The new scheme is working satisfactorily, and there are signs everywhere that the result has been to encourage and stimulate the action of the Societies by throwing a great and new responsibility upon them, and by placing in their hands a considerable sum of public money, to be spent according to their discretion and not according to a fixed and mechanical rule, as was formerly the case under the Gratuity system. There is every reason to hope that the system of aid-on-discharge, both in Convict and Local prisons, is now placed on a sound and effective basis, and that through its operation, many cases will be saved from a relapse into criminal ways, owing to the personal care and individual attention which the new system postulates as a condition of efficiency. During 1918, 21,388 convicted prisoners were discharged, of whom 7,719, or 36 per cent., were aided, and of these latter, 75 per cent. were suitably placed in good employment. Twenty-eight Aid Societies were able to find employment for over 50 per cent. of the cases aided by them.
The new system in each case, both for Local and Convict Prisons, furnishes a remarkable example in the application of what may be called the new spirit in the Prison Administration of this country, i.e., the cordial and harmonious co-operation between official and voluntary effort, which experience shows every day to be not only the best, but the only effective method for dealing with the problem of the discharged prisoner.
An important change has recently been made in the machinery of the Central Organization of Aid Societies. Prior to 1917, the central representation of Aid Societies had been by means of a Committee of the Reformatory and Refuge Union, known as the Central Committee of Discharged Prisoners' Aid Societies. The Reformatory and Refuge Union had, in the early 'sixties, warmly taken up the question of aid-on-discharge, and, by its energy and initiative, had become the principal instrument for the organization of Societies dealing with short-sentenced prisoners. In 1878, soon after the passing of the Prison Act, an important conference of Aid Societies was convened by the Union, at which a Committee was appointed having generally for its purpose to extend the operations of Aid Societies, as well as to maintain existing Societies and to increase their efficiency. This historical connection with the Reformatory and Refuge Union remained till the present time, and of late years, the Central Committee, under the able direction of its Chairman, Lord Shuttleworth, has rendered valuable service in calling attention to various reforms by means of conferences invoked, from time to time, in different centres. There had, however, been manifested of late years a growing desire on the part of many Societies for some change in the central organization, which should have the effect of strengthening the Executive function of the Central body, so that its influence might be extended and advantage taken of its large common stock of experience for the investigation of new methods of development. The Chairman of the Royal Aid Society, Mr. F.P. Whitbread, acting in agreement with the representatives of some of the leading Societies, proposed a scheme for the establishment of such a Central Executive body, to meet periodically for discussion, and with power to appoint sub-Committees to enquire, and report, and advise as to the adoption of improved methods of relief for the various categories of prisoners of both sexes. The new body, known as the Central Discharged Prisoners' Aid Society, was formally instituted by general consent at the beginning of 1918, Mr. Whitbread being elected Chairman of the Central Executive Committee, and the Commissoners were invited to nominate three members to serve on the Executive. The new system is only a variation of that hitherto pursued; but its effect will be to bring a more direct influence on the various Societies, all of whom will be represented on the Executive. In this way not only uniformity of procedure, but an agreed policy in the pursuit of a common purpose, is likely to result. It is only the complement and the fulfilment of the public-spirited and beneficent work undertaken in the beginning by the Reformatory and Refuge Union, acting through the Committee of 1878, and to that body must be given the credit not only for pioneer work in originating the system of aid-on discharge in this country, but for the growth of public interest and zeal in the development of this particular branch of social work, to which the recent change of methods bears witness.
During recent years, the work of Aid Societies has been extended to the assistance of the wives and families of men undergoing imprisonment, and the steps taken will insure that, in future, no deserving case will be overlooked, and the suffering that has been endured by hundreds of innocent women and children will become a thing of the past. Various agencies have rendered assistance in making the necessary inquiries, chief among them being the National Society for the Prevention of Cruelty to Children, the Church Army, and the Charity Organization Society.
Owing to the War, no general effect has yet been given to the powers taken by Section 7 of the Criminal Justice Administration Act, 1914, to subsidise a society for the care and control of persons under the age of 21, being either on Probation, or placed out on licence from a Borstal Institution or Reformatory or Industrial School, or under supervision within the meaning of Section 1 (3) of the same Act (vide page 82). As President of the newly-constituted Central Committee of Discharged Prisoners' Aid Societies, I recently took the opportunity of appealing for the establishment of a National Society for the Prevention of Crime and for the Protection of the Young Offender. All these categories of young persons named are now being attended to by different Agencies or persons, the same agent often acting for different classes, though not under the same authority. Such a National Society, though not interfering with liberty of action of each, would co-ordinate the whole, and such exchange of voluntary service might be of the greatest benefit, and would provide the rallying point for all forces, both secular and religious, now occupied in the task of rehabilitating those who have fallen under the ban of the criminal law.
So far, I have dealt only with "Patronage," as applied to Convict and Local Prisons. There are two other categories of prisoners who are dealt with on discharge in a different way, i.e., those discharged under the Prevention of Crime Act, 1908 (a) from Borstal Institutions (referred to in a former chapter): (b) from Preventive Detention.
The Gratuity System still remains in force for both these classes, its object being, in the former case, that the inmate should have a small pécule at his disposition, which, taken in conjunction with such assistance as the Borstal Association are able to give, may furnish material help towards his reinstatement; and, in the latter, where a prisoner may be awarded 1d., 2d., or 3d., for every working day according to the nature of work, and skill, and industry displayed. The money thus gained may be spent, either in purchasing certain articles in the canteen, or be sent to a member of his family: if accumulated, it would, in the event of conditional licence, be paid over on the prisoner's behalf to the authorities of the Central Association to be expended in such way as they may think fit for his benefit.
The Gratuity System also remains in force for those young prisoners who are treated under the "Modified" Borstal System in Local Prisons, as before explained, the object being not only to provide a stimulus for labour and good conduct, but to furnish means for material aid on discharge in cases considered by the Borstal Committee operating at each Prison, for the purpose of the reinstatement of these lads in honest industry. Moreover, they are not entitled to earn remission in the same way as are other prisoners under the provisions of the Prison Act, 1898. It is because ordinary prisoners have enjoyed this privilege since 1898 that it was found possible to abolish the Gratuity System for them, the necessary stimulus for industry with good conduct being provided for by the hope of remission of sentence, which experience shows to be more effective for the purposes of discipline than the fear of losing any portion of the money to which they may have become entitled under the Progressive Stage System.