After three months Mr. Howard returned home and inspected the prison at Dover, to find to his dismay everything exactly as before; and when, after a little rest, he set out on a second English tour, scarcely anywhere did he perceive an improvement. One small prison in the Forest of Dean was inhabited by two sick and half-starved men, who had been kept in one room for more than a year almost without water or fire or any allowance for food. In another, at Penzance, which consisted of two tiny rooms in a stable-yard, was one prisoner only, who would have died of hunger had it not been for a brother, even poorer than himself, who brought him just enough to keep him alive. Again and again Howard paid out of his own pocket the debts of many of those miserable people, which sometimes began by being no more than a shilling, but soon mounted up, with all the fees, to several pounds. * * * * * With only short intervals for rest, Howard went on travelling and inspecting, now in the British Isles and now abroad, and by slow degrees he began to see an improvement in the condition of the prisoners in his own country, whether criminals or debtors in gaols or convicts in the 'hulks,' as the rotten old ships used as prisons were called. He was careful never to leave a single cell unvisited, and spoke his mind freely both to the keepers and to the magistrates. The House of Commons always listened with eagerness to all he had to tell, and passed several Bills which should have changed things much for the better. But the difficulty lay, not in making the law, but in getting it carried out. It is wonderful how, during all these travels and the hours spent in the horrible atmosphere of the prisons, a delicate man like Howard so seldom was ill. Luckily he knew enough of medicine to teach him to take some simple precautions, and he never entered a hospital or prison before breakfast. Dresden and Venice appear to have been the two cities on the Continent where the prisoners were the worst treated, many of them wearing irons, and few of them having enough food. * * * * *