THE WARDENS’ MEETING AT GLEN MILLS AND SLEIGHTON FARM, OCTOBER 4-5, 1917.
Reported by Florence Bayard Kane.
In view of the fact that some important penal legislation was enacted by the General Assembly of 1917, it seemed wise to call a conference of wardens, inspectors and commissioners to consider the effect of this legislation and how it might be put into practice.
Hence a call for such a conference, issued by The Pennsylvania Prison Society and by the Prison Reform League of Pennsylvania, was sent to county commissioners and prison officials in the eastern and central parts of the Commonwealth. Mrs. Martha P. Falconer, superintendent of the Girls’ School at Sleighton Farm, very kindly offered to entertain the members of the Conference at this institution on the afternoon and night of October 4th, and Mr. F. H. Nibecker, superintendent of the Boys’ Department at Glen Mills, cordially agreed to take care of the company on the 5th inst.
Responses from those invited indicated much interest, and the attendance fully justified our expectations.
Nine wardens were present from the county prisons of Easton, Ebensburg, Harrisburg, Hollidaysburg, Lancaster, Media, Norristown, West Chester and Wilkes-Barre. Seventeen Inspectors were in attendance representing the counties of Berks, Blair, Chester, Dauphin, Delaware, Lehigh, Lancaster and Montgomery. The counties of Bucks, Chester, Columbia and York were represented by one or more of their Commissioners.
The State Board of Charities was represented by Mr. Louis Wolf, a member of that body, and by Wm. McGarry, an agent of the Board.
Judge J. F. Hause, of West Chester, graced the occasion with his presence.
Miss Florence Bayard Kane, of the Prison Reform League, and John Way and Albert H. Votaw, of the Pennsylvania Prison Society, were present. Robert Dunning Dripps, Esq., Secretary Public Charities Association, was present on the evening of the 4th inst.
Most of the company arrived about noon at Sleighton Farm and were soon doing ample justice to a bountiful lunch provided by the efficient helpers of Mrs. Falconer. After an inspection of the buildings and grounds and noting the excellent work of the girls on the Farm and the fifty-acre kitchen garden the company assembled in the commodious audience room to consider the objects of the meeting.
Secretary Votaw called the meeting to order and served thereafter informally as Chairman. He said he was convinced that persons engaged in the same sort of work often were the gainers by comparing their views and experiences. As a teacher he had learned to value the opportunities afforded by the Teachers’ Institutes. Not that he always adopted new methods proposed, for he learned that the personal equation must be considered and that all persons were not adapted to use identical methods. What would succeed with one might result in failure with another. At the same time, there was inspiration and much profit from such conferences. He ventured to say that the county prisons in the Commonwealth of Pennsylvania were all diverse in their administration. There was lack of team work. While it was not recommended that all should follow exactly the same form of management, there was undoubtedly much to be gained by comparison of methods and results.
This meeting, however, was called particularly to consider recent legislation. The following letter from Governor Brumbaugh, addressed to E. M. Wistar, President of the Pennsylvania Prison Society, was read:
“Mr. Edward M. Wistar,
Philadelphia, Pa.
My Dear Mr. Wistar:
I have the letter of Mr. Votaw, calling my attention to a meeting to be held at Darlington, Pa., October 4th and 5th.
The purpose of the meeting, as I understand it, is to ascertain in what way recent legislation affecting prison labor may be most practically and effectively applied to conditions in this Commonwealth. I am heartily in favor of the wise employment of the prisoners in our penal institutions, and steadfastly favored and approved all legislation having that end in view.
I consider, therefore, this conference most opportune, and trust that its deliberations may result in practical guidance of great moment to Pennsylvania.
It may be of interest to you to know that we are now planning to utilize such of our prison labor as we can in connection with the Highway Department, not only because we believe this is right as a fundamental principle, but because in this emergency it will release other labor for national service without impairing the road construction program of the Commonwealth.
I wish your convention great success, and beg to be
Very truly yours,
M. G. Brumbaugh.”
The wardens were first asked to relate their experience with regard to the recent law allowing the wardens or superintendents of prisons to release the inmates for work on land belonging to the county or state.
Warden George W. Allen, of Media, being called upon, told the Conference that he had been employing from seven to fourteen men on the county farm since early in the spring, even before the Act had received executive sanction. At his request Judge Isaac Johnson had, as privileged under the law granting parole to county prisoners, paroled certain selected inmates for this purpose. None of the prisoners had violated their parole nor attempted to escape. They were taken in a van every morning to their work with one guard, and had worked faithfully and with pleasure. They had cultivated about 20 acres of land. The entire cost of the venture was about $1100.00, a sum which the results had fully justified. The expense had been equally shared with the Poor Directors and also the proceeds. They had raised cabbage, soup beans, lima beans, carrots, turnips, potatoes, beets, tomatoes and other produce. What was not used at once by the prisoners was dried, canned or stored for winter use. No wages was paid to the men. The result had been satisfactory to all parties concerned.
Dr. J. K. Weaver, Prison Inspector, of Norristown, informed the assembly that nineteen men had been sent to the Poor Farm, whose officials had taken charge of them and had provided them with food and lodging. There had been no difficulty whatever in maintaining discipline. The men had worked well and with enjoyment. A few privileges were allowed, such as swimming in the river when the day’s work was done, and no one had attempted to escape. They were paid 60c. a day for their work, payable at the time of their release. One man earned $52.80.
Warden Lemuel Roberts, of the Norristown Prison, informed the meeting that this employment of prisoners in Montgomery County had been initiated by presenting a petition to the Court to parole a few selected men to work on this Farm. The Court consented to parole three men for this purpose, and the experiment was so completely successful that the number thus paroled was gradually increased to nineteen. He was convinced that the payment of 60c. per day had served a double purpose in giving the men an incentive and a reward for good conduct and also in enabling them to go forth with a little cash to pay their expenses while searching for further employment. Without money and without friends, very often released convicts resort to crime for their maintenance.
Warden John F. Clower, of West Chester, stated that the County Home had refused to employ prisoners for the reason that they had already an abundant supply of labor from their own inmates. They had bought from the Farm supplies of vegetables at a lower rate than in the open market. For winter use they had canned 400 jars of tomatoes and a large quantity of sauerkraut.
Five of the inmates had been paroled to neighboring farmers, for whose labor the prison had received $25.00 per month, the prisoner receiving no large share. In this prison the men are almost all employed constantly at work in making carpets, caning chairs and weaving cloth for their clothing. In 1917 they had sold products amounting to $5,387. A small allowance, about 19c. weekly, is paid to the prisoners.
Mr. Thomas J. Fretz, an Inspector of Lehigh County, stated that a number of prisoners had been paroled directly to farmers. It was stipulated that the men should receive the prevailing customary wage for this work and that this sum should be paid to the families of the paroled men, or given to them on their discharge. In some instances wages sufficient to pay certain costs had been deducted from the amount paid to the prisoner.
Mr. Edward Taenzer, Inspector of Berks County, informed the meeting that this season they had employed prisoners on their County Farm, and that the experiment had been a decided success from every point of view. Two years ago an effort had been made to employ the prisoners on this land, and this proposition had been heartily approved by the Inspectors, the County Commissioners, the Directors of the Poor and the local press. The Solicitors of the Boards, however, held that such action was illegal, admitting that work on roads was the only employment allowed to prisoners except behind the bars. Since the beginning of the great war Mr. Taenzer and others renewed their efforts to find employment for the prisoners on farms, meeting with formidable opposition, but since the legal bar was removed by recent legislation the prisoners have been hard at work, giving satisfaction to all concerned. The selected men are taken by conveyance to the Farm and work for eight hours daily. They have produced from four to five hundred bushels of potatoes and a like proportion of other vegetables. Just now they are working on the drainage project. The Poor Directors provide the midday meal, and it is expected that hereafter they may provide for the necessary supervision. The men receive no pay for their labor, but esteem it a great privilege thus to be employed.
Secretary Votaw stated that the consensus of opinion was evidently favorable to the employment of county prisoners on farms as far as possible. He invited Agent McGarry, of the State Board of Charities, to comment on the attitude of this Board on this subject. Mr. McGarry said that the Board had for many years advocated such employment and that the emergency created by the war had made such legislation possible.
The Acting Chairman then called the attention of the conference to Act. No. 399, which received the approval of the Governor on the 20th of July, 1917. The law had practically been unheralded, but its execution would revolutionize conditions in all the counties of the State. The Act provides for the division of the State into nine Districts, containing from five to ten counties, in each of which Districts there shall be established an institution to which all convicts, sentenced to a term of ten days or more, may be sent. It seemed to be formulated with a view to the general betterment of the prisoners confined in the county jails. The fact that there was no clause making it compulsory to send prisoners to such institution was regarded as a weak feature.
General discussion followed. There were many present who had not seen the law, or even heard thereof. There was a general opinion that this law should be carefully considered before the conference should come to a settled conclusion.
Secretary Votaw hoped that at least one of the nine Districts would give the experiment a fair trial. It was evident that existing conditions in the county jails would have to be changed, and the officials ought to be warned that some action must be taken. Was there any better proposition to be considered? Since the Allegheny penal farm already contained five or six hundred acres, and since most of the adjoining counties were already sending many of their prisoners there, paying at rate of 50c. daily per prisoner, he suggested that the District in which this workhouse was situated might readily convert this institution into one of these Industrial Farms. While at this institution to which convicts from Pittsburgh are sent, it seems possible to put ten-day, and even five-day, prisoners to some profitable work, it would be poor economy to transport ten-day prisoners from the more distant counties to said District Farm.
Mr. McGarry raised a question as to the disposal of existing jail properties.
Secretary Votaw said that they would be still needed for short termers and persons awaiting trial, but that portions of such jail property might be profitably disposed of. Very often the county jail stood on rather valuable real estate which might sometimes be sold for sufficient to meet the county’s quota on the new District Institution. To illustrate that existing prisons must still be used as places of detention, it was shown during the meetings that at the recent visits of Secretary Votaw in his capacity of Official Visitor, one third of the inmates in thirteen of the larger counties were being detained for trial. It is to be hoped that the problem of furnishing employment to the untried prisoners may be found.
Mr. Louis Wolf was inclined on first reading of the bill to think that it would prove impracticable.
It was explained that this Act might have imperfections, but that it was really the only solution of the problem of employment for prisoners as far as conditions existed in this Commonwealth. If the products of convict labor are not allowed to be sold in the market some other way must be devised to set these idle people to work. In these times of dire stress, not an ounce of energy should be lost. Our Government needs the labor of every man, good or bad, in order to increase the production of food supplies, and for manufacturing purposes. Wherever the farming proposition for prisoners had been fairly tried there was no indication of receding. Reports from most places where prisoners were employed in agricultural pursuits were enthusiastic. In the State of Massachusetts misdemeanants are generally sent to Bridgwater Industrial Farm where, under efficient management, several hundred acres of land, thought to be almost worthless, have been reclaimed, and now are returning a large yield of fruits, vegetables and grain crops. In the State of Indiana within the last three years a farm of about 1200 acres has been purchased by the State, to which now all misdemeanants sentenced to a term of sixty days or more in the county prisons are to be sent. It is at the option of the Court whether those sentenced for shorter terms shall be sentenced to this farm prison. Eventually it is thought this farm will be entirely self-supporting. There were many escapes the first year, but since a law has been enacted making it a penal offence to escape or to endeavor to escape the number of fugitives has greatly decreased. The proposition is not new and is being tried out with greater or less success.
Inspector W. B. Meetch, of Dauphin County, said that the prison at Harrisburg just now had a population of 207, of whom 53 were sentenced to a term of sixty days or more. These men might be available for farm work, but the Court is averse to the principle of parole. However, he was inclined to believe that the privileges of free men should be denied to the wrongdoer in order that there might be some contrast between the condition of the law-breaker and the man who was observant of the rules of justice. He would exercise great caution in reference to presenting them with the opportunities to escape. Men were sent to prison to be punished.
It was pointed out that the modern idea did not wholly discard the element of punishment in the treatment of criminals, but, for the benefit both of society and the individual, placed extreme emphasis on efforts to reform the wrongdoer and furnish him with incentives to become a useful member of the community instead of a perpetual menace. There is the publicity of a trial, the confinement to certain limits whether behind walls or within other definite limits, the restraint of a discipline to which a free man is not subject. This is regarded as sufficient punishment in these days. We have discarded the stocks, the pillory, cropped hair and the striped suit. The disgrace is sufficient without these barbaric accompaniments. In the effort to treat the criminal as a human being very much like the rest of us, since we all acknowledge that we have sinned, modern methods have found the best remedy for the restoration of the prisoner. If we treat him as an outcast, he will remain an outcast who will harry the community to the end of his days. Above all, cease to detain him in idleness, which is the worst remedy for immorality of any sort.
Warden Wm. A. McIlhenny, of Harrisburg, stated that there was no land owned by Dauphin County which was available for the employment of his prisoners. The county farm was limited in size and was cared for by the regular inmates of the County Poorhouse. He had no doubt that if the law allowed prisoners to work on other than county land, some kindly disposed land owners would freely grant land for such purpose.
THE WORK ON SLEIGHTON FARM.
Mrs. Falconer was called upon to explain the methods on Sleighton Farm. She made an earnest plea that women or girls who are prisoners be allowed to work in the open air. Although all the inmates of the institution have a thorough course in housekeeping and sewing, she was sure that these are not invariably the best occupations for women. She stated that there was no room for question that country life and sounds and smells and diverse occupations were the most helpful for such weak sisters as fall by the wayside. No other work is so suitable to children or adapted so well to their powers as work out in the open. She had felt it essential to have a woman of ability and character to have general management of the farm work, inasmuch as many of those committed to her care were, in a sense, oversexed and they needed to be associated constantly with good women. This was a rule in the selection of all her assistants. As far as possible, men are eliminated from the activities on the farm, so that these girls come entirely under the wholesome influence of young women specially trained for the various kinds of employment on the farm. The enthusiasm and enjoyment connected with the varied occupations on the farm have strong psychological value.
As “All work and no play makes Jack a dull boy,” so the same method would have the same effect on “Jill.” Hence, a reasonable amount of amusement is encouraged. Whatever gift any girl may have, in the line of song or music or recitation, is developed. They have various entertainments in their assembly room.
In consequence of the present stringency and high prices, she had been obliged to change the menu, and the results have been carefully observed. For instance, meat has been almost entirely dropped from the bill of fare, and so far there has been no indication that the health of her community had suffered. There is no tea or coffee for any one on the place, nor stimulant of any sort. They have abundance of milk, cottage-cheese, cocoa, cereals and all the dry and green vegetables they can eat. The ration has been scientifically studied so that the physical requirements may be satisfied. This report was exceedingly interesting to the wardens present, all of whom have been confronted with the serious nature of the food problem.
This summer a few of the girls in groups of four or five have been paroled to work on some neighboring farms. They receive twenty cents an hour for their labor and are allowed to retain their wages. In some instances they have gone without supervision. The results have been very satisfactory.
Miss Farrall, Head Farmer, spoke of the pleasure of the children in propagating the plants in the hot house, in setting out the plants, in watching their growth and in all the varied agricultural processes. Besides the actual work on the farm the girls had been employed in road-building, even the concrete work being done by them. They have installed a new drainage system. They are trained in the care of hogs and poultry, and on the newly acquired farm adjacent to their premises they hope soon to develop some dairy industry. The children have done nearly all the work on a fifty-acre garden. They have already gathered 1100 bushels of potatoes, and the harvesting of the crop is not complete. They have planted, cultivated and husked seventeen acres of corn. They are raising turnips, parsnips, salsify, beets, carrots, and have succeeded, in spite of the worms, in harvesting 1000 heads of cabbage. They had used their green house this season in drying large quantities of vegetables for winter use.
THE INTERMISSION.
In the intermission between the afternoon and evening sessions there were three events of considerable interest.
- A baseball game, in which a nine from the visitors contested with a nine of the school. No game of the year anywhere elicited more enthusiasm. The score was 15 to 12 in favor of the home nine. In the last inning the visitors, who had been somewhat ahead, went “all to pieces,” and the 500 girls retired from the bleaching grounds to their quarters exultant over the famous victory of the nine of Sleighton Farm.
- A delicious supper served by the girls of the farm.
- A charming vocal concert given by the girls in the Assembly Room, under the direction of Mrs. Falconer.
At 8.30 in the evening the conference assembled in the reception room of the Administration Building. Consideration of the bill providing for the establishment of nine industrial farms was resumed.
Mr. Robert Dunning Dripps spoke of the admirable purpose of the bill, though admitting that certain modifications were probably needed to render it thoroughly effective. He was emphatic in condemnation of the conditions now existent in the county jails. The employment of all prisoners must be guaranteed. So far as possible they should be employed in the open air, in order to build up their physical condition. Such work, under wise handling, has solved some of the economic problems of prison management. We have too many jails. Fewer prisons with equal conditions of population and opportunities could be administered more effectively and economically. Farm penal institutions in many places have gone beyond the experimental stage and have revealed amazing possibilities of reformation, economy and ease of administration. Witness our State Farm at Bellefonte, various penal farms in New York, the misdemeanant farms in Massachusetts and Indiana, and the large penal farm at Guelph, Ontario. Farm work could be managed by the inmates of county jails with less risk on the whole than by the convicts sent to the penitentiaries. If a few escape the harm they would do to any community would be less on the average than hardened convicts who receive the long sentences. He recalled that all properly managed insane asylums have their inmates in the open air as much as possible and give them every opportunity to engage in the work of raising the supplies of food. It is all wrong to pen up a thousand men in close confinement because some half dozen of them may try to escape. He did not speak as a mere theorist, because, as Director of Public Safety, he had been responsible for the management of the House of Correction, where he had observed the beneficial effects of working on the farm and the ease with which this sort of work could be administered.
Mrs. Falconer emphasized the viciousness of idleness. She knew of the wholesome results of allowing women to work in the open, and, of course, it must readily follow that men would be equally improved.
Mr. Pascoe, Warden of the prison at Easton, stated that he had about 100 prisoners who are only partially employed in carpet weaving. He has a small exercise yard where his men are allowed to parade about an hour daily. With his scant space and opportunities he is hampered. He would be very willing to make arrangements to have his men work on the Poor Farm about seven miles away if the authorities would grant the privilege. He is entirely aware of the evils of idleness, and would welcome the opportunity to employ his inmates in farm work. Possibly a few might escape, but the harm they might do would be entirely out of proportion to the injury done to the men by the present system of detaining them in idleness.
THE GLEN MILLS FARM.
It was the first visit of most of the men to this highly cultivated farm of 500 or more acres, and they were both surprised and delighted to have a visible illustration of what may be accomplished by lads and young men in the line of husbandry. They were received very graciously by Superintendent Nibecker, who, after some explanation of the general system, conducted them over the plantation. There was an exhibit of corn (many stalks being fifteen feet in height, with two ears), pumpkins, cowbeets, turnips, etc., which would make a creditable showing before any body of experts. The dairy of blooded stock was inspected, and a piggery inhabited by over 200 fine specimens of porkers was much admired for its fine sanitary condition. The report in 1916 showed that about forty products of the farm were valued at $23,581 and that the expenses charged to the farm amounted to $8,033, thus showing the handsome balance of $15,548 to the credit of the farming operations.
The Conference met for a brief session in the parlor of the institution. On motion, Mr. Edward Taenzer, of Reading, was made Chairman of this meeting. Mr. Votaw had already suggested that there might be a service in forming a more permanent organization of prison officials of this Commonwealth. There were many features of administration to be discussed, and he thought mutual benefit would accrue from an occasional conference, annual or semi-annual, to compare views and methods. Especially would such conference be of value and of great influence in being able to present to the General Assembly their united views, based on practical experience, with regard to proposed penal legislation, and also to suggest and promote measures for improvement of penal conditions. This proposition appeared to receive the unanimous endorsement of those present.
Chairman Taenzer suggested annual conferences and hoped that an effort would be made to equalize the working of the laws in all counties. Many of the counties operated under special legislation. The County of Berks, working under an Act of 1848, was at a decided disadvantage, compared with other counties. There was no uniformity in regard to turnkey fees, and many other customs, some of them belonging to a past age.
On motion of Mr. Votaw the following Committee was appointed to make arrangements for another similar conference to be held probably next autumn, and to draft regulations for the government of the body: Edward Taenzer, Chairman; Warden Clower, of West Chester; Warden McIlhenny, of Harrisburg; Warden Obetz, of Lancaster, and Agent McGarry, of the State Board of Charities. On motion, A. H. Votaw was appointed Secretary of this Committee.
A vote of thanks to Mrs. Falconer and to Mr. Nibecker was extended for their generous hospitality and for their many courtesies to the conference. It seemed that nothing which pertained to the comfort and pleasure of the visitors had been left undone.
The Conference adjourned with a feeling that this meeting had been successful and that a permanent organization would be of decided service to the best interests of the Commonwealth.
After a bountiful lunch, served by the assistants of Superintendent Nibecker, the members of this memorable Conference dispersed to their several homes.
ATTENDEES AT THE CONFERENCE ON THE GLEN MILLS FARMS OCT. 4-5.
Wardens.
| Wm. A. McIlhenny | Harrisburg |
| Rich. F. Pascoe | Easton |
| Lemuel Roberts | Norristown |
| John B. Riddle | Hollidaysburg |
| Edw. H. Knee | Ebensburg |
| J. Carson Obetz | Lancaster |
| Michael F. Whalen | Wilkes-Barre |
| John F. Clower | West Chester |
| Geo. W. Allen | Media |
Inspectors.
| Theo. J. Fretz | Allentown |
| Edward Taenzer | Reading |
| Dr. J. K. Weaver | Norristown |
| Jesse L. Jones | West Chester |
| J. Howard Lumis | West Chester |
| Alex. C. Whitcraft | West Chester |
| Wm. P. Sharpless | West Chester |
| E. Marshall Hamell | Media |
| F. G. Thomas | Yeadon |
| M. G. Brubaker | Lancaster |
| Adam Sweigart | Lancaster |
| Thomas Erb | Lancaster |
| Eli Good | Lancaster |
| D. G. Lindsay | Lancaster |
| Wm. P. Schwartz | Altoona |
| Calve Walker | Altoona |
| W. B. Meetch | Harrisburg |
Commissioners.
| John D. Jenkins | York |
| D. F. Knittle | Bloomsburg |
| D. M. Golder | West Chester |
| Watson Davis | Doylestown |
| Allen Zetty | Doylestown |
| Wash. Cadwallader | Doylestown |
| John E. Baldwin | West Chester |
Louis Wolf, Member State Board Charities.
Wm. McGarry, Agent State Board Charities.
Robert Dunning Dripps, formerly Director of Public Safety, Philadelphia.
Judge, J. F. Hause, West Chester.
Miss Florence Bayard Kane, Philadelphia, Member Prison Reform League.
John Way, Treas. The Penna. Prison Society.
A. H. Votaw, Sec. The Penna. Prison Society.
Phebe N. Votaw, Lansdowne.