Let me summarize very briefly some of the facts already stated, and point out also one or two additional reasons why such a union seems wise. You will recall that we agreed (1) that the purposes and methods of the probationary and parole supervision are similar; (2) that the same qualifications are needed in parole officers as in probation officers; (3) that the use of local officers for parole work would secure closer and more helpful oversight of those on parole; and (4) that such a combination would avoid unnecessary travel and duplication of work and would be a source of economy. In addition (5) both probation and parole officers often deal with the same persons. An offender who at one time comes before a court to be investigated by a probation officer, or who is placed by the court under the care of the probation officer, may at another time be on parole. Furthermore, other members of his family may at times be on probation or parole. (6) It is to the advantage of the local community to have an offender who is on parole in its midst, properly supervised by a local officer. (I have not time to discuss by whom these local probation-parole officers should be appointed and paid; but since local social conditions have usually contributed to the delinquency which has resulted in the commitment of offenders to institutions and so made them subjects for parole, and since they have been sentenced by local courts, it seems as proper that the local community, if deemed necessary, should furnish the parole officer, as that it should provide its own judge or probation officer.)
This plan of doubling up these two lines of work implies of course that there shall be an adequate number of probation officers, and that they shall be of the right sort. It is probable, however, that the increased importance of the officers, and the increased amount of work, which would result from such a change, would tend to secure the appointment of a more nearly adequate number of officers. Such a plan need not of necessity make any change in the matter of reports by the parole officers, to those in authority, or in the control over the parole officers.
Now I am well aware that objections will be raised to any such scheme of combining probation and parole work in the same set of officers. Let us look briefly at certain of the objections that may be offered. (1) Naturally many institutional authorities will probably desire to appoint their own parole officers, and to have them directly responsible to the institution. Should a personal desire, however, be allowed to stand in the way of efficiency? Should not that method of appointment be followed which will bring about the best results? (2) Another objection that may be raised by some institutional authorities is that parole officers should be attached to particular institutions in order to understand properly the institutional methods and aims. What is the benefit of such knowledge, however, if the parole officers are traveling about and can see the persons on parole so infrequently that they cannot apply the knowledge? (3) Again, the institutional authorities may contend that the standards of probation officers in judging whether persons on parole should be recommitted are less strict than those of traveling parole officers. Any such difference of standard, if it exists, is more than offset by the advantages of having local officers. At any rate it is a matter which could be adjusted by properly educating the probation and parole officers. In the long run the standards of the probation officers are probably just as likely to be right as those of the parole officers. (4) In the next place a critic might ask what would be done with females on parole. Of course we all recognize that girls or women on either probation or parole should be placed under officers of their own sex. If the local paid probation officers were all men, and there were cases of girls or women on parole, the situation could be met in the same way as if there were females on probation; namely, by securing a paid woman probation officer for part or whole time service, or, if that were impracticable, by enlisting the services of one or more women volunteers. (5) Another objection would be the fear that children on probation or parole would be harmed by being mixed with adults on probation or parole. The problem of separating children on parole from adults on parole is no more difficult than that of segregating children on probation from adults on probation. Likewise the keeping of parole cases apart from probation cases is only a matter of administration. Where there are enough children either on probation or parole to warrant the employment of officers exclusively for children, this should be done.
Wherever the parole work is being well done by officers devoting themselves wholly to parole cases, or by private agencies, I would not advise any change; but in most places very positive advantages would probably accrue from using local probation officers for both probation and parole cases. In New York State we have made a beginning in the direction of such a union of probation and parole. The Legislature of 1910 authorized probation officers to serve as parole officers, and a number of institutions have begun to avail themselves of the services of probation officers.
Fifth, benefits corresponding to those of state supervision over probation officers can be had through state supervision over parole officers. Regardless of whether parole work is carried on by probation officers or by special parole officers, the state should exercise general oversight over their work. For the sake of economy, co-ordination and efficiency this oversight can well be vested in the same state body that supervises probation officers. In this connection it may be mentioned that Governor Dix of New York State has recently recommended that supervisory authority over parole officers be conferred upon the State Probation Commission, and that its title be changed to that of State Probation and Parole Commission.
The probation and parole systems have come to stay, but they must so improve their operations as to be able to stand the most rigorous examination by both friendly and hostile inquirers. The increased financial support which both systems need will come only as the systems prove that they are succeeding as they should. I doubt if the parole system can stand the scrutiny and cold analysis, which will some day be brought to bear on it, unless it operates through local officers. The most hopeful way of getting faithful, competent local parole officers in most places would seem to be through the use of probation officers. With proper state supervision over both systems there would seem to be every reason to believe that this scheme of combining probation and parole supervision can be worked out in a practical way, and to the advantage of each system.
FOOTNOTES:
[1] Read at the National Conference of Charities and Correction in Boston in June, 1911.
[2] The nearest approach in New York State to the desirable restriction of the work of parole officers to a small area, is found in the parole work of the House of Refuge on Randall’s Island. Most of the boys paroled from this Institution live in New York City. Many boys from this institution, however, are paroled to other parts of the State: and in such instances the institutional parole officers may be unable to visit them oftener than once in three months or so.