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FILE - In this March 16, 2011 file photo, inmates file out of the prison bakery at the Rikers Island jail after working the morning shift, in New York. A recent report issued by the Independent Budget Office found it cost $167,731 in 2012 to house 12,287 daily New York City inmates. New York City pays almost as much to jail an inmate in a year as it would to pay a student’s four years of tuition at a private college. (AP Photo/Bebeto Matthews, File)