USA > Rhode Island > Providence County > Providence > State of Rhode Island and Providence Plantations at the end of the century : a history, Volume 3 > Part 49
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1But it is a curious and unexplained coincidence that one of these fugitives bore the name of Elisha Reynolds, the rich and public-spirited landholder, who contributed to build the first jail on Little Rest Hill.
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ing become Washington county, it was declared that nothing less than a new jail would suffice to meet the needs of the case. Complaint was also made against the lot on which the jail stood. However, nearly ten years passed, with nothing of importance in the way of repairs and no steps taken toward new buildings, when a committee was raised by the general assembly to secure a lot of land more cligibly situated than the one herctofore occupied, but like this located on Little Rest Hill, and to prepare plans with estimates of the probable cost of the required buildings. This committee reported without unnecessary delay that a contract had been entered into for a suitable picce of ground on the south side of the road ; at the same time plans were sub- mitted for a structure forty feet long, thirty-two feet wide, and two stories high. This report with accompanying plans was promptly adopted and the sum of £2,100 in bills of credit was appropriated to carry the action taken into effect. The work occupied two full years, and cost £694 7s. 5d .; the expense for superintendence was £90 addi- tional.
In the meantime a court house and jail had been built in the city of Providence, at a cost of £664 9s. The jail must have been a very poor affair; for only four years later, January, 1733, a new jail was re- quired, and it was decided that the old one with the land on which it stood should be sold and the proceeds applied to the cost of the new structure. The hope was expressed that some public-spirited person would give a lot on which it might be built. In any case a new jail was to be erected "in some suitable and convenient place in Provi- dence, of the same bigness as that in Kings county." The matter was entrusted to Mr. Daniel Abbott, the sheriff of the county, with two other gentlemen, who purchased land on the north side of a road lead- ing to the ferry at what was known as Narrow Passage, long after known as Jail Lane, and now for many years called Meeting street,1 near the northwest corner of Benefit street. The building here erected, like its predecessor, proved but a temporary structure ; but the Spanish War, the French War, the invasion of Canada, and other public matters at a distance so engrossed attention that nothing further was attempted for twenty years. By this time the volume of paper money had enor- mously increased. It was an era of fictitious prosperity. Everybody thought the colony rich, and the general assembly, willing to encourage such a delusion, was at last prepared to act vigorously in the matter of a new jail. Appropriations were made amounting to £2,000. The old jail and jail lot were sold. The new jail was built on land given by the proprietors of Providence and located on the borders of the Cove, partly over the water, where Canal street now is.
Bristol county, composed of territory hitherto within the bounds of 1Staples's Annals, 180.
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Massachusetts, was incorporated in 1747, with the town of Bristol for its shire town. A court house and jail were at once provided; and in 1793 a second jail was built at an expense of about one hundred and ten pounds.
In 1750 Kent county was incorporated, being composed of the towns of East Greenwich, West Greenwich, Warwick, and Coventry, which were taken from Providence county, and having East Greenwich as its shire town. The citizens of the new county were required to provide themselves with the necessary county buildings. Having agreed to this condition and when the buildings were nearly complete, upon their petition the general assembly voted them a grant for a lottery, the proceeds of which were to be used in finishing and furnishing the court house and jail. In 1779 and again fifteen years later extensive repairs were made.
After the War of Independence, and when the state government had been fully established, the need of a state prison was apparent. Up to the date of the occupation of Newportby British forces the jail in that town had continued to be used as a colony prison; and when a change became necessary the jail in Providence was turned to the same use. We have seen how unsuited it was from the beginning to its purpose ; yet it was not until far into the last decade of the century that a move- ment was started to improve its condition. A committee of three was appointed, and instructed to become acquainted with the needs of the case and to consider whether thirty pounds might not be sufficient to cover all necessary expense. This committee reported that the build- ing was not worth repairing, and recommended that the lot on which it stood, which for the most part was under water twice every twenty-four hours, be filled as far out as the channel, and that on this a new jail be built. The thought of the committee was to combine a state prison with the Providence county jail, and to administer the two with a single corps of officers, so that both state and county prisoners might be able by their labor to contribute at least a portion of the cost of their maintenance. This project gained for itself so much favor and support that the general assembly in June, 1794, was induced to ap- point a committee with instructions to erect a building fifty-three feet long by forty-two feet wide and three stories high. The sum of two thousand pounds was voted for the purpose, and directions given to proceed at once with the work.
But opposition to the plan adopted at once appeared. The feeling against it was strong, and was not confined to any small number of persons. It was active and stubborn. The proposed connection be- tween county jail and state prison was by many regarded as inexpe- dient. These urged that each of the institutions named should be independent of the other and under a separate management. On the other hand it was urged that a separate state prison would involve very
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great expense, much greater than the few eriminals of the grade for which it was designed would warrant. It was further claimed that the plans offered were not fully matured; and without doubt these were open to well-founded criticism. Nothing was done at this time, and in January, 1795, all action that had been taken by the general as- sembly in thematter was revoked. The appropriation was not, however, annulled; and a committee was appointed to build upon such a plan as might be agreed upon by the representatives from the town of Provi- denee. An additional appropriation of two hundred pounds was made in the following June; and now the whole matter was again permitted to rest for a period of nearly two years. A poliey of obstruetion and delay was pursued by those who would have nothing done that would involve an expenditure of the publie funds. In a matter of so great importanee it was well that hasty action should be avoided; but no sufficient reason appears for such delay and inactivity as attended every effort to improve the penal institutions of the state.
A disposition to advance once more manifested itself when the general assembly ordered in October, 1796, a committee of five of its members to prepare a plan for a jail in Providenee, "together with a plan for the confinement of criminals to labor, to be connected therewith, and also a plan of diseipline." Seven months later these reported a plan for a building to cost $12,000, incorporating into their report the rules and regulations which had been adopted at the Walnut street jail in Phila- delphia. An utter failure to grasp the subjeet intrusted to them appears in the appropriation asked for by this committee. No well- informed person could think it sufficient for such a structure as was contemplated by the system proposed. It was next ordered that the jail lot be filled and made ready for the foundations; this work to be done under the direction of three gentlemen who some years earlier had been constituted a committee with power to build according to a plan which sinee that time had been permitted to drop out of sight. The jail lot was filled and another period of inaetivity followed. It was then ordered that foundations be laid, and $1,000 was appropri- ated to meet the expense. Something had been done; but the same adverse influences that had hitherto frustrated each advance movement were still powerful enough to prevent the ereetion of a state prison. The foundations were in place, but that institution which the general assembly had so many times approved could not be builded upon them.
The general assembly in 1798 voted that "a County Prison should be built in Providence on the foundations laid for the ereetion of a State Prison and Penitentiary House," with "sueh alterations in the prison and apartments from those contained in the plan for building a State Prison and Penitentiary House, reported to the Assembly in June, 1797, as are necessary, in consequence of the rejection of that part of said plan which related to the state prison." Arrangements were
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made to receive proposals for building. The old plans were still in the hands of the architect who had prepared them, and when a portion of them was rejected, he declined to permit the use of any other portion. A contractor now presented plans agreeable to himself at least, and was authorized to build a brick structure in harmony with their re- quirements. From time to time during the year various sums werc appropriated aggregating $7,700. A committee was now raised to inspect the work and to settle with the contractors, by whom it was agreed that when some slight changes had been made they would accept and declare the building finished. The contractors still had a claim of $1,200 which the assembly allowed ; later on they were paid an addi- tional sum of $226. A Mr. Smith of the building committee, for ser- vices rendered as superintendent, received $200. The whole cost of the building was a little more than $9,000.
As might have been expected, in view of the circumstances under which it was erected it was never satisfactory and it was always in need of repairs. An appropriation was for thirty years annually made to keep it in condition to be used. Largely the money thus voted was poorly expended. It steadily grew less and less suited to the pur- pose for which it was designed. Every sort of abuse and irregularity existed in its administration. Illicit communications between prisoners and the outside world were easy. Traffic in forbidden articles was carried on with little effort at concealment. It became a horrible place and was for years "a disgrace to the state and a nuisance to the town."1 Meanwhile the project for a state prison was not dead; it only slumbered.
Since the beginning of the century the subject of prison discipline had attracted a good deal of public attention. Some dared to hope that even an incarcerated lawbreaker might be reformed and made a law-abiding citizen; but it was declared that in order to do this there must be a reformation in the character of the jails and prisons in which offenders were confined. Every- where these were in wretched condition. It does not appear that the jail in Providence with all its horrors was worse than many others. Generally the buildings were comfortless and insecure. Scarcely any attention was paid to sanitary conditions. Numbers were crowded into a single cell. A short period of confinement was usually enough to undermine the strongest physical constitution ; the time was spent in idleness. Jails and prisons were schools of vice and crime. If their design had been to make each prisoner at the expira- tion of his sentence worse than he was at its beginning, this result could not have been made surer than it was. But reform was in the air. Men of broad minds and generous impulses were determined to
1Staples's Annals, 181.
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find a better way. What should be the object of imprisonment was a question carefully considered. Soon it was discovered that this must be something more than to punish crime. The welfare of the wrong-docr must not be forgotten. That he had rights which society was bound to respect must be recognized, and of these rights he must not be deprived. Several things must be provided for, safe keeping, moderate expense, the restraint of crime, maintenance of health, the moral and intellectual improvement of criminals, and that these be occupied with some useful employment. Some believed that such cnds would be best served by completely isolating the prisoner from his fellow prisoners, confining him in a cell by himself, where he should work and live, eat and sleep, never secing a fellow prisoner, rarely if ever having a visitor, known to his keeper by number only, the number of his committal or of the cell which was his living grave. This plan may now be studied in the Eastern Penitentiary at Philadelphia, where it still exists somewhat modified, but with all its merits and all its defects plainly discernible. Another plan preferred by others, and first suc- cessfully administered at Auburn Prison in the State of New York, has since been so generally introduced that it may be regarded as the American System. Its salient features are a separate cell for cach convict at night, congregate workshops by day, silence except at certain designated brief periods, the privilege of conversing with the inspect- ors and prison officers, and also with visitors in the presence of an officer, religious exercises in a chapel constructed for the purpose, and in a few cases cating together in a mess room. When the subject of a state prison next came before the general assembly of Rhode Island, these two systems were being carefully weighed against each other by many intelligent and thoughtful persons in public and private life.
A committee was appointed in 1825 to examine the Providence county jail, and to learn how this could be disposed of to the best advantage and a new one built. This committee was given power to report plans and estimates. The opposition was still alert, and imme- diately took alarm. The subject must, however, receive attention. As in former cases a policy of obstruction and delay was immediately inaugurated. Another committee was raised and instructed to report on state prisons in different states. Very naturally the gentlemen composing this committee desired authority to visit the other prisons and to make themselves acquainted with the matters concerning which they were ordered to report; but this would involve an expense to meet which no provision was made. Eight months later another committee was directed to visit the prison at Auburn, New York, and other prisons as the committee should think proper. Perhaps it was not expected that any work would be done; at any rate there is no evidence that visits were made or a report rendered. The result achieved was that intended by the opposition. Nothing was donc.
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Two years later, in 1827, the general assembly was again compelled to give the matter consideration ; a committee was appointed to examine the jail and the lot on which the jail was located. A prompt report was made that a new jail was urgently needed, with a recommendation that four or five acres of land be purchased at Great Point on the north side of the Cove in Providence, on which it should be placed. This committee was continued and one added to its number. No action was taken on its report, however; and again the subject was permitted to lapse into a state of suspended animation. It was clear that nothing would be done by the general assembly till there should be brought to bear upon that body a pressure which it could not well resist; and it was resolved by the people that the general assembly should feel such a pressure. A petition was circulated for signatures, and presented, numerously signed, to the general assembly, asking that a state prison be at once built. The necessity of taking the matter seriously in hand and arriving at some definite conclusion was now manifest. Such a petition must have respectful treatment. A committee made up of men among the most prominent in state affairs was instructed to con- sider the subject and to report the best form of reply to the petitioners. It was the judgment of these gentlemen that the question "shall a State Prison be built, to be paid for by a tax on the ratable polls and estates," be referred to the freemen of the state and decided by their vote. This report was adopted and a day was fixed for voting upon the question. The result was that 4,433 votes were cast in favor of building and only 502 against building. The will of the taxpayers was not to be mistaken. Their wish thus expressed must be granted. It had come in the way of a demand and at last something would be done. Really the legislature acted only when forced to do so.
At the June session in 1834 a representative committee was raised with instructions to select a site, to make an estimate of the cost, and to secure all information that might be necessary preliminary to entering upon a work whose prosecution was now actually contemplated. With- out unnecessary delay this committee reported that Great Point seemed the most eligible site of all that had been suggested. Their view was accepted and it was decided to purchase as much land as might be required, at a cost of not more than five hundred dollars; only two hundred dollars, however, were expended under this order. A com- mittee was now appointed to receive proposals for the erection of the building. Commissioners were chosen and directed to begin opera- tions at once on the Philadelphia plan of separate and solitary confine . ment. It was found that the committee had not purchased enough land and two acres more were secured. The contract already made was now set aside, serious mistakes being discovered in its estimates. A new agreement was entered into with responsible parties, and a practical builder was engaged to superintend the work. For some
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reason the reeently appointed commission was now diseharged and another differently constituted was appointed. The superintendent was allowed the sum of three dollars per day as compensation for his serviees, and was required to be at all times upon the grounds when work was going on. Some member of the commission was selected who should be on the grounds at least one day in each week, and who was to be paid a reasonable sum for sueh serviee. After nearly three years of preparation, the work began to be prosecuted with considerable vigor, but the opposition was not yet dead. Great dissatisfaction was by some expressed with the place selected for the prison; these would have a loeation further from the water and on higher ground, and they did not fail to make themselves heard in the general assembly. At their instanee a committee was raised to consider the advisability of going on with the work begun, and with power to convert what had already been done into a county jail, or to stop at onee all operations then in progress, if they should think proper so to do. The result of this aetion must have been a bitter disappointment to those whose pur- pose it was intended to serve; for the decision of the committee was that the enterprise should go forward to its completion at the plaee chosen and upon the plan thus far pursued. In due time the prison was finished, and on November 16th, 1838, the first eonviets, four in number, were committed to it for restraint and punishment.
The plan ineluded a keeper's house forty-eight feet square two stories in height, and faeing the water. Adjoining the keeper's house on the north was a small building which eonneeted it with the prison proper. This was ninety-three feet long, forty-eight feet wide, and two stories high. Extending through its entire length was a corridor ten and one-half feet wide, with cells on either side, forty in number, arranged in two tiers, twenty cells in each tier. In the lower tier each eell was eight feet wide, fifteen feet long, and nine feet high ; while those in the upper tier were three feet shorter and reached to the roof. A little light, enough to reveal the gloom, was admitted into each cell from the corridor through two small pieces of window glass, each five inches in width by fourteen inehes in length, and placed at the top of the solid door. A feeble attempt at ventilation was made through a very narrow opening into the corridor at the bottom of the door; no provision whatever being made for a cireulation of air. There were no adequate means of heating the building, whose granite walls, bare and grey, were without lining of any sort; so that when the temperature was low on the outside frost gathered thick on the inside, and could be scraped from the wall in handfuls. When the eonviet had eseaped suffocation in the summer it is difficult to understand why he did not freeze to death in the winter. It will be re- membered that in one of the cells described a prisoner would, aeeording to the system adopted, remain day and night, eating,
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sleeping, working; never passing its door into the corridor, never see- ing the face of man save that of his keeper and his instructor, required to maintain utter silence, except when it might become absolutely necessary to address keeper, instructor, or physician, and then com- manded to use as few words as possible; never hearing his name spoken, known even to his keeper by his number only, his personality wholly lost and almost forgotten, dead to the world and to all its conditions, hid in a living tomb ; and this without respite or interval or. change of any sort, during all the period of his incarceration. It was a prolonged and horrible torture. And this was that separate system of prison management and discipline so much praised and so enthusi- astically introduced here and in other states at a date not yet seventy- five years in the past.
We wonder that such a scheme could meet the approval of intelli- gent and representative men in a civilized and christian community toward the middle of the nineteenth century. But the general assembly and their commissioners were misled by the teachings of unpractical theorists in penology ; influenced by whom they accepted without chal- lenge glowing accounts of a success which was said to attend its work- ing in Philadelphia, and they built a structure of huge, rough blocks of granite, clamped together with iron rods, the only conceivable merit of which was that it seemed so nearly "impregnable from within,"1 and which soon showed itself in every respect unfitted for its purpose, remaining thereafter for thirty-five years or more a monument of shame and disgrace to the state. The cost of these buildings was about $51,500, or in the neighborhood of $1,300 per cell.
Before the state prison was finished the general assembly had decided to connect with it and adjoining the keeper's house on the east a new jail for Providence county. This was built and ready for use within a year from the date on which the order was passed for its construction. The cost was not quite cight thousand dollars. It was a much smaller building, more compact than the state prison, and upon a different plan, being sixty-five feet long, twenty-seven feet wide, two stories high, and containing eighteen cells, each cell nine feet long by seven feet wide, with four larger rooms designed for persons who should be committed for debt. These cells and rooms were arranged in a single block in the middle of the building, with corridors between them and the outside walls. Water was supplied to both prison and jail from a tank in the upper part of a small building behind the keeper's house ; what was the source of supply and how the water was brought to this tank does not appear. Artificial heat was conveyed by means of hot water pipes running through the corridors and cells; the same method was employed to heat the prison, and in either case it was
1Staples's Annals, 183.
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insufficient for the purpose. In the materials of which it was con- structed and in the plan of its construction this jail proved as unfit as the prison for the occupancy of human beings. When it had been used but four years, Judge Staples of the Supreme Court declared that it had already "gained for itself anything but an enviable reputa- tion. "
To the subject of management and supervision much thought was devoted. There was an act of the legislature providing for the annual election of seven Inspectors in whose hands should be placed the control and oversight of all officers and prisoners, with power to appoint a warden, his several subordinates, and a prison physician. The sal- aries of these officials were to be determined by the general assembly. The style and the material of the prison garb was left to the discretion of the Inspectors. These were also to arrange for the employment of the prisoners, and to let out their labor on contract as should seem most likely to yield a profit to the state. At this time few doubted that the state prison would be self-supporting, if it were not even a source of revenue to the state. The inspectors would serve without compensa- tion. The first Board of Ispectors consisted of Messrs. Samuel W. King, William R. Staples, William S. Potter, Christopher Rhodes and Henry S. Mumford; of these Mr. King was made chairman and Mr. Potter clerk. They were broad-minded men, experienced in the man- agement of affairs and well qualified to administer successfully the charge committed to them, if this had been possible.
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