In New York, the number of nonviolent inmates is decreasing so the state is actually cutting jobs in some medium-security prisons upstate.

This approach was criticized after the 2007 Cheshire home invasion murders committed by two "nonviolent" inmates paroled from Connecticut prison.

There were illegal strip-searches of nonviolent inmates, beatings, indifference or encouragement of violence among inmates have all been reported over the years.

But in the Democratic-controlled Assembly, which tends to advocate shorter prison terms and more alternatives to prison for nonviolent inmates, the bill went nowhere.

Mr. Hyde said it was "only fair" to treat such nonviolent inmates equally, regardless of when they were jailed.

As a result, courts in many areas are clogged, county jails are overcrowded and nonviolent inmates are being released early.

The administration has also proposed the use of halfway houses for nonviolent inmates sentenced to county jails, such as those convicted of drunken driving.

His alternatives, including electronic monitoring of nonviolent inmates at home, face legislative review before the building program can end, he said.

William J. Fraser, the city's commissioner of correction, said he was re-examining the policy, which sometimes places violent and nonviolent inmates in the same cells.

He taught floor installation to nonviolent inmates at Rikers and persuaded other tradespeople to do so.