"Here, too, the commissioners charged the contractor sixteen dollars a month for the hands."
Quote from Slave Labor in the Capital, page 148
I was unable to find any explanations for the labor policies of the commissioners. They did not write about it nor did anyone else. The records do show that in 1795 they let contractors use their laborers to tend mason for $60 a year, exactly what it cost the commissioners to hire a labor for a year from his master. In 1799 they upped what they charged contractors to $16 a month, about $10 more than they paid a slave's master.
The scan below is an example of that. We can't be certain the laborer that Emory got was a slave, but it is hard to imagine a free worker allowing the commissioners to profit on his labor to such an extent.
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