 1914.

The Recorder

“Administration of the Office of Recorder of Cook County, Ill.” Report prepared for the judges of the circuit court by the Chicago Bureau of Public Efficiency, Sep., 1911. 63 pp.
“The Recorder’s Office.” Civic League of Cleveland, Mar., 1914. Report No. 3, Efficiency Series. 25 pp.

Reorganization

Childs, R. S. “The County Manager Plan.” In Proceedings of the first Conference for Better County Government. 1914. The New York Short Ballot Organization.
—— “A Theoretically Perfect County.” Annals of American Academy, May, 1913, pp. 274-278.
“The Short Ballot County Amendment.” Brief submitted to the Constitutional Convention of New York, 1915. The New York Short Ballot Organization, 1915. 16 pp.

The Sheriff

Cawcroft, E. “The Sheriff and a State Constabulary.” In Proceedings of the First Conference for Better County Government.
Civic League of Cleveland. (Formerly the municipal association.) The Sheriff’s office, 1912. 26 pp.

State Administrative Supervision

Brindley, J. E. “State Supervision of County Assessment and Taxation.” Annals of American Academy, May, 1913, pp. 213-226.

State Police

“Why the Farms and Villages of New York State Need Protection.” 1915. Committee for a state police, 7 East 42nd Street, New York, N. Y.
“Why New York Needs a State Police.” 1915. Committee for a state police.