the gaoler that the governor had decided that he should be sent to England, in order that he might arrange to be exchanged for a French naval officer, after swearing that in case this could not be managed, he would return as a prisoner to Brest. It was a great trial of any man's good faith, but it was not misplaced, and happily the exchange was easily made. No sooner were his own affairs settled than Howard set about freeing his countrymen, and very shortly some English ships were sent to Brest with a cargo of French prisoners and came back with an equal number of English ones, all of whom owed their liberty to Howard's exertions.
His captivity in France first gave him an idea of the state of prisons and the sufferings of prisoners, but eighteen years were to pass before the improvement of their condition became the business of his life.
Mr. Howard was appointed high sheriff for the county of Bedford in 1773, and as such had the prisons under his charge. The high sheriffs who had gone before him were of course equally bound to see that everything inside the gaol was clean and well-ordered, but nobody really expected them to trouble their heads about the matter, and certainly they never did. However, Mr. Howard's notion of his duty was very different. He at once visited the county prison in Bedford, and the misery that he found there was repeated almost exactly in nearly every prison in the British Isles. The gaoler in Bedford – and in many other places – had no salary paid him, and therefore screwed all he could out of his prisoners; and no matter if a man were innocent or guilty, if a jury had condemned him or not, he must pay fifteen shillings and fourpence to the gaoler, and two shillings to the warder who brought him his food – when he had any – before he was set free. If, as often happened, the prisoners could not find the money, well, they were locked up till they died, or till the fees were paid.
When Howard informed the magistrates of what he had found, they were as much shocked as if it had not been their business to have known all about it.
'A dreadful state of things, indeed!' they said, 'and they were greatly obliged to Mr. Howard for having discovered it. Yes, certainly, the criminals and those who had been confined for debt alone ought to be placed in different parts of the prison, and the men and women should be separated, and an infirmary built for the sick. Oh! they were quite willing to do it, but the cost would be very heavy, and the people might decline to pay it, unless the high sheriff could point to any other county which supported its own gaol.'
At the moment, the high sheriff could not, but he had no doubt that such a county would be easily found, so he at once started on a visit to some of the prisons, but, to his surprise, he did not discover one in which the gaoler was paid a fixed salary. And the more he saw of the prisons, the more he was grieved at their condition. Almost all had dungeons for criminals built underground, dark, damp, and dirty, and sometimes as much as twenty feet below the surface; and often these dungeons were very small and very crowded. Mats or, in a few of the better-managed prisons, straw was given the prisoners to lie on, but no coverings, and those who were imprisoned for debt were expected to pay for their own food or go without it.
Sick at heart with all that he had seen, Howard went home for a short rest, and then set out again on one of those tours on which he spent the remaining years of his life, never thinking that the work was done when he had reported on the terrible evils of the prison system, but always returning to make sure that his advice had been carried out, which it often was not. Curious to say, there are few instances of difficulties being put in the way of his inspecting the prisons in any of the countries which he visited, while about six months after his labours began, he was called to the bar of the House of Commons, and publicly thanked for his services in behalf of those who could not help themselves.
Mr. Howard was pleased and touched at the honour done him, and at the proof that but he was much more gratified by two laws that were passed during that session, one for relieving innocent prisoners from paying fees, and the other for insisting on certain rules being carried out which were necessary to keep the prisoners in good health.
Evil is wrought by want of Thought,
As well as by want of Heart;
This last Act was greatly needed. The bad air, the dirt, and the closeness of the rooms constantly produced an illness called gaol fever, from which numbers of prisoners died yearly, one catching it from the other. Nominally, a doctor was attached to every prison, but instead of being ready, as doctors generally are, to risk their lives for their patients, these men usually showed great cowardice. In Exeter, the doctor when appointed had it set down in writing that he should not be obliged to attend anyone suffering from gaol fever; in the county gaol for Cornwall, every prisoner but one was ill of this disease when Howard paid his first visit there. And no wonder, for here the prison consisted of only one room with a small window, and three 'dungeons or cages,' the one for women being only five feet long. The food was let down to them through a hole in the floor of the room above.
In Derby, Howard was thankful to see that things were far more what they ought to be. The rooms were larger and lighter, there was an infirmary for the sick, 'a neat chapel,' and even a bath, 'which the prisoners were required occasionally to use.' Here the debtors, instead of being nearly starved, were given the same allowance of food as the criminals. They were also supplied with plenty of straw, and had fires in the winter. Newcastle was still better managed, and here the doctor gave his services free; but the Durham gaol was in a terrible state, and when Howard went down into the dungeon he found several criminals lying there half-starved and chained to the floor. The reason of these differences probably lies in the fact that before Howard's time nobody had ever taken the trouble to visit the prisons or to see if the rules were carried out. If, as sometimes happened, the doctor and gaoler were kind-hearted men, anxious to do their duty, then the prisoners were tolerably well cared for. If, on the other hand, they were careless or cruel, the captives had to suffer. This Howard saw, and was resolved, as far as possible, to put the prisoners out of the power of the gaolers, who should be made to undergo a severe punishment for any neglect of duty. For in Howard's mind, though it was, of course, needful that men should learn that if they chose to commit crimes they must pay for them, yet he considered that so much useless misery only made the criminals harder and more brutal, and that the real object of punishment was to help people to correct their faults, and once more to become honest men and women.
Having satisfied himself of the state of the English prisons, and done what he could to improve them, Howard determined to discover how those in foreign countries were managed. Paris was the first place he stopped at, and the famous Bastille the first prison he visited. Here, however, he was absolutely refused admittance, and seems, according to his friend Dr. Aikin, to have narrowly escaped being detained as a prisoner himself. But once outside the walls he remembered having heard that an Act had been passed in 1717, when Louis XV. was seven years old and the duke of Orleans was regent, desiring all gaolers to admit into their prisons any persons who wished to bestow money on the prisoners, only stipulating that whatever was given to those confined in the dungeons should be offered in the presence of the gaoler.
Armed with this knowledge and a quantity of small coins, Howard called on the head of the police, who received him politely and gave him a written pass to the chief prisons in Paris. These he found very bad, with dungeons in some of 'these seats of woe beyond imagination horrid and dreadful,' yet not apparently any worse than many on this side of the Channel.
After Howard's dismal experiences in England, Scotland, Ireland, and France, it must have given him heartfelt pleasure to visit the prisons in Belgium, which, with scarcely an exception, were 'all fresh and clean, no gaol distemper, no prisoners in irons.' The bread allowance 'far exceeds that of any of our gaols. Two pounds of bread a day, soup once, with a pound of meat on Sunday.' This was in Brussels, but when he went on to Ghent, things were better still.
Like most of the large towns of Flanders, Ghent had a stirring history, and its townspeople were rich and prosperous. At the time of Howard's visit, it was part of the dominions of the emperor Joseph II., brother of Marie Antoinette, and by his orders a large prison was in course of building. Though not yet finished, it already contained more
