A Treatise on the Police of the Metropolis Part 39

from the year 1787 to the year 1797 inclusive, stood thus:--

Men and Women. Children. TOTAL.

1787 778 17 795 1789 1251 22 1273 1790 2029 9 2038 1791 408 11 419 1792 412 6 418 1794 82 2 84 1795 133 3 136 1796 279 13 292 1797 393 10 403 ---- -- ---- 5765 93 5858

[Footnote 148: Norfolk Island is a small fertile spot, containing about 14,000 acres of land, situated about 1200 miles distant from Sydney Cove in New South Wales, where the seat of Government is fixed.]

It appears also from another doc.u.ment in the same Report (being the last return of Convicts in the two Settlements) that their numbers stood as stated in the following Table,--

Convicts Convicts Convicts Total Total Victualled Emanc.i.p.ated Men and Men Women Men Women Men Women Men Women Women ----------+----------+-----------+----------+----- In New South } Wales on the } 31 Aug. 1796 } 1633 755 78 5 20 9 1731 769 2500 In Norfolk } Island on the} 22 Oct. 1796.} 379 167 53 0 12 3 444 170 614 ---- --- --- - -- -- ---- --- ----- 2012 922 131 5 32 12 2175 939 3114

To which add the Convicts sent in 1796 and 1797, including Children 695 ---- Total 3809

The diminution of Convicts from 5858 to 3809 is to be accounted for, by a certain proportion leaving the Settlement after the expiration of their time, and also by deaths,[149] which in the natural course of things must be expected.

[Footnote 149: In 21 months after the arrival of the first Convicts in May 1788, there were 77 deaths and 87 births in the whole Settlement.]

In resorting to this mode of disposing of Convicts, which at the time must be considered as a choice of difficulties, a very large sum of money has been expended.--Certainly much more than could have been foreseen at the commencement: Since it appears from the 28th Report of the Select Committee on Finance, who certainly have bestowed infinite pains in the investigation, that the total amount exceeds _One Million Sterling_, as will be seen from the following Statement, extracted from page 120 of that 28th Report, viz:

Disbursed for 5858 Convicts including 93 Children, transported to New South Wales

. _s._ _d._ In 1786 28,346 3 6 -- 1787 29,242 11 10-1/2 -- 1788 18,008 9 2 -- 1789 88,057 18 2 -- 1790 44,774 4 6-1/4 -- 1791 129,019 19 10-3/4 -- 1792 104,588 2 3-3/4 -- 1793 69,961 16 6-1/2 -- 1794 79,381 13 11-1/2 -- 1795 75,280 19 0-3/4 -- 1796 83,854 18 0 -- 1797 120,372 4 8-3/4 To which add the total Naval Expences 166,341 4 11 ------------------------ Total Expences in 12 Years .1,037,230 6 7-3/4

Specification of the heads of Expences above stated--

Expences of the first Establishment of the Settlement and Transportation of Convicts 264,433 11 0

Expences of Victualing Convicts and the Settlement from hence 186,270 1 3-1/4

Expences of Cloathing, Tools, and Sundry Articles 116,658 15 3

Bills drawn for the purchase of Provisions, &c. for the use of the Colony 138,225 9 8-3/4

Expence of the Civil Establishment 48,134 0 2-1/4

Expence of the Military Establishment 94,993 11 3

Expence of the Marine Establishment 22,173 13 0-1/2

Naval Expences as above 166,341 4 11 ---------------------- Total .1,037,230 6 7-3/4 ----------------------

Thus it appears, that in executing the sentence of the Law on 5765 Convicts more than One Million Sterling has been expended, nearly equal to 180_l._ for each Convict, exclusive of the expence incurred by the Counties, and by Government in the maintenance at home; and without taking into the account the very considerable charge, which must have been borne by the private Prosecutors in bringing these Offenders to Justice.

The Select Committee in their laborious investigation of the effects of this System, very justly observe, "that the numbers of the Convicts do not appear to have kept pace with the increase of the expence."--They proceed to state (page 27 of the Report) "that after a trial of twelve years, it seems not too early to inquire whether the peculiar advantages likely to arise from this plan are such as may be considered as compensating for its probable expence. The security held out by the difficulty of return on the part of the convicts is the only advantage that strikes the eye: but the nature of this advantage, the amount of it, and the certainty of it, seem not altogether undeserving of inquiry; nor whether a security of the same sort more at command, and more to be depended on, might not be purchased on less exceptionable terms. It may be also worthy of inquiry (add the Committee) whether the advantages looked for, from this establishment may not be dependent on its weakness? and whether as it grows less disadvantageous in point of finance, it will not be apt to grow less advantageous in the character of an instrument of Police? The more thriving the Settlement the more frequented: The more frequented the less difficulty of return.--The more thriving too the less terrible.

To persons in some circ.u.mstances;--to persons who otherwise would have been disposed to emigrate, it may loose [Transcriber's Note: lose] its terrors altogether, especially if by money or other means the servitude be avoidable. This inconvenience had already become sensible in the instance of the comparatively old planted Colonies. Many, though innocent, went thither voluntarily, even at the price of servitude, while others under the notion of punishment, were sent thither for their crimes; so that while to some the emigration remains a punishment, to others it may become an adventure; but a punishment should be the same thing to all persons, and at all times."

Contingencies, the Committee remark, may diminish the utility of the Establishment, or may increase the expence. "Bad seasons, and the destruction of the vegetable part of the stock of food: Mortality among the as yet scanty stock of cattle.[150] Mischief from the natives,--from insurrection among the convicts, or from the enemy.

[Footnote 150: An account of the Live Stock in the possession of, and Land in cultivation by, Government, and the Officers civil and military, 1st September 1796, extracted from page 123, of the above Report of the Select Committee on Finance.

Civil and Military Government. Officers. Settlers. Total.

Mares and Horses 14 43 0 57 Cows and Cow Calves 67 34 0 101 Bulls and Bull Calves 37 37 0 74 Oxen 46 6 0 52 Sheep 191 1310 30 1531 Goats 111 1176 140 1427 Hogs 59 889 921 1869 ---- ---- ---- ---- 525 3495 1091 5111[G]

[Footnote G: In addition to the above Stock 61 head of Cattle were discovered in the year 1795, about 50 miles S.W. of the town of Sydney, which must have been produced from three Cows which strayed from the Settlement in 1788. This proves that at least one of the Cows at the time must have been big with a Bull Calf, and also gives the data for calculating the rate of the increase.]

Land in cultivation, viz:-- Acres.

Government 1700 Civil and Military Officers 1172 Settlers 2547 ---- 5419

The above 1700 acres were unemployed in 1796, on account of the want of public labourers, and the many buildings required--about 4-5th parts of the 1172 acres were sown with wheat--much timber cut, but not burnt off, on the 2547 acres belonging to the settlers.]

"Here, as at Sierra Leone, malice may produce an expedition of devastation. The illusions to which the spirit of rapine is so much exposed may give birth to an enterprize of depredation; apprehensions of any such event entertained here would necessarily give birth to preparations of defence. The apprehensions may be well or ill grounded--the measures taken for defence successful or unsuccessful; but the expence in the mean time is incurred. The distance is unexampled, and all danger as well as all expence swells in proportion to the distance: these topics appear to merit consideration.

"Another circ.u.mstance is, that the labour of the whole number of persons sent to these colonies, whether as Convicts or Settlers, _is entirely lost to the Country_, nor can any return, to compensate such a loss, be expected till that very distant day, when the improved state of the Colony may, by possibility, begin to repay a part of the advance, by the benefits of its trade.

"Supposing abundance established, and remaining for ever without disturbance, it may be deserving of consideration, in what shape and in what degree, and with what degree of a.s.surance, Government, in point of Finance, is likely to profit by the abundance: for the stock of the individuals, which each individual will consume, lay up or sell, is on his own account; is not the Stock of Government. The saving to Government depends upon the probity and zeal, and intelligence of the Bailiffs in Husbandry, acting without personal interest in the concern at that immense distance."

After opinions so decided, the result of an inquiry, aided by extensive information, and conducted by men of talents and judgment, it would ill become the Author of this Work to offer (if he could suggest,) additional arguments to prove the disadvantages which have attended, and which are likely to attend the transportation of Convicts to New South Wales. Although with regard to mere _subsistence_, there may be a prospect (and it is yet a distant one), of the Colony becoming independent of supplies from this Country; yet with respect to most other articles its wants will experience no diminution, and having once engaged in the project, humanity requires that the Settlement should be supplied at the expence of the Nation.

When the measure of establis.h.i.+ng this Colony was adopted, a hope was probably entertained that while the great difficulty and expence of the pa.s.sage home, joined to the fertility of the soil and the salubrity of the climate, might induce convicts to remain after the expiration of the period specified in their sentence, so as not to become offensive again to their native Country; the removal to an unknown region, inhabited by Savages, and situated at such a remote distance from Great Britain would exhibit this species of punishment in so terrific a light as to operate powerfully in preventing crimes.

Experience, however, has shewn that this salutary effect has not been produced, and that crimes are not to be diminished by the dread of punishment in any shape. This great desideratum is only to be attained by a well-regulated Police, calculated to destroy the sources from whence evil propensities spring, and to remove the facilities by which criminality is nourished and a.s.sisted.

Under the present circ.u.mstances, where the mind continues depraved, and where the harvest is so prolific, it ceases to be a matter of wonder that a considerable proportion of the convicts transported to New South Wales, have found their way back to their native Country;--and that not a few of them have again afflicted Society by renewing their depredations on the Public.--It is, indeed, lamentable to reflect, that after the extreme labour which has been bestowed, and the unparalleled expence which has been incurred, no effect whatsoever favourable to the interest of the Community, or to the security of innocence, has been produced. Looking back to the period when Government was relieved of the expence of Convicts, almost of every description under sentence of Transportation, and reflecting on the enormous expence which has been incurred since the channel of disposal, through the medium of the late American Colonies, has been shut up; considering that within the short period of twenty-five years no less a sum than 1,663,974_l._[151] has been expended in transporting and maintaining about 15,000 Convicts, which would have cost nothing under the old System;--it cannot be sufficiently lamented, that so liberal a provision had not been employed in establis.h.i.+ng Systems of Prevention. One fourth part of this enormous sum expended in a proper establishment of Preventive Police, would probably have rendered transportation and punishment in a considerable degree unnecessary, while the Country would have benefitted by the industry of a large proportion of these outcasts, who would then have been compelled to earn an honest livelihood by their labour.

[Footnote 151:

Expence of maintaining about 9000 Convicts in the Hulks, from January 1, 1795, to January 1, 1798 . 623,022

Expence of Transporting Convicts in 1785 and 1786 3,722

Expence of Transporting and Maintaining Convicts from 1786 to 1797, New South Wales 1,037,230 ----------- Total .1,663,974]

Deploring the ma.s.s of turpitude which has drawn from the resources of the Country so enormous a portion of wealth, it is no little consolation to be able to look forward to a measure recommended by the Select Committee, and in the train of being adopted by Government, which holds out so fair a prospect not only of gradually diminis.h.i.+ng this expence in future, but also of rendering the labour of Convicts productive, and of securing the Public against the repet.i.tion of those depredations which have been rather increased than prevented, by the System of punishments which have been heretofore adopted.

The advantages in contemplation are to be attained by carrying into effect a _proposal for a new and less expensive mode of employing and reforming Convicts_, which has been offered to the consideration of Government by JEREMY BENTHAM, Esq. and which appears to have been fully investigated by the Finance Committee, who state it (p. 20, of Report 28,) "to be no small recommendation to the plan, that the Contractor proposes to employ the prisoners on his own account, receiving a proportionally smaller sum from the Public for their maintenance.--That the great and important advantages which distinguish that plan from any other which has been hitherto suggested, consist in the certain employment and industrious livelihood which it insures to those whose terms of confinement are expired. In the responsibility which the Contractor proposes to take upon himself, for the future good behaviour of Criminals entrusted to his care, even when they shall be no longer under his control: in the publicity which is meant to be given to the whole conduct and effect of the Establishment, _moral_, _medical_, and _oeconomical_, as well by an annual report of the state and proceedings, as by the constant facility of inspection, which will in an unusual manner be afforded by the very form and construction of the building, upon which the prompt and easy exercise of the superintending power of the Governor himself princ.i.p.ally depends."

These advantages appear to the Committee of more importance, when the periods of the enlargement of the several Convicts now on board the Hulks are taken into consideration. The pernicious effects produced upon the unfortunate persons confined in these seminaries of vice; and the circ.u.mstance of 1411 destined to be enlarged in the course of 7 years, to afflict the Society from which they have been separated--the Committee consider as deserving of very serious consideration: and they conclude their view of the subject by expressing, an uncommon degree of solicitude, that no delay should take place in the execution of the contract with Mr. Bentham, "because it would deprive the Public for a longer time of the benefits of a plan, which they cannot but look to as likely to be productive of the most essential advantage, both in point of oeconomy and Police."

The object in view is by the aid of ingenious machinery, to render the labour of every cla.s.s of Convicts so productive to the Contractor, as to admit of their being maintained at 25 per cent. less than the expence incurred on board the Hulks; while a rational prospect is held out of reforming these Convicts and returning them upon Society, not only with purer morals, but with the knowledge of some trade or occupation by which they may afterwards earn their bread;--but this is not all.--The proposer of this important design insures to the Convicts, after the expiration of their time, the means of obtaining a _livelihood_; by setting up a _Subsidiary Establishment_, into which all who found themselves otherwise dest.i.tute of employment would be admitted, and where they would be continued in the exercise of the trades in which they were employed during their confinement.

It is, however, impossible to do justice to the merit of this _Proposal_, without laying it wholly before the Public. It seems to embrace every object calculated to remove the errors and difficulties of the present System, while it promises in a short time to relieve the Finances of the Country from the enormous and unparalleled expence which is incurred by the Establishment of the Hulks, and by Transportation to New South Wales.

PROPOSAL

FOR A NEW AND LESS EXPENSIVE MODE OF