CONVICT LABOK FOR ROAD WORK. 31 
Although the superior advantages of State over county control are 
very evident, the placing of the control in the proper State depart- 
ment is more difficult. On account of the dual aspects of the work — 
the penal and the constructional — the interests of two departments 
are involved — namely, the prison and highway. 
In Colorado the work is carried on under the immediate direction 
of the warden of the State penitentiary, and the State highway com- 
mission acts only in an advisory capacity. In Georgia there is no 
highway commission, and the convict road work is carried on by the 
various counties, the conditions affecting the convicts being under 
the control and inspection of the State prison commission. But in 
all other States in which there are highway departments the road 
work done by the convicts is under the direction and control of the 
highway authorities, and the prison departments exercise only a 
more or less direct control over the discipline, guarding, and mainte- 
nance of the prisoners. 
Though it is recognized that no stereotyped system of control can 
be prescribed arbitrarily for all the States, on account of their varying 
institutions and customs, it is believed that the best results may be 
obtained under a system which clearly defines and separates the 
responsibilities of the prison and highway departments. The prison 
department should, of course, be charged with the selection of con- 
victs for assignment to the road working forces, upon the request of 
the highway department, and with the formulation of rules and regu- 
lations for the guidance of the highway officials in the discipline, 
housing, and maintenance of the prisoners. But the supervision of 
construction and the preparation of adequate means of housing, 
feeding, and disciplining the men in accordance with the rules of the 
prison department preferably should be under the immediate control 
of the highway department. By such an arrangement the formation 
of a highway division under the prison department, with consequent 
duplication of officers, is avoided, while, as indicated, the prison 
department, through the agency of the highway department, retains 
control of the administration of the penal law. 
By the foregoing arrangement the responsibility of the distribu- 
tion of the convict labor to the various pieces of construction is given 
to the highway department. The labor may be used on State roads, 
or it may be granted to the counties as a form of State aid, but in 
either case full control of the work and conditions of work should be 
exercised by the highway department to insure the essential uni- 
formity of methods and results. Although a certain amount of dis- 
cretionary authority must be given to the men in immediate charge 
at the camps, they should be governed by regulations and orders 
issued by the department. Their conduct of the work should be 
ascertained by means of periodical reports made in a prescribed form 
53577°— Bull. 414—16 3 
