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Report of the Committee on the Subject of Pauperism and a House of Industry in the Town of Boston

AT a legal Meeting of the Freeholders and other Inhabitants of the Town of Boston held by adjournment on the thirteenth day of March, A. D. 1821.

The Petitions of Joseph May and others, and of Thomas Howe and others, on the subject of erecting a Work House, were read.

Whereupon it was Voted, that the subject, be referred to a Committee of thirteen, to be nominated from the Chair; the said Committee to consider the subject at large, and report; and that the report be printed, and distributed among the Inhabitants, and the Selectmen are requested to call a Meeting to act on said report,

The following Gentlemen were nominated and appointed upon the Committee, viz.

Hon. JOSIAH QUINCY,
JOSEPH LOVERING,
JAMES SAVAGE,
HENRY J. OLIVER,
FRANCIS WELCH,
JOSEPH MAY,
THOMAS HOWE,
WILLIAM THURSTON,
ABRAM BABCOCK,
SAMUEL A WELLS,
JAMES T. AUSTIN,
BENJAMIN RICH, and
JOSEPH WOODWARD, Esqrs.

Attest, THOMAS CLARK, Town Clerk.

The Committee appointed by the Inhabitants of the Town of Boston at a legal meeting, holden on the twelfth day of March last, "on the subject of Pauperism at large, and on the expediency of erecting a Work House," within the said Town, having taken those subjects into their consideration, in conformity to their instructions, ask leave to

REPORT.

That in prosecuting their inquiries, concerning the subjects referred to their consideration, they have examined the state of the present Town Alms House and compared it with institutions of a similar character, in this vicinity, particularly with those at Marblehead and Salem, and they are unanimously of opinion that the accommodations, provided for the poor, at the Alms House, in Boston, are not such as comport with the honor and interests of the Town. They are also unanimously of opinion that, in aid of the present establishment, a work house, to be denominated, a House of Industry, should be erected, with a sufficient quantity of land attached to it, so as to enable the poor, compelled to resort to it, to have the benefit resulting from air, employment and exercise, and the town to derive that advantage, which other towns in this vicinity experience from the well directed labour of the poor, in similar institutions.

The document, marked A, being the report of a sub-committee, appointed to inquire into the existing state of the establishments of the town, in this respect, will farther evidence and illustrate the importance and necessity of an immediate attention to these subjects.

It is not the intention of your Committee to enter upon a laboured statement of the benefits to be derived from well managed houses of industry. The general reasonings, by which the utility of such establishments might be maintained, are superseded by a concurrence of experience, which can neither be controverted, nor resisted.

It appears, by a report, made by a Committee of the Massachusetts Legislature, at their last session, that the experience, both of England and of Massachusetts, concur in establishing the fact "that of all modes of maintaining the poor, the most economical, is that of work houses, or houses of industry; in which work is provided for every degree and species of ability in the pauper; and also, that of all modes of employing the labour of the poor, the best, the most healthy and the most certainly profitable is that of agriculture; whereby the poor are enabled always, to raise, at least, their own provisions."

It appears also, by the same report, that every town in the Commonwealth, which had resorted to such establishments, and persevered in their support, had derived from them, very great and sensible relief from the burden of maintaining the poor, to which they had been antecedently subjected, and this also had been effected by the use, of means, which added both to the health, the comforts, and the happiness of the paupers themselves.

In order, however, to leave no degree of satisfaction, unattained, which it was in their power to acquire, your Committee appointed another sub-committee to visit the Marblehead and Salem Alms Houses, two establishments in high repute, for the vigor and intelligence, with which they were conducted, and the experience, resulting from which, was likely to be decisive, in relation to the general expediency of such institutions, from the distinguished character, the inhabitants of those towns have acquired throughout the Commonwealth, for their enterprise, prudence, and intelligence. It appeared, by the report of this sub-committee, that "the request to be permitted to visit and examine those establishments, was received, by their respective Overseers, in the most friendly and polite manner; that they were permitted to inspect every department of each institution, and that they obtained frank and unreserved answers, to all their inquiries." This examination resulted, "in the extreme gratification of the sub-committee, at the order and neatness, which prevailed, and the content and comfort of the poor, which was apparent, in both those institutions."

The satisfaction, which the sub-committee derived from this general survey was equalled only, by that which was consequent on the examination and consideration of the details, given by those Overseers, in relation to the success of those establishments.

The Overseers of the Marblehead Alms House stated to the sub-committee, that the town of Marblehead had no general fund applicable to the support of the poor, except the Treasury of the town; -- that the annual average of the poor, in point of number, supported in their Alms House, somewhat exceeded one hundred; --that the expense of the poor of Marblehead, from March 1820, to March 1821, was justly represented in the annexed schedule, (marked B.) by which it appears mat the whole expense of supporting one hundred poor, within the Alms House, for that year, was only thirteen hundred, and seventy five dollars, forty seven cents.

Those Overseers, farther stated that, in their opinion, every thing considered, the annual expense, within the Alms House did not exceed nine, or ten dollars per head, per year. The sub-committee were satisfied, that this estimate did not underrate the actual expense; particularly as there is no credit allowed in it, for one thousand days labour done upon the highways, by that portion of the able bodied tenants of the Alms House, who were capable of this species of labour. All the highway work of Marblehead being done, by the poor of their Alms House.

A similar and not less satisfactory result was obtained, by the examination made, by this sub-committee, of the Alms House at Salem. By the printed report of the Overseers of that town, dated 1st March 1821, (see schedule, C,) it appears, that since the erection of their Alms House, in 1815, the expenses of the town of Salem, for the support of their poor, have been reduced from $12,779 21 cents, which it was in 1814, to $4,296 40 cents, which it was in the year, ending the 1st of March last. The poor, supported out of the Alms House, being included in both estimates.

If from this amount be deducted $1,090 87 cents, the estimated value of supplies, furnished poor persons, not inhabitants of the Alms House, the whole net expense of the Salem Alms House, for the last year was only three thousand, two hundred and five dollars, fifty three cents. The average number of poor being about three hundred and twenty, supported within the Alms House during the year, makes the arithmetical result, of the whole expense, averaged upon the tenants about $10 per head, per annum! The same as that of Marblehead. The Overseers of Salem, also stated, that it was their expectation to reduce considerably, the expenses of the establishment, the ensuing year. Here, also, as in Marblehead, the sub-committee were satisfied that circumstances existed, which considerably reduced the actual expense below the estimated average.

The schedule, marked D, will exhibit the whole expense of the Boston Alms House, during the year 1820. The average number within the house, somewhat exceeding four hundred persons.

It will not be necessary, for the purpose of establishing a conviction of the necessity of a resort to a similar institution, in the town of Boston, to enter into any comparison of the result of these inquiries, with that of similar inquiries made in relation to the Alms House in this town. In order to satisfy every mind of the interest and duty, in this respect, it will be sufficient to state generally, that the support of the whole poor of the town of Salem, including all out pensioners, and an average of three hundred and sixty five within the House, cost the town of Salem last year, $4296 40 cts. That the whole poor of the town of Boston, including all out pensioners, and an average of about four hundred within the House, cost the town of Boston last year, $19,934 53 cents.

It is apparent to your committee that this difference is greatly owing to the contracted state of the Alms House, in comparison with the wants of the town. This establishment being the receptacle of all that class, which are naturally the objects of a house of industry, the consequence is that out pensioners are multiplied; and this most wasteful, and most expensive mode of supplying the poor, in their own families; as well as the most liable to abuse, is rendered, in a great degree, inevitable. The entire want of land, suited to employ the poor, in any species of agriculture, or out-of-door labour, and the impracticability in so confined a space, to introduce the necessary separation of age and sex, and to provide each with employment suited to it, are also causes of this difference of expense in supporting their poor, to these towns respectively.

Your committee, therefore, from the preceding facts and reasonings came, unanimously to the conclusion that a house of industry ought forthwith to be erected, with a quantity of land, attached to it, sufficient for all the objects of such an institution. In forming this opinion, your committee were influenced by considerations of economy; -- the strong conviction that a great saving would in consequence, result to the town, in point of expense; -- and above all, by a sense of the salutary influence of a well managed institution of this kind on the public morals. The obligations, which every society owes to those classes of citizens, which are liable to become pensioners on its charity, were not overlooked, in making this estimate of the Town's interest and duty.

There are four classes of persons, to which the public arrangements, on these subjects, ought to extend, and to whose peculiarities of condition they ought, as far as any general system is practicable, to be accommodated; -- 1st, the poor, by reason of age; -- 2nd, the poor, by reason of misfortune; -- 3rd, the poor, by reason of infancy -- 4th, the poor, by reason of vice.

It is very plain, that each of these classes of poor have claims upon society, differing both in their nature and degree, founded upon different principles; the sources of different duties, and requiring different proportions of sympathy and solicitude.

Of all classes of the poor, that of virtuous old age, has the most unexceptionable claims upon society; and is that, in relation to which its charitable establishments should be so constructed as to extend, not only comfort, but a reasonable degree of indulgence. This cause of helplessness cannot successfully be feigned. It is the consequence of a general law of our nature, to which all are equally liable. Hope and pleasure are, for this life, in a great measure extinguished. Its condition requires, therefore, a peculiar degree of consideration. Although the old, should not wholly be excused from labour, yet it is apparent that such ought to be provided as is suited to their age; if possible to their habits and former employments in life.

A similar course of remark applies to those, who are helpless, through corporeal, or intellectual misfortune; -- the effect of no vice, nor criminal indulgence. Each of these classes is entitled to particular consideration; neither should be released from every degree and kind of labour, yet what is required should be adapted to their condition, and their particular imbecility. Something more of attention should be paid, and of pains taken, to gratify their inclinations and to supply their humble wants.

Now the impracticability of making this first and great discrimination, in favour of these two first classes of poor, is the great defect of the Boston Alms House. In an establishment so restricted in point of room; and open to the indiscriminate influx of characters of all descriptions, it is impossible to make those distinctions, either in food, or in treatment, which is due to age and misfortune.

If the aged and virtuous poor are reduced to the food, and made obnoxious to the severity, or the labour, to which the vicious are subjected, it is to them a degradation, and a new and undeserved source of misery and misfortune. On the other hand, if the vicious are permitted to enjoy the comforts, or partake of the indulgence, which is due to age and misfortune, their condition becomes, not only supportable, but eligible. The fear of poverty is diminished, and the shame of dependence obliterated. Public establishments become thronged; as will never fail to be the case, whenever Alms House support is better than, or even equal, in its kind, to the support to be obtained by labour. These considerations, and others, which will readily present themselves to the reflections of intelligent men, render it indispensable that an establishment should be provided, which should enable the Town to make this first, most important, and just of all discriminations between the poor, in consequence of vice; and the poor, in consequence of misfortune.

The third class, consisting of those, who are poor, and in infancy or childhood, are somewhat differently situated; and have a right to require from society a distinct attention and more scrupulous and precise supervision. Their career of existence is but just commenced. They may be rendered blessings, or scourges to society. Their course may be happy or miserable, honourable or disgraceful, according to the specific nature of the provision, made for their support and education. It follows that the charitable establishments of every wise and virtuous community ought to be such as to enable it to effect these interesting objects, in the most perfect and satisfactory manner.

The present condition of the Boston Alms House, precludes all possibility of extending that free air, exercise, and healthful labour, and of attaining that separation from the contamination of vicious language and example, which is requisite and due to this class. Intimately connected with this topic is that of providing for those idle and vicious children, of both sexes and different ages, which often under the command, and always with the permission of thoughtless and abandoned parents, are found begging in our streets, or haunting our wharves, or market places, sometimes under the pretence of employ, at others for the purpose of watching occasions to pilfer small articles, and thus beginning a system of petty stealing; which terminates often in the gaol; often in the penitentiary; and not seldom, at the gallows.

Power enough already exists, in the hands of the constituted authorities, and if it do not, might easily be obtained, to rid ourselves of this nuisance, and to place these unfortunate children under either a system of discipline, or of restraint; or of useful labour. At present, however, this is absolutely impracticable. There is no place, suitable for their reception. The present Alms House is insufficient for its present tenants; more it is impossible to accommodate. A work house, or house of industry, is, therefore, absolutely essential, previously to taking any steps for the improvement of this unhappy, and abandoned class, of children. On this point, your committee do not apprehend that any thing more forcible can be added, to make the essential nature of such an establishment as that, which they recommend, apparent and unquestionable.

The fourth class, -- the poor by reason of vice,--- constitute, here, and every where, by far the greater part of the poor; -- amounting always, probably to a full two thirds of the whole number of adult poor. As it is for these, that the proposed house of industry is intended, in its first operations, to provide, the present seems a proper occasion to explain the general views of your committee in relation to this establishment; and to what objects and plans those views, at present, and to what they ultimately extend. Indolence, intemperance, and sensuality, are the great causes of pauperism, in this country. Notwithstanding the imbecility induced by their habits and vices, it is yet found by experience, that generally speaking, all this class can do something; and very many of them a great deal; and some of them fall little, and often not at all, short of the ability to perform, daily, the complete task of a day labourer.

The present accommodations of the Boston Alms House, not furnishing the means, nor the space for actual employ, their labour is but little, and of small account. The course of the practice of this class is, to come, or to be brought to the Alms House in a state of disease, or intoxication, or, in the winter, in actual want, and after passing weeks, or months, crowded together, within its walls; after being cured, restored and supported, during sickness and through inclement seasons, they are permitted to depart; to enter upon the same career of vice and indulgence, until they are brought back again; to be again supported and cured; and again sent forth to commence and pursue the same circle. Now, it is apparent, that so long as this class can come when they will, and depart when they will, -- so long as Alms House fare is upon a level, in point of quality and comfort, and often a little superior to their out-of-door support and comforts, -- so long as little, or no, work is required of them, within the walls, and there is no land belonging to the establishment, on which they can work, without,-- -that they have little, or no inducement either to labour or to economize, in order to prevent their being compelled to resort to it: on the contrary, it is obvious that the certainty of a comfortable and easy life, in the winter, is a perpetual and very effectual encouragement to a thoughtless, dissipated and self-indulgent course, in the summer. Accordingly institutions of this kind, when from necessity, or any other circumstances, they are conducted upon such principles, may justly be considered as encouraging and augmenting the amount of pauperism in a community. It follows, therefore, from these considerations, that it is the great duty of every society to take care that their Alms Houses should be provided with space of land and accommodations, to enable those, who have the superintendance of them to provide work for this class; and for every class in it, according to its ability; to the end that they should never become the resort of idleness, for indulgence; nor of vice, for comfort; nor of disease, for cure, without cost.

Intimately connected with these vicious poor, is that turbulent and profligate class, who, travelling the high road of shame and of ruin, are found in the haunts of gambling, intemperance and debauchery; and whose quarrels, originating in their cups or their crimes, give continual occupation to the magistrates and officers of police. The only means, to which it is now in the power of the authorities of the town to resort for the purpose of preserving its peace from being disturbed by this class, are warrants of Justices, common law processes, and incurring all that trouble, vexation and expense, necessarily consequent upon proceedings of this nature. These means partake little of the character of punishment; and have still less the effect of reformation. Your committee have reason to believe that offences of this kind have of late, greatly increased; and they look with confidence towards the proposed institution, as a means of diminishing these evils, of breaking up the haunts, in which they originate, and relieving the town from a great expense, to which it is at present subjected.

The great defect of our present establishment is that, for want of space, and want of accommodation, suitable work cannot be provided. Previous to its being practicable to make any improvement in the existing arrangements for the poor, it is therefore, indispensable that such a house of industry should be established.

Having, unanimously come to this conclusion, the attention of your committee was next directed to the subject of the place, where such an establishment, taking into consideration all the interests of the town, had best be located; -- its extent; -- probable cost; -- and the general principles, on which it ought to be conducted. The result of their investigations, so far as they deem it necessary or practicable, they now ask leave to suggest.

With respect to the location of the establishment, a great predilection prevailed in the minds of a majority of your committee, in favour of an Island, for that purpose; and Deer Island it was thought would be very proper and suitable. In order to satisfy themselves upon that point, they paid a visit to it, and surveyed every part of it, and after inspection and consideration of all its relations, they came to an unanimous opinion, that to attempt to locate it upon any island, and certainly upon that, would be highly inexpedient. The soil was found to be extremely poor, the situation exposed, and the great difficulty of access to it and return from it, at all seasons of the year, with certainty, and its absolute impracticability sometimes for many days, or even weeks in winter, were, in the opinion of your Committee decisive objections.

There is no truths in relation to these establishments more satisfactorily evidenced, by all the experience, both of England and of Massachusetts, than that their success depends upon their being subjected to the constant supervision and inspection of a board of superintendants, composed of substantial, intelligent and active inhabitants of the town, or vicinity. It is not sufficient that these should be men, merely in easy circumstances, prudent, intelligent, and humane. It is requisite that such a board should be composed of men, bred to business, and accustomed to deal with men, in the laborious walks of life; who know what labour is; -- when work is done; -- and are capable of judging, by the eye, or by examination, whether neglect, or refusal to work, be through mere indolence, or real imbecility. It may be adopted as a principle, applicable to all establishments of this kind, that they cannot be well conducted, for any great length of time, unless at least a considerable part of the board be men of such habits and experience. Now men, of this class are always men, engaged in active business. To command their services, it is necessary that every facility should be given to their superintendance; that it should be enabled to be regular, uninterrupted and certain. The location of the establishment in a situation where access to it will, at all times, be easy and certain, for those charged with its superintendance, is therefore, in the opinion of your Committee, essential to its success; and that therefore a location upon an island is highly inexpedient. The soil of Deer island is also, is the apprehension of your Committee, another and, if not in itself, a sufficient objection, is yet, in a high degree corroborative of the opinion, they have formed. The opportunity, which agriculture affords for the economical employment of pauper industry, is one of the most favourable circumstances, to promote the success of such establishments. It is plain, that success, in this respect, depends upon whatever promotes, or prevents, success in other agricultural operations. If therefore, the first location of such establishment be on a soil, singularly inauspicious, inconvenient, or impracticable, the result must be proportionably unfavourable. A good and an easy soil not only possesses this general advantage, but there is also an incidental one, resulting from the encouragement and excitement given to the paupers themselves, by such facility in the course of their labours. It is found, that when judiciously managed, even the paupers themselves may be made to take an interest, and even a pride, in the productive results of their garden, or cultivated field; and every thing, which has a tendency to prevent disappointment, in this respect, has a tendency to excite and support the feelings, upon which such interest depends. The soil of Deer island is in a great proportion sand. Whatever there be of good soil, is high, exposed and inconvenient of access. On these accounts, as well as on others, not necessary to detail, your Committee came to the unanimous opinion, that Deer island was not a proper scite for the location of the proposed establishment.

The town lands on the neck, also some situations at South Boston, were suggested to your Committee. But as the determination upon the scite, should it result in favour of land, at present, the property of any private individual, might, if known, materially affect the value of those lands, and the price to the town, your Committee thought it most advisable not to proceed farther, until the opinion of the town was ascertained upon the expediency of establishing a house of industry. After this was settled, they apprehended that the questions concerning the location, the form, the extent of both the lands and buildings, as also of the principles, on which the establishment should be conducted, would be left best to the discretion of a responsible Committee, to be appointed by the town.

With respect to the cost of such an establishment, it is obvious this must depend upon particulars, not at present precisely to be ascertained, such as -- whether the spot, selected for its location, be on land, at present owned by the town, or on land to be purchased; -- in the last case, -- the value of such land, -- and the number of the poor, for which it will be necessary to provide in this institution. On these, and other details, of a very general character, will ultimately depend the expense of any such new establishment.

In the opinion of your Committee, however, the establishment is indispensable, in the actual condition of the pauper relations of the town, and that, in no event, the expense can be such, as to form a reason against commencing it upon some scale, suited to the actual necessity existing, in this respect. The general view and opinions of your Committee, on this subject, are these, -- that measures should be immediately taken to obtain sufficient land for the location of it; -- not less than fifty acres; -- that, in this location, considerations of local benefit, or of small difference of price, should have little, or no influence. The best position for such an establishment should be secured, with a single eye to the permanent interest of the town, and ultimate success of the institution; -- that buildings should then be erected on a plan, sufficiently extensive, to accommodate forthwith, the greatest average of able poor, which are usually tenants of the Alms House every year. This cannot exceed two hundred persons; -- that the plan of the establishment should be such as to be capable of being extended, if hereafter it should be deemed expedient, and so constructed as to separate and provide for the distinct accommodation of the different classes of the poor, whose different claims upon society have herein before been stated.

For all the purposes of purchasing the requisite land, should a purchase be deemed expedient, of erecting all the buildings necessary, the present year, an appropriation of twenty thousand dollars, will, in the opinion of your Committee, be sufficient. Should experience justify an increase of the institution, the expenditure required, will of course, have relation to such increase.

It will be perceived by their fellow citizens, that the resolutions, submitted for their consideration and adoption, embrace topics of a more general character, than that of simply erecting a house of industry. In their apprehension, the present occasion should not be omitted to cause a full survey to be taken of all the public provisions for the poor, subsisting within the town, and to ascertain, as far as practicable, in what forms, and to what amount every general public charity is extended and applied; to the end of producing, if possible, a general sentiment and a unity of action among all the societies and incorporations of this nature, for the purpose of making industry, morality and economy, in all of them, indispensable conditions of relief; and of putting an end, as far as can be effected, to indiscriminate charity, and to street beggary.

How far it is possible to adopt any general system, in relation to these objects, may, perhaps, be questionable. The attempt, however, cannot be disadvantageous. A full knowledge of all the pauper relations of the town cannot fail to be useful, and may lead, through the means of recommendation, or by affecting public sentiment, or otherwise, to such a course of proceeding, in relation to the distribution of public bounty as may tend to repress the mischievous effects of that weak and listless sensibility, miscalled benevolence, which scatters its bounty without discrimination, pampering vice, fostering indolence, encouraging audacious pretence, and thus, while it does little, or no good, and sometimes positive injury to the individual, increases, and perpetuates, and makes more troublesome and virulent, the whole mass of pauperism in the community. Under these convictions and with these views your Committee recommend the adoption of the following votes by the town.

For the Committee, JOSIAH QUINCY; Chairman.

Voted, That it is expedient to establish, forthwith, within this town, a House of Industry.

Voted, That a Committee be appointed consisting of persons, with full authority to select a suitable place for the erection of a House of Industry, with an extent of land, attached to it, not less than Fifty acres; and that the said Committee be authorized to take any of the unappropriated lands, belonging to the town, for that purpose; or, in case they deem any other spot, or like extent of land, within the town, a better location for such an establishment, than any the town now possesses, that they be authorized to purchase the same; and that the said Committee be instructed to proceed forthwith to erect suitable buildings; and to form a system for the conduct of such institution, and to report their proceedings, in the premises from time to time to the Town as they may deem expedient.

Voted, That the Committee appointed by the preceding vote, be authorized to draw on the town treasurer for such sum, or sums of money, as may from time to time be found necessary, for the carrying into effect the purposes therein expressed; Provided always that the amount of said-drafts shall never exceed Twenty Thousand Dollars.

Voted, That the Report this day made to the Town on the subject of Pauperism and a House of Industry, be referred to the Committee, appointed by the preceding votes, and that they be instructed to take into consideration the various subjects suggested in it and particularly to inquire into the general state of the poor within the town, and concerning the operations, effects, modes, and principles of extending relief to the poor, adopted by the various charitable institutions existing in it; and from time to time to report such measures in relation to the whole, or any, of the subjects aforesaid, as they may deem it expedient for the town to adopt.

APPENDEX

( A )

The Sub-Committee appointed to consider what provisions art made in the nature of a Work House or Bridewell, for vagrants and dissolute persons, and to inquire into the existing establishments of the town in this respect, ask leave to

REPORT:

That on Saturday afternoon, accompanied by several other members of the general Committee, they waited on the Over-seers of the poor at the Alms House, in Leverett Street, and were conducted through that building and the smaller buildings within the enclosure of its yard.

The Sub-Committee found that establishment to be totally distinct from, and by its construction incompatible with the arrangements necessary for a Bridewell or place of correction for vagrant and dissolute persons; and that whenever any such are received in that institution, they are placed nearly in the same situation with those unfortunate and honest members of the com- munity, whom disease or age have rendered incapable of procuring a livelihood.

The Sub-Committee learned that the buildings formerly belonging to the Town near the Common, consisted of two ranges; one of which, was used as an Alms House, for the reception of persons whom it became a duty of charity, to relieve from distress, and the other as a Work House, where disorderly and dissolute persons were restrained of their liberty, and compelled to work for their support; and that between these was a smaller building with grated cells, called a Bridewell, which served as a place for the punishment of such as conducted improperly while subject to the discipline of the institution.

When the new buildings were erected in Leverett Street, the whole sum appropriated to the purpose, was expended in the erection of a house, exclusively designed as an Alms House or place for the reception of the infirm, diseased, aged, and children of both sexes; and the apartments were constructed entirely with that view. Of course, this large and expensive pile of buildings, which is so honourable to the liberality and beneficence of the town, is incapable without great inconvenience, of being appropriated to any other purpose; there is but one room in which any kind of labour can be conveniently performed, and the necessity which is sometimes felt, of converting any part of it to other purposes, is an infringement on the objects for which it was originally designed.

Because, however, there is within the town, no place properly designed as a Work House, and because that class of vagabonds who would become the tenants of such a building, are by our laws, under the controul, in some degree, of the Overseers of the poor, they have from time to time been sent to that place; and many have always been there, whom it was any thing but charity to support in idleness, and to provide with the comforts of such an institution. The Sub-Committee saw many whom they believed, under proper regulations in a suitable place, might be made to support themselves.

From the necessity of the case, the Overseers have been obliged to enlarge a building originally designed as a bath house, and use it as a Bridewell; in which they have constructed small cells that are occupied by such disorderly persons as seem most to require to be punished by confinement. But not only does this seem to the Sub-Committee to be objectionable, by depriving the institution of a part of its original accommodation indispensable to cleanliness and health -- but because its size and construction is hardly more than is necessary as a restraint to preserve order, without any reference to profitable employment. Confinement within it must be temporary and occasional; and the apprehension of its discipline, forms no part of the terrors of such a place to persons abroad.

The Sub-Committee find by a reference to the laws of this country, passed at sundry times by the colonial, provincial and state authorities, that a Work House, or place where idle and dissolute persons should be compelled to labour for subsistence, was uniformly a part of the system of police. So early as 1662, authority was given to magistrates to arrest "rogues and vagabonds," and confine them in the "house of correction."

In 1699, a provincial act was passed for suppressing and punishing of rogues, vagabonds, common beggars, and other lewd, idle and disorderly persons, and also, for setting the poor to work, "by which, among other things, provision is made for erecting and governing a house of correction in every county, and that common drunkards, common night-walkers, pilferers, wanton and lascivious persons, either in speech or behaviour, common railers and brawlers, such as neglect their calling, and do not provide for their families, stubborn servants and children, fortune tellers, strollers and beggars, should be confined, and made to work.

In 1735, a special act on this subject, relative to the town of Boston, was passed by the Legislature, and confirmed by the General Court, under the present Constitution, in 1789, which confers certain privileges as to the erection and governing these buildings, suited to the condition of a growing metropolis; and under the provisions of which, many of the powers, in this respect, continue to be exercised. -- And the necessity of some institution of a similar plan was so apparent, that in the year 1744, the General Court passed an act for all the province, authorizing any one town, or any two or more towns, united together, to erect and govern a house of correction, for the restraining of the dissolute poor, and compelling them to labour. The statute of this Commonwealth passed 26th March, 1788, seems to be imperative on the Courts of Sessions for the several counties to provide houses of correction, and declares that until such are erected, "the common prison in each county shall be made use of for that purpose." But the common prison in Suffolk County, has long been useless for this object; and the Sub-Committee do not learn that the new one erecting by the County, is planned or adapted to such purpose. -- Indeed, the two establishments are so different as to render their union almost impracticable.

The Sub-Committee refer to these various laws to shew that the wisdom of the government has always been decidedly expressed in favor of some establishment for the purpose now contemplated and which is more obviously necessary in a large seaport town than in any other part of the state. The circumstances already stated will shew as they think a satisfactory reason why at present and for many years past there has been wanting this necessary part of police within the town of Boston. The Sub-Committee do not deem it within their province to extend this report by displaying the various facts and arguments which may prove the utility of a Bridewell or house of correction under proper regulations; but they deem their commission discharged by reporting to the general Committee that there is NOT AT PRESENT ANY SUITABLE INSTITUTION OF THIS KIND UNDER DIRECTION OF THE TOWN OR COUNTY.

JAMES T. AUSTIN, for the Committee.

( B )

Schedule of the expense of the Poor of Marblehead from March) 1820 to March 1821.

In addition to which one thousand days' works were done by 8 men on the high way.

( C )

Report of the Overseers of the Poor of the Town of Salem, March 1, 1821.

In the above sum of $4,296 40, are included all supplies to poor persons not inhabitants of the Alms House, to paupers belonging to other towns, and the amount paid the gaoler for the board of poor persons in gaol, including inhabitants of Salem, State poor, and persons belonging to other towns. A part of the expence thus incurred for other towns, is now due to the Town of Salem.

Value of supplies granted to poor persons not inhabitants of the Alms House, from March 1, 1820, to March 1, 1821, including State Paupers, and persons belonging to other towns, estimated at; $1090 87.

The average number of Paupers in the old Work House for the last twenty-four years the poor resided there, viz. from 1793 to 1816, was 120.

Account of the Expenditure of the Town for the support of the Poor for the last ten years.

( D )

Alms House, April 24th, 1831.

Sir,

By direction of the Board of Overseers of the Poor the following statement is transmitted in answer to your last inquiry.

I am, Sir, your very humble servant, REDFORD WEBSTER.

To the Chairman of the Committee of the Town on the subject of a House of Industry, &c

Of the above sum there were paid out of the house -- for paupers in gaol -- board of insane poor in the Asylum and at other places -- allowance to poor persons and families without the house -- and disbursements of the Overseers in the wards, &c. &c. $14,433 70