CONVICT LABOR VOK KOAD WOKK. 25 



with resulting inefficiency and failure. Among the considerations 

 entering into the determination of the most effective size of camp 

 are the character of the work, the size of squad that can be safely 

 handled by a guard or foreman, the number of camp men necessary 

 to prepare food and keep the camp in order, and the nature and con- 

 venience of the camp buildings and equipment. A camp whose only 

 operation is grading should not be so large as one which is designed 

 to carry along the grading of a road, quarrying and crushing stone, 

 and surfacing all at the same time; but whatever the work, the size 

 of the camp should be properly proportioned to it, and if the working 

 force be too great or too small inefficiency is sure to follow. Also, 

 it is evident that if one guard or foreman can safely control 10 con- 

 victs, a working force composed of any number of men not a multiple 

 of 10 is to a certain extent an uneconomical force, since in that case 

 one guard would have a squad of less than 10. Not less than two 

 men are required to cook and care for even the smallest camp, and 

 no more than two are required for 20 men. Furthermore, the over- 

 head charges for superintendence, engineering, and bookkeeping are 

 but httle if any larger for 40 or 50 men than for 20, and the per 

 capita cost of these items decreases as the population increases. The 

 maximimi limit is reached with the largest population for which 

 the superintendent can assume responsibiUty successfully. Between 

 the minimum and maximum hmits the most effective population, in 

 any case must be determined by trial and observation ; but it is 

 Hkely that under average conditions this will be found to be about 40 

 or 50 men. In many of the smaller southern counties the number of 

 convicts on hand at one time is not more than 20 who must be em- 

 ployed either inefficiently on the roads, or at some less desirable 

 occupation, or else maintained in idleness. Under the present laws 

 in many of the States this condition must be endured, but it might 

 be remedied by the enactment of laws placing county convicts under 

 State control and employment. 



Finally, the employment of short-term men invariably results in 

 ineffective work. Since to harden and instruct the recruit requires, 

 in the quahfied judgment of superintendents and foremen, from 30 

 to 60 days, it is obvious that road work employing misdemeanants 

 of terms averaging less than six months must bear a heavy burden of 

 lost time and ineffective labor. 



The foregoing are the principal factors which determine the rela- 

 tive efficiency of convict and free labor. They form a body of con- 

 flicting and opposing tendencies the individual weight of which can 

 not be appraised except by study and trial in the particular case at 

 hand. In tliis statement lies the reason for the continuance of iiieffi- 

 ciericy in all convict work. For, though the tendencies outlined in 

 this chapter have been well known, the means of studying the com- 



