30 BULLETIN 414, U. S. DEPARTMENT OF AGRICULTURE. 
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 county 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 established the State convict road force. In addition to 
the vState convicts, this State force also includes all male county 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 consolidation of the super- 
vision in one central office ; 
(2) That the wider outlook of State officials will lead to the prac- 
tical adoption of more scientific methods; 
(3) That the greater financial means of the State will permit of the 
employment of a more able class of officials ; 
(4) That the counties will be relieved of the expense of maintaining 
small convict forces which produce inconsequential results; 
(5) And that the force of convicts will 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 slight repairs and mainte- 
nance not economically done with convict labor may be performed 
by free labor, supplemented, perhaps, by small forces of paroled con- 
victs. 
