THE BERLIN MUNICIPAL LABOUR HOUSE.
The Labour House at Rummelsburg, near Berlin, is an example of a house
of correction for offenders of the classes dealt with at Benninghausen
conducted by a municipality. This institution is maintained entirely
by the City of Berlin, and while it exists to meet the requirements of
the Imperial Penal Code, as already explained, there is attached to
it a large hospital which closely corresponds to an English workhouse
infirmary.
This hospital is intended for the reception of (1) persons suffering
from incurable diseases, also infirm persons who are no longer able
to look after themselves, even with the assistance of outrelief; (2)
those, who, owing to their past irregular mode of life (intemperance,
immorality, criminality, etc.), are unsuited to admission to the usual
municipal infirmaries; (3) destitute persons who might still be given
outrelief, but who, by reason of their irregular mode of life, as above
stated, would be better provided for in a public institution; (4) those
in receipt of relief who are believed to be likely to give way to
mendicity; and finally (5) persons sentenced to disciplinary detention
who are infirm or ill, and incapable of work. In general, the class
of persons accommodated are the undeserving infirm poor who are not
thought worthy of permanent association with indoor paupers of more or
less respectable antecedents. Although under the management of the same
Director, and administered by the same Committee of the Town Council,
the hospital is entirely independent of the house of correction, and
its inmates are disregarded in the statistical data which follow.
The numbers detained at Rummelsburg during the financial year 1907-8
were as follows:--
----------------------+---------+----------+---------
| Males. | Females. | Total.
+---------+----------+---------
Number detained on | | |
April 1, 1908 | 1,349 | 36 | 1,385
Admitted during year | 1,428 | 102 | 1,530
+---------+----------+---------
| 2,777 | 138 | 2,915
+---------+----------+---------
Discharged during the | | |
year | 1,128 | 55 | 1,183
Died | 21 | -- | 21
+---------+----------+---------
| 1,149 | 55 | 1,204
+---------+----------+---------
Number remaining on | | |
March 31, 1909 | 1,628 | 83 | 1,711
----------------------+---------+----------+---------
Of the 1530 persons admitted during the year 1381 (1,282 men and 99
women) had been committed by the Police Authorities of Berlin, and 149
(146 men and 3 women) were reinstated with a view to their completing
sentences interrupted owing either to temporary removal to hospital or
to escape.
The offences which led to commitment were the following:--
---------------------+--------+----------+--------
| Males. | Females. | Total.
+--------+----------+--------
Vagabondage | 11 | -- | 11
Begging | 655 | 7 | 662
Homelessness | 567 | 61 | 628
_Souteneurs_ | 49 | 31 | 80
+--------+----------+--------
Totals | 1,282 | 99 | 1,381
---------------------+--------+----------+--------
The duration of the sentences awarded was as follows:--
---------------------+--------+----------+--------
| Males. | Females. | Total.
+--------+----------+--------
Six months and under | 252 | 42 | 294
From six months to | | |
two years | 545 | 43 | 588
Two years | 485 | 14 | 499
+--------+----------+--------
Totals | 1,282 | 99 | 1,381
---------------------+--------+----------+--------
Of the 1,183 persons discharged during the year, 84 went to their own
homes, 921 had no homes to go to, 113 were handed to other judicial
authorities, 13 were removed to outside hospitals or lunatic asylums,
and 52 were removed to the infirmary after completing their sentences.
Of the persons newly admitted, 20 were twenty-one years of age or
under, 76 were between twenty-one and twenty-five years, 126 between
twenty-five and thirty years, 346 between thirty and forty years, 389
between forty and fifty years, 322 between fifty and sixty years, 91
between sixty and seventy years, and 11 seventy years and upwards.
The occupations of these 1,381 persons were as follows:--
-----------------------+-------+--------+--------
| Men. | Women. | Total.
+-------+--------+--------
Agriculture, forestry, | | |
gardening, hunting, | | |
fishing | -- | -- | --
Industry, mining, and | | |
building | 541 | 3 | 544
Trade and commerce | 122 | 3 | 125
Domestic service and | | |
casual labour | 618 | 93 | 711
No occupation or | | |
none stated | 1 | -- | 1
-----------------------+-------+--------+--------
The inmates of the Berlin Labour House are employed in a variety of
ways, but chiefly in the works connected with the irrigation farms
belonging to the city. All the men of this class are lodged in barracks
near the farms, so as to avoid walking the long distance to and fro
every day. The remainder of the men are engaged in miscellaneous
trades, such as tailoring, shoe making, clogging, wood-working, basket
and brush making, lock-smithery, tinning, straw-plaiting, book binding,
etc.; wood cutting is done by the less skilled men; and old men are
put to light employments like coffee bean and feather sorting. Most
of the women not engaged in domestic work are employed in sewing and
washing for municipal institutions, like the hospitals, shelters for
the homeless, the cattle market and abattoir, etc. The following table
shows the manner in which the labour of the inmates was distributed
amongst these employments, with the number of days worked, and the
value of the work done, during the year 1908-9:--
_Paid Work._
--------------------------------+-------------+----------
| Number | Value of
| of days | Work.
| of Work. |
+-------------+----------
(1) _Outside the Labour House._ | |
| | £ s.
Agricultural work on the sewage | |
farms during seven months of | |
summer | 128,526 | 2,570 10
Work for other municipal | |
institutions | 2,884-3/4 | 100 19
Work for officers of Municipal | |
Orphanage and Shelter | 90 | 3 3
| |
(2) _Inside the Labour House._ | |
Sewing (women) | 230 | 6 15
Washing | 7,214 | 1,854 13
Wood-cutting | 20,894 | 361 18
Other inside work | 3,714 | 129 19
Farm work | 1,382 | 48 17
Work for officers in the | |
workshops | 5,418 | 135 9
Work for outside employers | 7,403 | 20 19
Oakum-picking | 1,900 | 3 11
+-------------+----------
| 179,655-3/4 | 5,236 13
--------------------------------+-------------+----------
_Unpaid Work._
----------------------------------------------+---------
| Number
| of Days.
----------------------------------------------+---------
(1) Agricultural work on these wage farms, in |
five winter months (November to March) | 102,968
(2) Work at the Municipal Shelter | 610
(3) Artisans' work for the Labour House | 34,238
(4) Gardeners' work for the Labour House | 3,170
(5) Work in the kitchens | 13,179
(6) Sempstresses | 12,213
(7) Washing | 14,428
(8) Bookbinding, writing and work of porters, |
stokers, etc. | 44,859
(9)Cooking and other domestic work done |
at the sewage farms, etc. | 25,544
+---------
| 251,209
----------------------------------------------+---------
The work of the kinds classified under Nos. 3 to 9 was charged in the
books at 58 pfennige (about 7d.) per day, representing an aggregate
value of £4,281 5s., making the entire imputed earnings of the inmates
£9,517 8s. This amount does not include the wages or bonus paid to the
inmates, as stated below.
The work-day consists of ten hours, and the time-table for week days
and for Sundays and festivals is as follows:--
_Weekdays._
Rise 5.45 a.m.
First breakfast 6.0 "
Work 6.15 " to 9.0 a.m.
Second breakfast 9.0 " to 9.30 "
Work 9.30 " to 12.0 noon.
Dinner, and rest 12.0 noon to 1.30 p.m.
Work 1.30 p.m. to 5.0 p.m.
Supper 5.0 " to 5.30 "
Work 5.30 " to 6.45 "
Rest till bedtime.
Bedtime, and lights out 7.0 p.m.
On Saturdays and the evenings before festivals work ceases at 4.0
p.m., but the intervening time until 5.45 is given to cleaning the
washplaces, etc., and bedtime is 6.0 o'clock.
_Sundays and Festivals._
-------------------------+-----------------------+----------------------
| Summer. | Winter.
+-----------------------+----------------------
Rise | 5.45 a.m. | 6.45 a.m.
Breakfast | 6.0 a.m. to 6.15 a.m.| 7.0 a.m. to 7.15 a.m.
Exercise in open air | 6.15 " to 8.30 " | 7.15 " to 8.30 "
Divine service | 8.30 " to 9.30 " | 8.30 " to 9.30 "
Exercise in open air | 9.30 " to 12.0 " | 9.30 " to 12.0 "
Dinner | 12.0 " to 12.30 " |12.0 " to 12.30 p.m.
Exercise in open air and | |
relaxation | 12.30 p.m. to 5.0 p.m.|12.30 p.m. to 5.0 p.m.
Supper | 5.0 " to 5.30 " | 5.0 " to 5.30 "
Rest | 5.30 " to 5.45 " | 5.30 " to 5.45 "
Bedtime | 5.45 p.m. | 5.45 p.m.
--------------------------+----------------------+----------------------
While, as a rule, the hours of work are the same for all, the tasks
allotted are, as far as possible, proportioned to individual capacity.
One of the rules[64] of the establishment states:--
[Footnote 64: The full Regulations of the Rummelsburg Labour House
appear as an Appendix on pp. 263-267.]
"Every inmate is required to perform, without demur and to the best
of his ability, the work allotted to him, either inside or outside
the establishment. As a rule, all inmates have to work on week-days
an equal number of hours, and to perform in that time a task
proportionate to their capacity, the completion of which, however,
does not exempt them from working to the end of the usual time. The
administration may, however, under certain circumstances curtail the
duration of the daily hours of work and the extent of the task in
individual cases. Anyone who, owing to idleness or negligence, fails
to perform his allotted task, or who in general works slothfully or
negligently, will be punished. No inmate may, without permission,
allow his work to be done for him by another, or do another's work."
For the encouragement of diligence and good conduct a small wage is
paid. This amounts to 10 pfennige or 1-1/4d. per day for most work, but
only half this sum in the case of certain inferior occupations. The
rule on the subject says:--
"The proceeds of the work done by the inmates, on the order of the
Administration, belong to the Municipality of Berlin, and are paid
into the treasury of the establishment. The extra pay credited to the
inmates by employers is divided into two equal parts, of which one
is placed at the inmate's disposal for the purchase of extra food,
the payment of postage, and other necessary expenses, during his
detention, while the other accumulates as savings until his discharge."
At the beginning of the financial year 1908-9 the bonus account of the
various inmates stood at £1,196 10s.; there was added during the year
£2,331, and paid out £2,109 10s., leaving a balance to the credit of
the inmates of £1,418. The disbursements from this account during the
year included £1,249 paid to discharged inmates, £573 paid to detainees
for the purchase of extras, £159 paid for clothing needed by departing
inmates, and £102 charged for damage done through malice or negligence.
The utmost endeavour is made, by firm yet just treatment, to encourage
the inmates in the habit of industry; the individuality and aptitude
of each man are carefully studied, with a view to his employment in
the manner most likely to draw out the best in him; the diligent and
trustworthy are selected for the more responsible posts, and all are
made to feel that their re-making lies in their own hands. Great stress
is laid upon the moral basis of work, without undue obtrusion of the
religious motive. One of the regulations runs:--
"The inmates shall live together in peace and quiet, none interrupting
another in his work, but rather by industry, order, and decent moral
behaviour encouraging each other to reformation of life, and setting
each other a good example. Conversation upon past misdemeanours may
under no circumstances take place; nor may one inmate reproach another
with any crime which he may have committed, or with his past mode of
life."
The time allowed for leisure and relaxation cannot be called excessive,
but such as it is the inmates are encouraged to employ it in reading.
Special prominence is given, indeed, to the library, of which the last
annual report says:--
"The library is intended to serve the purpose which the administration
of the Labour House seeks to achieve, viz., the transformation of the
detainees committed to its charge into useful members of society. The
educational influence of the use of books should not be depreciated.
The administration earnestly endeavours, by offering to the inmates
books of an entertaining, instructive and edifying character, and such
as may lift them out of their everyday surroundings, and by studying
the individuality and educational standard of each person, to offer
them healthy stimulus during the hours of leisure. These books and
the Sunday magazines which are regularly distributed are read with
eagerness. The library is open to all inmates without exception."
The fact may be added that no less than £25 a year is spent on the
provision of new books. As for other moral influences, religious
services are held regularly on Sundays and festivals, and Holy
Communion is administered at intervals, for Protestant and Roman
Catholic detainees separately.
Little fault is found with the general conduct of the inmates, in spite
of the fact that the majority are old offenders. The character of the
material with which the Labour House has to deal may be judged from the
following summary of the punishments which had been undergone by those
newly admitted in the year 1908-9:--
------------------------+-------+--------+-------
| | |
Mode of Punishment. | Men. | Women. | Total.
| | |
------------------------+-------+--------+-------
| | |
Labour House (house of | | |
correction) | 791 | 50 | 841
Labour House more | | |
than three times | 558 | 13 | 571
Recommitted within a | | |
year of previous | | |
detention | 58 | 6 | 64
Close detention more | | |
than ten times | 371 | 22 | 393
Close detention more | | |
than twenty times | 538 | 33 | 571
Prison | 916 | 59 | 975
Gaol | 127 | 3 | 130
Imprisoned before | | |
eighteenth year | 23 | -- | 23
| | |
------------------------+-------+--------+-------
Nevertheless, during the year punishments for offenders against
discipline were awarded to only 304 inmates in 352 cases. The
percentage of the male inmates punished (calculated on the mean daily
average detained) was twenty-one, and of the female inmates 12. The
punishments begin with mere reproof, and then follow in order of
severity: withdrawal of permission to receive visits for a time,
withdrawal of permission to write or receive letters, forfeit of
the right to supplement the Labour House diet out of the reward of
industry, forfeit of earnings themselves, disallowal of open air
exercise, curtailment of rations, simple cell detention, and finally
imprisonment on hard fare. Only in case of violent insubordination may
chains or the straight jacket be resorted to.
It is difficult to speak definitely as to the permanent influence upon
these people of Labour House treatment. The proportion who leave the
House "reformed" in the usual acceptance of the word is, no doubt,
small, as the large percentage of re-committals proves. Viewing the
institution less from the individual than the social standpoint,
however, the fact remains that under restraint the average loafer
shows that he is able to work, and to work well. Not only so, but
the cost of his detention is not excessive. During the year to which
all the foregoing figures relate, the entire cost of maintenance and
administration, both of the Labour House and the Hospital, including
interest at 3-1/2 per cent. upon the value of the land and buildings,
was £55,101, or deducting £5,236 received for work done by the inmates
(exclusive of that done for the establishment), £49,865, equal to
1s. 3d. per head per day for the whole of the inmates. The cost of
able-bodied inmates only was estimated at a fraction under 11d. per
head per day, or 6s. 3d. per week.
Tables are added showing the average number of inmates in the Labour
House during the years 1899 to 1908, and the commitments for begging
only during nineteen years:--
_Average Number of Inmates (all Classes)._
--------------+--------+----------+--------
| Males. | Females. | Total.
+--------+----------+--------
1899 | 1,080 | 124 | 1,204
1900 | 1,107 | 151 | 1,258
1901 | 1,128 | 150 | 1,278
1902 | 1,600 | 152 | 1,752
1903 | 1,660 | 117 | 1,777
1904 | 1,694 | 145 | 1,839
1905 | 1,849 | 129 | 1,978
1906 | 1,685 | 117 | 1,802
1907 | 1,369 | 65 | 1,434
1908 | 1,403 | 58 | 1,461
--------------+--------+----------+--------
_Commitments for Begging._
-----------------------+------------------
1889-1890 709 | 1900 641
1890-1891 656 | 1901 868
1891-1892 916 | 1902 984
1892-1893 1,253 | 1903 1,053
1894 1,087 | 1904 1,008
1895 925 | 1905 823
1896 824 | 1906 587
1897 715 | 1907 594
1898 633 | 1908 662
1899 735 |
-----------------------+------------------
It should be pointed out, however, that the latter figures afford no
indication whatever as to the frequency of the offence of mendicancy in
Berlin. Detention in the Labour House is a secondary punishment, and
those who receive it form only a small proportion of the total number
of persons prosecuted for begging. The following statement shows,
for a period of twelve years, the numbers apprehended, prosecuted,
and convicted in Berlin for this offence (the difference between the
apprehensions and prosecutions represents those who were simply warned
and discharged):--
-------------+-----------+----------+----------
| | |
Year. | Appre- | Prosecu- | Convic-
| hensions. | tions. | tions.
| | |
-------------+-----------+----------+----------
| | |
1894 | 21,678 | 19,244 | 11,216
1895 | 19,318 | 16,780 | 9,434
1896 | 22,048 | 19,064 | 10,058
1897 | 23,434 | 20,343 | 10,681
1898 | 20,378 | 16,931 | 8,781
1899 | 16,556 | 13,672 | 7,043
1900 | 17,334 | 14,097 | 7,246
1901 | 20,674 | 17,054 | 9,885
1902 | 23,582 | 18,962 | 11,545
1903 | 21,576 | 17,524 | 10,706
1904 | 19,019 | 15,562 | 10,069
1905 | 16,148 | 13,197 | 8,301
| | |
-------------+-----------+----------+----------
Comparing the average number of apprehensions for mendicancy during the
last five years with those of the first five in the table, a decrease
will be found of from 21,371 to 20,199, in spite of a large increase in
the population.