S UPER VISION AND CONTROL OF PENAL INSTITUTIONS 3 3 I
penal laws, regulate the organization of administration and courts, and vote intelligently upon the necessary appropriation bills. The voting citizens need information in respect to the policy of administration, and the results of that policy, in order to guide them in deciding the general issues brought before them at elections. The officers of the institutions may, perhaps, profit by the criticisms, advice, and information which come to them from competent citizens who see and feel the consequences of their policy in business, in social intercourse, in the conduct of discharged prisoners.
The object of "control," on the other hand, is more than publicity, and it does not end in giving information and advice. Control means administrative action. It brings things to pass, or it suppresses activity which is not desired. In the last analy- sis it is the putting forth of the will of the people in an executive order or regulation. It is not a part of the process of education, social inquiry, reflection, discussion, and deliberation, but of volition and command, the power of the state being under its every word, decree, and regulation.
Now, it is evident that these two social functions should be clearly distinguished in discussion and controversy. For the arguments which lead naturally to making legal provision for supervision may not carry us so far as control ; and the govern- mental machinery which secures good control may be very defective in promoting that publicity which is of the essence of "supervision," taken in the widest sense, and as used in this report. Furthermore, "supervision" and "control" do not exclude each other ; they are not rivals ; they are both necessary in the best order of administration. An argument on behalf of one is not in opposition to the other.
3. The specific problems which call for this investigation. The list of questions framed and sent out by your committee will show what we had in mind in our inquiry:
QUESTIONS.
A. ON STATE CONTROL OF PENAL AND REFORMATORY INSTITUTIONS.
i. Should all the penal and reformatory institutions of a state be placed under a single board of prison commissioners, with powers of direction and control, where this is not already done ?
