The Vagrancy Problem. / The Case for Measures of Restraint for Tramps, Loafers, and Unemployables: With a Study of Continental Detention Colonies and Labour Houses

In the prison accounts no allowance is made for the domestic and farm work done by the prisoners. In calculating the value of all work done for the Imperial and State authorities and for the general Prison Administration wages are reckoned at 40 pfennige (5d.) per head per day.

"This rate of wages, which is far less than that paid by employers, is taken arbitrarily, but in order to simplify the trade accounts and particularly accounts with the various State authorities, a uniform rate was necessary. If the rate is low, the Prison Administration must console itself with the reflection that its losses imply saving to other branches of the State service; the State, as a whole, does not suffer injury. Moreover, the full value of the prisoners' work now goes to the State, and not as formerly to private employers, and free labour no longer suffers from the competition of prison work."[62]

Wages ranging, according to capacity and diligence, from 1 to 20 pfennige (100 pfennige =1s.) per day in the case of criminal prisoners, and from 1 to 30 pfennige per day in the case of correctional prisoners, are credited to the men, with the object of giving them a favourable restart in life on their discharge. No part of the accumulated bonuses is paid over during imprisonment until 30s. has been earned by criminal prisoners, and 20s. by others, except that payments may be made to a man's family out of his account; but one half of all earnings beyond the minimum stated may be used in the purchase of extra food, books, clothing, etc., though not of tobacco, the smoking of which is not allowed.

The following statement gives the yearly cost per head in the financial year April 1, 1907, to March 31, 1908, of the whole of the inmates of the Prussian Labour Houses, with the value per head of the produce and work done and the amount per head which fell upon the public funds:—

It appears from this statement that the gross annual cost per head ranged from £13 18s 10d. in the case of the Labour House at Hadamar (a small institution) to £39 11s. at the Labour House at Moringen, and that the net cost to the State ranged from 14s. 10d. per head in the case of the Labour House at Glückstadt to £32 9s. at Moringen.

CHAPTER VI.

A GERMAN TRAMP PRISON.[63]

The German method of dealing with vagrants and loafers may be studied in its practical details with great advantage by visiting the Labour House of Benninghausen, in the Prussian Province of Westphalia. The establishment is situated in the open country, ten or twelve miles distant from the old town of Soest, and its high boundary walls and spiked fences enclose an area of about twelve English acres. The nearest railway station is four or five miles away, and the visitor's first impression is that of a sparsely populated country, in which the prisoners who from time to time manage to elude the eye of their warders can have but little chance of successful flight. The Labour House was built in 1821 to accommodate 410 persons, and it is administered by the Government of the Province. The books of the establishment value the land at £1,022, while the buildings are insured for £19,950, and the furniture, equipment, and material for £5,329.

Benninghausen is an admirable example of the application of the allopathic principle to penology. As sloth is the vice which brings the majority of prisoners within its walls, so rigorous exertion is the method of cure that is followed. The House is the veriest hive of industry. The idea would never occur to you that these groups of diligent workers, engaged in all sorts of useful crafts and employments, were not long ago wandering aimlessly about the country cherishing the delusive idea that work was beneath contempt, and that the dignity of man consists in requiring someone else to tie your bootlaces. Yet one important principle is strictly followed—whatever the work done, it is not allowed to compete with the free labour market. Hence, efforts are first directed to the provision of every possible need of the Labour House itself and of its inhabitants. This applies not only to the provision of food, but also to the weaving of materials, the making of iron and woodwork, the carrying out of repairs, and other matters of domestic economy. Beyond that the similar needs of other provincial institutions—like the Asylums for the Sick, for the Imbeciles, for the Blind, and for the Deaf and Dumb—are supplied as the convenience of the Labour House allows. This is all done, of course, on a business footing. An accurate account is taken of the labour employed, and the wages of this labour, reckoned on a moderate scale, plus the cost of material and a slight profit to cover contingencies, constitute the price charged by the Director for the goods he sells.

The Province of Westphalia is overwhelmingly Roman Catholic, but as the Benninghausen Labour House is the only one in the province it has to be conducted on what is known as the "paritative" basis; it serves for both confessions, though each has its special chaplain. At the time of my visit the institution was housing temporarily, in addition to the ordinary subjects of correction, a number of lads and girls, the children of abandoned parents, the charge of whom had been undertaken by the Poor Law Authority in virtue of the law of 1890, and for whom more suitable provision did not exist at the moment.

The numbers of detainees dealt with during the financial year 1907-8 were as follows:—

Those committed in 1907-8 had committed the following offences:—

Of the men newly admitted, 177 had been detained in a Labour House before, 64 of them more than three times, and the great majority had been imprisoned.

Structurally, the Labour House is not, perhaps, a model of what such an institution might and should be in these days, nor is this surprising when it is remembered that it has stood now for three generations, yet its arrangements are, within the limits determined by space and the architectural ideas of ninety years ago, excellent, and they are certainly excellently supervised. There are three separate blocks of buildings. The principal one contains the administrative rooms, the day-rooms, the dormitories, baths, and kitchens. Separate departments, without contact of any kind, are provided for the sexes, the women being lodged on the ground floor and the men above. The second block contains the workrooms, of which there are five, besides the large bakery and washhouses, viz., a workshop for joiners and carpenters, one for weaving, one for cigar making, one for shoe making and a smithy and machine shop. The third building is the hospital, and is sufficiently isolated. This is not intended, however, for the chronically sick, who, with the physically disabled, are transferred, on medical certificate, to the Provincial Poorhouse and Hospital. Cases of child-birth are removed betimes to the Maternity Hospital, and the mothers afterwards return to the Labour House to complete their terms of imprisonment.

The bedrooms are plain yet light and cheerful apartments, not over-large, but as fresh and airy as an abundance of open windows can make them. Each prisoner has his own little iron bedstead, with straw pallet and pillow, and a coloured counterpane, and his name is boldly written at the head. The utmost care is taken to lodge the prisoners according to age, character, and characteristics. "We have separate bedrooms for the old, the middle-aged, and the young, separate rooms also for the first offenders and for the recidivists," said the Labour Inspector who showed me round the institution, "for we study peculiarities as much as possible. We also study their comfort," he added, "for we put all the snorers together."

The day begins for the inmates at 4.30 during the summer months (April 1 to September 30), and at 5.30 during winter and on Sundays and festivals. The hours are divided as follows:—

4.30 a.m.—At the sound of the bell every prisoner has to rise, dress, and wash, and in a quarter of an hour must have arranged his bedclothes and be ready to leave the dormitory.

4.45 a.m.—Assembling in the corridors the prisoners are numbered, after which (so runs the "Order of the Day"), "they shall offer up at word of command (auf Commando) a silent prayer." Then the field labourers, the implement room workers, and the bakers go to the dining rooms, and the weavers, tailors, shoemakers, cigar makers, and the female inmates to the workrooms, there to begin at once their work.

4.50 a.m.—The bell sounds for the morning meal (soup and bread), the inmates going to the same in bands in charge of the overseers.

9.0 a.m.—Work is then continued without interruption until 9.0, when there is a pause for a quarter of an hour for bread and beer.

11.40 a.m.—A pause for dinner, which is partaken like breakfast in bands. (For the outside labourers a different order is followed.)

12.0 to 1.0 p.m.—A pause, during which the prisoners have at least half an hour in the open air.

4.0 p.m.—A pause of a quarter of an hour for bread and beer.

7.15 p.m. (in winter and on Sundays and festivals, 6.15).—The bell rings for supper, and work ends for the day.

7.50 p.m.—The prisoners are examined for the detection of forbidden articles, and at 7.55 they are marched off to bed.

The work-day is thus about twelve hours in summer. But while, as a rule, the hours are the same for all, work is not altogether measured by time, but according to the capacity of the individual inmate, and where the tasks imposed are unfulfilled at the close of the day, owing to evident sloth or insubordination, some sort of punishment follows.

The dietary on ordinary work-days is as follows:—

Morning.—Coffee with milk and bread.

Noon.—Peas, beans, or lentils with potatoes; vegetable soup with potatoes; cabbage or turnips, with potatoes (the portion of potatoes allowed is 750 grammes for men and 660 grammes for women); or fresh fish and potatoes.

Evening.—Soup, made with rye or wheaten flour, bread, oats, buckwheat, rice or potatoes. (Of bread 550 grammes are allowed to each man and 400 grammes to each woman daily). At Easter, Whitsuntide, Christmas, and on the Emperor's birthday, beef or pork, with beer, is given. Twice a week 100 grammes of meat may be served to men, and 80 grammes to women, instead of the fat which enters into the noon meal. Once a week cheese (100 grammes) is served to men and women, and once also a salted herring.

The whole of the prisoners are kept to work of a kind suited to their strength, capacity and sex, their employment being determined by the Director and the resident doctor together. The principal methods of employment are the following:—

(1) Farm work on the provincial estate at Eichelborn, for which purpose men are farmed out as required.

(2) Building and earth works in connection with provincial institutions and undertakings.

(3) A series of industries carried on within the walls of the house.

(4) Works on the buildings, both within and without.

(5) Domestic and culinary work such as baking, washing, cleaning, sewing, etc.

The baking alone is a very serious task, for a thousand mouths have to be fed every day, since the two large ovens provide, not only for the Labour House itself, but for two other large public institutions situated not far away. In the weaving shop there are fourteen hand-looms for linen, the yarn for which is bought. The work done by the carpenters is various and thoroughly creditable. Furniture in request for provincial institutions is chiefly made, such as tables, benches, chests, chairs, toilette tables, and the like, and some of the work I saw would compare with the best products of free labour. "We have just sent out an account for £2,000 worth of goods," said the labour master with pride. The business of cigar making is not, like the other departments, carried on by the Labour House on its own account. The plan adopted is for labour to be farmed to tobacco manufacturers, who send the raw material with a skilled overseer to direct the various processes of preparation. The administration undertakes no responsibility for the quality of the work done, or for the material spoiled, though, on the other hand, the wages charged to the manufacturer are very low, viz., 75 pfennige or 9d. per day. The various employments detailed in a recent official report included locksmithry, joinery and carpentry, basket and chair making, tinning, mason's work, roofing, painting and plastering, weaving and spooling, tailoring, boot and shoe making, saddlery, hair sorting, book-binding, cigar making, machine turning, repairs to tools and implements, copying, manifolding, baking, butchery, knitting, sewing, laundry work, farm and field work, and road making. The weaving department produced 45,547 metres of stuff, the tailoring department produced 158 complete suits and 2,890 single garments, the sewing department 5,099 bed coverlets, towels, shirts, aprons, handkerchiefs, neckerchiefs, etc.; the shoe making department 748 pairs of shoes, the carpentry department 1,319 articles of furniture, and so forth. The total value of the goods produced and of the labour farmed during the year was £6,164, which more than covered the cost of food and clothing.

Formerly the Labour House had its own farm, but this was separated some years ago, and it has since been conducted as an independent undertaking, though still by the aid of forced labour. Men are lent to the farm manager as required, at the rate of 60 pfennige or 7d. a day of ten or twelve hours, according to the season, and some forty or fifty are always employed in one way or other on the land. The Labour House buys its rye for bread, its milk, its butter, and its potatoes from the farm management at the full market prices, though, on the other hand, it sells to the farm all the implements of iron and wood which it is capable of supplying, and also makes its repairs.

In the year 1907-8 of an average personnel of 330, there were employed in domestic and other work for the institution 152 persons, while 142 were employed on work for the Provincial Administration, 50 were employed by outside persons in farm, industrial, and other work, and 10 worked for officers of the Labour House.

The entire cost in that financial year was £24 18s. 9d. per head, this sum including food, clothing, materials, and administration, and of the total expenditure the prisoners earned by their labour £7 13s. 10d. per head, leaving a deficit of £17 4s. 11d. per head, equal to 6s. 7½d. per week, to be made up by the Province. As compared with several years ago, there was an increase in both the gross and the net cost.

There is absolutely no contact between the workers of the several trade departments, for all save the bakers work behind locked doors, whose small windows only the officials may approach. The work, too, is strenuous in the full meaning of that hackneyed word. Every man literally works ever in his taskmasters eye; and not only so, but he must complete each day the task which is allotted to him. According to his capacity, and the character of his employment, a fixed pensum is required of him, and unless this is done there is a penalty to pay; while, on the other hand, to the industrious, who exceed the inevitable minimum of effort and output, a small reward is offered. The latter only ranges from a farthing to a penny a day, though by the accretions of a year it may grow into a sum which proves a welcome help to a man on his discharge. This accumulating bonus is, as a rule, kept intact until the time of discharge comes, when it is handed to the Police Authority of the place to which the man elects to go, to be paid to him in instalments or otherwise used advantageously on his behalf.

The women's department does not need particular description. It is conducted quite independently of the men's, though, of course, under the same higher officials, and its inmates are put to occupations suitable to their capacity and strength, not a small part of their time naturally being taken up by the domestic, culinary, and other indoor work inseparable from so large an establishment. In this department are found many members of a class which is one of the saddest excrescences of our modern urban life. These women of evil profession are, as a rule, detained in the Labour House for six months after the expiration of their gaol sentence. On discharge they are sent to their legal domicile if without fixed home or regular means of subsistence, but if they cannot establish a legal settlement they are handed over to the Poor Law Authority. It may be noted, however, that Germany does not as yet go as far as certain cantons of democratic Switzerland in the restraint of those single women of known moral weakness, so well known to English Poor Law workers, whose periodical visits to the workhouse imply an ever increasing burden on the public funds. Such persons the Berne Poor Law Authorities, for example, keep under duress indefinitely without the slightest misgiving that the sacred principle of individual liberty, in whose misused name so many wrongs to society and the commonwealth are committed, is being infringed. In Germany, as in England, these persons may, indeed, come under the restraining influence of the Poor Law when physically or intellectually defective, but for the rest the only power of detention resides in the penal provisions applicable, as above shown, to females found guilty of professional solicitation, a class to which most of the moral breakages which find their way into the women's wards of our own workhouses do not in the least belong.

Formal prison discipline is enforced in the Labour House at Benninghausen as in others. Possibly the purple patches of relaxation which variegate the lives of the inmates are too few and too far between. Here, however, the German authorities doubtless act according to the teaching of experience, and no one will doubt that a theory—whether satisfactory or not—lies at the basis of their practice. Sunday is, of course, a free day, and the high festivals of the Church are observed by the prisoners of both confessions and of none. Then a great quiet falls upon this house of toil. Black clothes become the order of the day, even to the soft round cap which covers the close-cropped head, and as often as the church-going bell sounds, the inmates are led to and from religious service. For the rest the time is divided between workshop, bed, and board—and unless the rules are scrupulously observed there is a good deal of board about the bed.

It goes without saying that the men are treated humanely and justly, but of indulgence there is no pretence, and I confess that as this aspect of Labour House discipline created upon my mind its own clear and vivid impression, I recalled that saying of Prince Bismarck, when he laid down the law of courtesy, "Politeness even to the murderer, but hang him all the same." I do not, however, presume to criticise the régime followed; may be it is the best for the people who pass beneath it. It is the serious side of life, rather than its levities and insouciance, which they need specially to know. Why should the tramp have all the ease and the honest worker all the hardships of life? It sounds like the refinement of cruelty, but in this land of Gargantuan smokers not only is the consoling companionship of tobacco forbidden to the mass of prisoners, but even the cigar makers themselves fall under the general ban, and may not test the result of their own deft handiwork.

Severe punishment is very seldom necessary, and Benninghausen does not possess the provision for treating acts of extreme misdemeanour which is to be found in some other German Labour Houses. "Arrest" in various grades is the worst penalty awarded. That means imprisonment in a dark cell, with bare boards for a bed and bread and water for diet. Even here, however, every fourth day brings respite and is, for that reason, known as a "good day" (guter Tag), for on it the prisoner may again, for one brief space, taste the joy of his accustomed straw pallet, while, to comfort or to tantalise him, he is also given warm food. But it is a fugitive bliss, for next day the pallet goes and warm food with it, and the erring one sleeps again on the floor and quenches his thirst at the water tap. A short time before my visit eight or ten of the incorrigible young "foster-children" of whom I have spoken had escaped from the Labour House while returning from church. A hue and cry was promptly raised, and in a couple of hours they were recaptured. They were birched for their escapade, for under the law referred to above the parental authority is transferred to the public foster parents, even to the extent of the right to inflict due bodily chastisement. With such exceptions, corporal punishment is unknown in the Labour House. The punishment for the loafer, the idler, and the tramp is hard work, and about its genuineness there can be no doubt whatever. But what would you otherwise? It is work which these men need, and want of it which has been their undoing. Look at it in that way. The Labour House is in effect a Continuation School. In it the hapless sons of the commonwealth who have failed to learn the lesson of industry in their early years are enabled to make good this important deficiency in their education. It is also coercive. Just as Germany applies compulsion in the instruction of adults who have failed to master their R's betimes, so it applies compulsion in imparting to the thriftless and shiftless members of society the spirit and habit of orderliness, industry, and self-control.

No one who has been inside a Tramp Prison can fail to detect the beneficial influence of rigid discipline upon the physique and bearing of these tramps and loafers of yesterday and the day before. It was hard to believe that the gangs of smart-looking men, who briskly deployed in the quadrangle in their clattering wooden shoes, were members of the same slouching brotherhood whose favourite haunt is the King's highway. One little scene, enacted all in a moment before my eyes, would have done credit to a drill-ground. A band of prisoners were returning along the quadrangle from exercise to their work, a warder behind them. Arrived at the doorway of the workshop, they halted dead at signal, fell into two lines, and stood motionless at attention with the rigidity and solemnity of a military watch, while the warder ponderously passed between them and led the way into the building. For they can, after all, be galvanised into life and vigour, into agility and alertness, these licensed drones of the commonwealth, these worthless hangers-on of the street corner and the highway, whom we are accustomed to regard as "finished and finite clods" whose betterment only a miracle could compass; all that is needed is the will to override their weakness and make them men in spite of themselves.

It may be asked, however, what is the practical effect of Labour House discipline on the after life of those who have experienced it? That a large proportion are won to a regular life of industry cannot, unfortunately, be said, nor would it be expected. In proof of this self-evident admission stands the patent fact that many of the inmates are recidivists who have been in and out of the Labour House time after time. Questioned on the point the Director placed the percentage of genuine reformations at 25, and the proportion of those who are directly benefited, without being actually reclaimed, at from a third to a half of the whole. "One half at the outside," was his most sanguine estimate, volunteered, I must add, without reference at the moment to books or memoranda. But cure in even one case out of every four, and improvement in one of every two, is no inconsiderable achievement when we remember the hard and almost hopeless material with which the Labour House has to deal, and the virtual inability of our own method of treating the vagrant and the loafer to effect any reformative result whatever. Obviously, it is impossible to expect accurate statistics on the question, for reasons not by any means confined to the impossibility of following the history of every discharged case, but one fact alone tells an eloquent tale. The Labour House for Westphalia was erected in 1821. Since that time the population of the province has vastly increased, and the economic revolution consummated in the interval has created a new kind of itinerancy, that of machine-bred labour, yet it has not been found necessary to enlarge the Labour House, whose capacity is to-day as adequate to the demands made upon it as it was ninety years ago. Not only so, but (disregarding the abnormal numbers of the last two years) the number of offenders of the kind for whom the institution exists is actually decreasing proportionately to population.

The following were the commitments to Benninghausen during the twenty years 1890 to 1909:—

Other causes have, no doubt, helped to bring about this relative diminution in the number of commitments—amongst them the development of the Voluntary Labour Colonies with their ever-open doors—but at Benninghausen it is believed that the operation of the anti-vagrancy law takes the first place.

Probably the question has before now passed through the reader's mind—what becomes of the 300 or 400 men and women who are returned from the Labour House to liberty in the course of every year? When a prisoner has served his time a problem arises which requires the most circumspect handling. What shall be done with him? Shall he be simply turned adrift at the gates in the hope that he will continue to follow in freedom the path of industry which he has entered while under restraint? The Benninghausen Labour House makes no such wreck of its own reformative work. On the contrary, every effort is made to encourage the prisoner to persist in a regular and honest life. He is allowed to choose his destination, and the Police Authorities of the locality are communicated with beforehand, so that they may be ready to provide for his temporary lodging, and either to help him to work themselves or to enlist the offices of private persons able so to do. In towns there always exists some philanthropic society which is ready to take the case in hand; in the country the helping hand is often that of the clergyman, Roman Catholic or Protestant, as the case may be. Here also is seen the utility of the Labour Colony—and to Westphalia, be it noted, belongs the honour of having founded the original Colony, of which the thirty-three others scattered over Germany are copies—which frequently serves as a temporary refuge for men who, having passed through the mill of adversity and humiliation, and been given a glimpse of better things, have no desire to drift into the old demoralising ways.

CHAPTER VII.

THE BERLIN MUNICIPAL LABOUR HOUSE.

The Labour House at Rummelsburg, near Berlin, is an example of a house of correction for offenders of the classes dealt with at Benninghausen conducted by a municipality. This institution is maintained entirely by the City of Berlin, and while it exists to meet the requirements of the Imperial Penal Code, as already explained, there is attached to it a large hospital which closely corresponds to an English workhouse infirmary.

This hospital is intended for the reception of (1) persons suffering from incurable diseases, also infirm persons who are no longer able to look after themselves, even with the assistance of outrelief; (2) those, who, owing to their past irregular mode of life (intemperance, immorality, criminality, etc.), are unsuited to admission to the usual municipal infirmaries; (3) destitute persons who might still be given outrelief, but who, by reason of their irregular mode of life, as above stated, would be better provided for in a public institution; (4) those in receipt of relief who are believed to be likely to give way to mendicity; and finally (5) persons sentenced to disciplinary detention who are infirm or ill, and incapable of work. In general, the class of persons accommodated are the undeserving infirm poor who are not thought worthy of permanent association with indoor paupers of more or less respectable antecedents. Although under the management of the same Director, and administered by the same Committee of the Town Council, the hospital is entirely independent of the house of correction, and its inmates are disregarded in the statistical data which follow.

The numbers detained at Rummelsburg during the financial year 1907-8 were as follows:—

Of the 1530 persons admitted during the year 1381 (1,282 men and 99 women) had been committed by the Police Authorities of Berlin, and 149 (146 men and 3 women) were reinstated with a view to their completing sentences interrupted owing either to temporary removal to hospital or to escape.

The offences which led to commitment were the following:—

The duration of the sentences awarded was as follows:—

Of the 1,183 persons discharged during the year, 84 went to their own homes, 921 had no homes to go to, 113 were handed to other judicial authorities, 13 were removed to outside hospitals or lunatic asylums, and 52 were removed to the infirmary after completing their sentences.

Of the persons newly admitted, 20 were twenty-one years of age or under, 76 were between twenty-one and twenty-five years, 126 between twenty-five and thirty years, 346 between thirty and forty years, 389 between forty and fifty years, 322 between fifty and sixty years, 91 between sixty and seventy years, and 11 seventy years and upwards.

The occupations of these 1,381 persons were as follows:—

The inmates of the Berlin Labour House are employed in a variety of ways, but chiefly in the works connected with the irrigation farms belonging to the city. All the men of this class are lodged in barracks near the farms, so as to avoid walking the long distance to and fro every day. The remainder of the men are engaged in miscellaneous trades, such as tailoring, shoe making, clogging, wood-working, basket and brush making, lock-smithery, tinning, straw-plaiting, book binding, etc.; wood cutting is done by the less skilled men; and old men are put to light employments like coffee bean and feather sorting. Most of the women not engaged in domestic work are employed in sewing and washing for municipal institutions, like the hospitals, shelters for the homeless, the cattle market and abattoir, etc. The following table shows the manner in which the labour of the inmates was distributed amongst these employments, with the number of days worked, and the value of the work done, during the year 1908-9:—

Paid Work.

Unpaid Work.

The work of the kinds classified under Nos. 3 to 9 was charged in the books at 58 pfennige (about 7d.) per day, representing an aggregate value of £4,281 5s., making the entire imputed earnings of the inmates £9,517 8s. This amount does not include the wages or bonus paid to the inmates, as stated below.

The work-day consists of ten hours, and the time-table for week days and for Sundays and festivals is as follows:—

Weekdays.

On Saturdays and the evenings before festivals work ceases at 4.0 p.m., but the intervening time until 5.45 is given to cleaning the washplaces, etc., and bedtime is 6.0 o'clock.

Sundays and Festivals.

While, as a rule, the hours of work are the same for all, the tasks allotted are, as far as possible, proportioned to individual capacity. One of the rules[64] of the establishment states:—

"Every inmate is required to perform, without demur and to the best of his ability, the work allotted to him, either inside or outside the establishment. As a rule, all inmates have to work on week-days an equal number of hours, and to perform in that time a task proportionate to their capacity, the completion of which, however, does not exempt them from working to the end of the usual time. The administration may, however, under certain circumstances curtail the duration of the daily hours of work and the extent of the task in individual cases. Anyone who, owing to idleness or negligence, fails to perform his allotted task, or who in general works slothfully or negligently, will be punished. No inmate may, without permission, allow his work to be done for him by another, or do another's work."

For the encouragement of diligence and good conduct a small wage is paid. This amounts to 10 pfennige or 1½d. per day for most work, but only half this sum in the case of certain inferior occupations. The rule on the subject says:—

"The proceeds of the work done by the inmates, on the order of the Administration, belong to the Municipality of Berlin, and are paid into the treasury of the establishment. The extra pay credited to the inmates by employers is divided into two equal parts, of which one is placed at the inmate's disposal for the purchase of extra food, the payment of postage, and other necessary expenses, during his detention, while the other accumulates as savings until his discharge."

At the beginning of the financial year 1908-9 the bonus account of the various inmates stood at £1,196 10s.; there was added during the year £2,331, and paid out £2,109 10s., leaving a balance to the credit of the inmates of £1,418. The disbursements from this account during the year included £1,249 paid to discharged inmates, £573 paid to detainees for the purchase of extras, £159 paid for clothing needed by departing inmates, and £102 charged for damage done through malice or negligence.

The utmost endeavour is made, by firm yet just treatment, to encourage the inmates in the habit of industry; the individuality and aptitude of each man are carefully studied, with a view to his employment in the manner most likely to draw out the best in him; the diligent and trustworthy are selected for the more responsible posts, and all are made to feel that their re-making lies in their own hands. Great stress is laid upon the moral basis of work, without undue obtrusion of the religious motive. One of the regulations runs:—

"The inmates shall live together in peace and quiet, none interrupting another in his work, but rather by industry, order, and decent moral behaviour encouraging each other to reformation of life, and setting each other a good example. Conversation upon past misdemeanours may under no circumstances take place; nor may one inmate reproach another with any crime which he may have committed, or with his past mode of life."

The time allowed for leisure and relaxation cannot be called excessive, but such as it is the inmates are encouraged to employ it in reading. Special prominence is given, indeed, to the library, of which the last annual report says:—

"The library is intended to serve the purpose which the administration of the Labour House seeks to achieve, viz., the transformation of the detainees committed to its charge into useful members of society. The educational influence of the use of books should not be depreciated. The administration earnestly endeavours, by offering to the inmates books of an entertaining, instructive and edifying character, and such as may lift them out of their everyday surroundings, and by studying the individuality and educational standard of each person, to offer them healthy stimulus during the hours of leisure. These books and the Sunday magazines which are regularly distributed are read with eagerness. The library is open to all inmates without exception."

The fact may be added that no less than £25 a year is spent on the provision of new books. As for other moral influences, religious services are held regularly on Sundays and festivals, and Holy Communion is administered at intervals, for Protestant and Roman Catholic detainees separately.

Little fault is found with the general conduct of the inmates, in spite of the fact that the majority are old offenders. The character of the material with which the Labour House has to deal may be judged from the following summary of the punishments which had been undergone by those newly admitted in the year 1908-9:—

Nevertheless, during the year punishments for offenders against discipline were awarded to only 304 inmates in 352 cases. The percentage of the male inmates punished (calculated on the mean daily average detained) was twenty-one, and of the female inmates 12. The punishments begin with mere reproof, and then follow in order of severity: withdrawal of permission to receive visits for a time, withdrawal of permission to write or receive letters, forfeit of the right to supplement the Labour House diet out of the reward of industry, forfeit of earnings themselves, disallowal of open air exercise, curtailment of rations, simple cell detention, and finally imprisonment on hard fare. Only in case of violent insubordination may chains or the straight jacket be resorted to.

It is difficult to speak definitely as to the permanent influence upon these people of Labour House treatment. The proportion who leave the House "reformed" in the usual acceptance of the word is, no doubt, small, as the large percentage of re-committals proves. Viewing the institution less from the individual than the social standpoint, however, the fact remains that under restraint the average loafer shows that he is able to work, and to work well. Not only so, but the cost of his detention is not excessive. During the year to which all the foregoing figures relate, the entire cost of maintenance and administration, both of the Labour House and the Hospital, including interest at 3½ per cent. upon the value of the land and buildings, was £55,101, or deducting £5,236 received for work done by the inmates (exclusive of that done for the establishment), £49,865, equal to 1s. 3d. per head per day for the whole of the inmates. The cost of able-bodied inmates only was estimated at a fraction under 11d. per head per day, or 6s. 3d. per week.

Tables are added showing the average number of inmates in the Labour House during the years 1899 to 1908, and the commitments for begging only during nineteen years:—

Average Number of Inmates (all Classes).

Commitments for Begging.

It should be pointed out, however, that the latter figures afford no indication whatever as to the frequency of the offence of mendicancy in Berlin. Detention in the Labour House is a secondary punishment, and those who receive it form only a small proportion of the total number of persons prosecuted for begging. The following statement shows, for a period of twelve years, the numbers apprehended, prosecuted, and convicted in Berlin for this offence (the difference between the apprehensions and prosecutions represents those who were simply warned and discharged):—