30 BULLETIN 414, U. S. DEPARTMENT OF AGEICULTURE. 



ineffective for the fullest realization of the benefits of convict labor. 

 In the main it has been productive of waste and inefficiency for the 

 reason that the average county force is economically too small, and 

 much of the work done is, perforce, of a very inconsequential nature. 

 In many counties the entire time of the inadequate force must be 

 spent in the attempt, by small repairs and patchwork, to keep the 

 roads in barely passable condition. This inefficiency is generally 

 recognized and deplored by county officials, but it is usually defended 

 by the assertion that the only alternative under the existing system 

 is to maintain the convicts in absolute idleness, which could not be 

 justified on any ground. 



Another serious objection which may be pointed out in connection 

 with comity control is the lack of coordinated effort which is typical 

 of the independent operations of the numerous counties. As these 

 objections are similar to those which have been responsible for con- 

 centration of supervision of construction in the State highway 

 departments, there can be no doubt that similar control in the 

 management of convict labor would effect a great improvement. 



Such an arrangement is provided for in Virginia under the law of 

 1908, which estabUshed the State convict road force. In addition to 

 the State convicts, this State force also includes aU male coimty jail 

 prisoners over 16 years of age, and the latter class, as well as the 

 former, is subject to any assignment within the State, which the 

 superintendent of the penitentiary may direct. The apportionment 

 of the county convicts among the various counties may be deter- 

 mined according to population, road mileage, property values, or 

 any other equitable criteria which may be fixed under particular 

 conditions; but, however the distribution be made, the results of the 

 creation of such a State force will be the same, namely: 



(1) That the total overhead expense for the administration of all 

 the convict labor of the State will be reduced by the elimination of 

 a large number of small offices and the consohdation of the super- 

 vision in one central office ; 



(2) That the wider outlook of State officials wiU lead to the prac- 

 tical adoption of more scientific methods; 



(3) That the greater financial means of the State wiU permit of the 

 employment of a more able class of officials ; 



(4) That the counties wiU be relieved of the expense of maintaining 

 small convict forces which produce inconsequential results; 



(5) And that the force of convicts wiU be available for work in the 

 counties where there is a demand for the heavy road work best suited 

 to the employment of convict labor, while sfight repaid and mainte- 

 nance not economically done with convict labor may be performed 

 by free labor, supplemented, perhaps, by small forces of paroled con- 

 victs. 



