32 BULLETIN 414, U. S. DEPARTMENT OF AGRICULTURE. 
to the highway department, and by frequent visits of inspection by 
officers of the highway department, the prison department, and, in 
States where such a bureau exists, by officers of the State board of 
health, who should report, through their bureau, on the sanitary con- 
ditions of the camps. 
CAMP OFFICERS. 
Though the experience of a number of States has demonstrated 
the practicability of cooperation by the prison and highway depart- 
ments through their central offices, the dual system of management 
in the camps has not proved satisfactory. Prompted by a recogni- 
tion of the duplex nature of the project, at least three States have 
tried the plan of placing two men, representatives of the prison and 
highway departments, respectively, in more or less independent 
charge of the two phases of the work. In each case the arrangement 
has resulted in the development of friction and bickering between 
the employees of the two departments, caused by the clashing of 
their respective interests and instructions. As a rule, most of the 
differences are trivial and when brought to the attention of the 
superior officers of the departments they are readily adjusted, but 
before these officials are appealed to it is found that the discord 
has usually reached such proportions as seriously to affect the 
proper management of the camp. As an example of the petty 
nature of these disputes it was found in one State that the camp 
sergeant, or head guard representing the prison department, had 
been instructed to keep all the convicts at work at all times, 
except Sundays and holidays, unless prevented by sickness or bad 
weather. The resident engineer, representing the highway depart- 
ment, had been instructed not to lay surfacing stone on a wet clay 
subgrade. A dispute arose over the question of the employment 
of the convicts on days following heavy rains when the subgrade 
was still wet, the sergeant wishing to send the men to work and the 
resident engineer refusing to permit any stone to be laid, and the 
bitter feeling which resulted had practically paralyzed the work of 
the camp long before the matter was brought to the attention of the 
heads of the two departments. 
But while the appointment of two more or less independent camp 
heads is undoubtedly inadvisable, it is true that it is extremely diffi- 
cult to secure, within the customary limits of salary attaching to 
such positions, one man who is capable of superintending both 
features of the work. It would seem that the difficulty may best be 
overcome by providing two officers, but by making one subordinate 
to the other. It is suggested that the superintendent, or first officer, 
be selected primarily for his knowledge of road building and for his 
skill in the direction of men, and that an assistant, who may be 
known as a camp officer or yard man, be appointed on a basis of 
