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U. S. DEPARTMENT OF LABOR JAMES J. DAVIS, Secretary CHILDRENS BUREAU GRACE ABBOTT, Chief FOSTER-HOME CARE FOR DEPENDENT CHILDREN <5à Bureau Publication N o. 136 (Revised) WASHINGTON GOVERNMENT PRINTING OFFICE 1926 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A D D ITIO N A L COPIES O f THIS PUBLICATION M A T . BE PROCURED FROM THB SUPERINTENDENT OF DOCUMENTS GOVERNMENT PRINTING OFFICE , WASHINGTON D. C. AT 35 CENTS P E R COPY https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis CONTENTS. L e t t e r o f transmittal. ThS tite IeI° Pment ° f GhlId PlacinS~in theU nited.................................................. Page. v 1 I ^ £Pren^;ic^l^u'n:hv^J D" 17 The Child in the Boarding Home________________ M a r y ^ . BoNrtz^ mf!eCw* P1r0bi ems ^nvo^ved in Foster-Home Care_Leon W Frost The Work of a State-Wide Child-Placing Organ------------------ 33 51 65 The Development o i P r a d n g -b V t'w o if i F i ^ T l 79 ^ o “ 1S 0 f P la c e m e n t in F r e e F a m ily M u r p h y --------- Stoneman--------- Safeguarding the Dependent Chi'ldTs M ^ t e F ^ d K arme Physical H ealth________________ TTn„ QnD tt The Relation between Social Work” with FamF ‘ GWinS------- 97 enks’ M' D __ 113 ' t lie s a n d C h ild -C a r in g W o r k , _________________ _._R e v Tohn p >, Cooperation between the Children’s Agency and y. . Other Community Resources,_________________ c . V. W illia m s State Supervision of Placing-Out Agencies_____ Ellen C . Potter M D Psychoclimcal Guidance in Child Adoption____ Arnold Gesell, M . b . I I I I 135 149 165 193 Appendixes: Conclusions of the “ White House Conference,” from the Proceedings of the Conference on the Care of Dependent C h ild r e n held at Washington, D. C., January 25, 28, 1909_P_____ ld e ’ Appendix B Resolutions on Standards Relating to"“ CMldren in Need of Special Care, from the Minimum Standards for Child W elfare 207 Welfare, 1919 6 Washington and Regional Conferences on Child Appendix C. Selections from I Appf adlx P* List o f references on foster-home care for dependent children m the United States and foreign countries__ *™ nd*X- 5 SeJeeted books and pamphlets on child care and train ing of interest to child-placing agencies and foster mothers____ m 'C cM G O O https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A 213 217 242 289 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis LETTER OF TRANSMITTAL. U. S. D e p a r t m e n t of L abor, C h i l d r e n ’s B , ureau, Washington November 1925. S ir : There is transmitted herewith a revised edition o f the Chil dren’s Bureau report on Foster-Home Care for Dependent Children, which now consists o f 12 articles by representative people who are at work on the particular aspects o f the problem which they discuss. The plan for the report was worked out by Emma O. Lundberg, director o f the social-service division, and the list of references and the selections from reports for the appendix were prepared by Laura Hood, o f the division staff. The revised edition includes a new section on Psychoclinical Guidance in Child Adoption, and a number o f new references, including several on adoption, which are printed as addenda to the bibliography. Respectfully submitted. G race A Hon. J ames J. D bbott, Chief. a v is , Secretary of Labor. V https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME CARE FOR DEPENDENT CHILDREN. THE DEVELOPMENT OF CHILD PLACING IN THE UNITED STATES. H a s t in g s H. H art, LL. D.t Director of the Department of Child Helping, Russell Sage Foundation. DEFINITION OF CHILD PLACING. The only legal definition known to the writer o f child placing in families is to be found in Article 16, section 300, of the State chari ties law o f the State of New Y ork : “ The term 1place ou t’ * * * means the placing o f a destitute child in a family, other than that o f a relative within the second degree, for the purpose o f providing a home for such child.” 1 Dr. William H. Slingerland offers a working definition, as fol lows : “ Child placing in families is placing destitute and neglected children, temporarily or permanently, in families other than their own, for the purpose o f providing care and homes for them.” 2 He thinks that children placed with relatives o f the second degree__ grandparents, brothers, or sisters—should not be reported as u placed out,” but as “ placed with kin.” Doctor Slingerland’s definition of child placing applies to children placed in free family homes with out payment o f board; children placed in boarding homes, the board being paid either by relatives or by some association; and#lso chil dren placed in homes at wages. A child may be placed in a home either (1) directly by the action o f one or both parents, or (2) by a physician, a baby-farm matron or some other individual, or (3) by a placing-out society, or (4) by the officers o f an institution to which he has been legally com mitted, or (5) by duly authorized public officials. EARLY CHILD PLACING. The use o f the family home as a refuge for the dependent and neglected child is not a new plan. From time immemorial generoushearted people have opened their homes to children who were or phaned or abandoned by their natural protectors. 1 F iftieth Annual R eport o f the State Board o f Charities o f the State o f New York 1916, Vol. I l l , p. 216. K’ •Slingerland, W illiam H.„- C hild-Placing in Families, pp. 40 and 41. Foundation, New York, 1919. Russell Saae 1 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME CARE FOR DEPENDENT CHILDREN. 2 The first case mentioned in the Bible is that of Abraham, who adopted his nephew, Dot. The second case is that of Moses, who was adopted by Pharaoh’s daughter. Dr. W. H. Slingerland, in his book, Child-Placing in Families, says: The earliest chronicles of legal child placing are found in the Old Testament scriptures, and in the Talmud * * * From the time the national life began with the giving of the law, immediately after the exodus from Egypt, about 1500 B. C., they placed orphan and fatherless children in selected family homes * * * Psalm L X V I I I , 5, 6, declares that God is “A Father of the fatherless,” and that He “ setteth the solitary in families.” * * * In the Talmud is this suggestive statem ent: “ The blessed man, * that doeth righteous ness at all times,’ is the man that brings up an orphan boy or girl until mar riage has given him or her another home.” * Doctor Slingerland says further: In the early Christian church the same type of service (the method of pro viding for dependent children by placing them in foster homes) prevailed for nearly or quite 200 years and never has been wholly displaced * * * After all possible free homes had been utilized, the church began boarding children with worthy widows, paying for the service by collections taken in the various congregations. This was the real genesis of the boarding-out system, not orig inated in the nineteenth century.* THE APPRENTICE SYSTEM. In 1562 the English Government legalized an apprentice system, which amounted to child slavery. The indenture system was im ported from England to the United States and prevailed extensively in the early days of this country. In 1660 the Massachusetts Colony passed an act authorizing select men who “ shall find masters o f families negligent o f their duty, whereby* children and servants become rude, stubborn, and unruly * * * take such children or apprentices from them and place them with some master who will more strictly look into and force them to submit unto government.” The idea o f master and servant was prominent for many years. Children were placed with farmers, mechanics, or housewives, who utilized them for domestic service and other profitable labor. This apprentice or indenture system was open to abuses which are apt to arise whenever the profit to be had from the labor of the child is uppermost in the mind o f the foster parent. The bound boy or girl was often deprived o f education and overworked, and in many cases was cruelly treated. The indenture system in its original form has almost entirely dis appeared in the United States. Under the old system, the child was placed under a contract which provided that he should remain https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OF CHILD PLACING IN TH E UNITED STATES. 3 in the family so long as the conditions o f the contract were observed. Under the modern apprentice system, the right is usually reserved to remove the child at the discretion o f the placing agency, for the reason that it may often be manifest that the home is a misfit or that the child is unhappy or retarded in his development, even when no violation o f the agreement can be shown. THE FIRST ORGANIZED CHILD PLACING. The New York Children’s Aid Society. The pioneer o f the organized child-placing movement was Charles Loring Brace, who in 1853 organized the New York Children’s Aid Society and began sending dependent children to country homes in different States. Mr. Brace took issue with those who advocated a long course o f training in institutions for dependent children, lie maintained that institutional care was unnecessary for healthy, normal children, except for very brief periods. He took children from the streets of New York and sent thousands o f them to farm and village homes. A t first the children were distributed without much formality and without much supervision. The writer was a personal witness to the distribution o f a group o f these children in an Ohio farming village about 1862 and a similar distribution in a farming village o f Minnesota about 1882. In each case the dis tribution was made by an agent o f the society, assisted by a local committee, and in both cases the distribution was made without ade quate investigation and without sufficient subsequent supervision.4 In later years the society learned to select homes with greater care and to establish closer supervision. In the earlier years of the society children were placed in the States o f New York, New Jersey? Pennsylvania, and Ohio; then in Illinois, Iowa, Wisconsin, and Minnesota. In recent years the wards of the society have gone largely to Oklahoma and Texas. An interesting sidelight on this stage o f the work is the fact that it was easier to find homes for de pendent and neglected children in a new and primitive community than in a more advanced and wealthy community. This is partly because people o f moderate means are more ready to make sacrifices and take trouble than are the wealthy and also because the pioneer community recognized that these children as they grew older would become an asset in the development o f the new country. Other early child-placing societies. The organization of the New York Children’s A id Society in 1853 was followed by that o f the Henry Watson Children’s Aid Society in Baltimore in 1860; the Boston Children’s A id Society, 4 See article by H. H. H art on “ Placing out children in the W est,” in Proceedings o f the National Conference o f Charities and C orrection, 1884, pp. 143-150. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 4 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. 1864; the Brooklyn Children’s A id Society, 1866; the New York State Charities A id Association, 1872; the Children’s A id Society of Pennsylvania, 1882; and the Connecticut Children’s A id Society, 1892. All these societies in their early days received children with in sufficient investigation. Children o f unmarried mothers were re ceived with little hesitation. Societies placed children in homes o f which they had very limited knowledge. The supervision after the children were placed was inadequate. A t first considerable reli ance was placed upon volunteer visitors whose work was irrespon sible. The paid employees had little or no previous experience and no technical training except such as might be given by the secre tary o f the society. Records were meager and inadequate. W ith experience, standards for the work became established. E x perience and training came to be considered essential qualifications o f secretaries and field workers. The importance o f thorough case work and complete records was recognized. Budgets were increased as the public came to understand and appreciate the work. Schools for social workers grew up in New York, Boston, Philadelphia, and other cities. The importance o f family ties and the sacredness o f family relations were more clearly perceived and more faithfully respected. A wholesome dissatisfaction developed toward careless and imperfect work, with aspiration toward higher and higher standards. In Massachusetts a remarkable group o f child-placing societies came into existence: The Children’s Friend Society, the Children’s Mission to the Children o f the Destitute (now known as the Chil dren’s Mission), the New England Home for Little Wanderers (which became a placing-out society), the Boston Society for the Care o f Girls, the Church Home Society, and the Child-Placing De partment o f the St. Vincent de Paul Society. Under the leadership o f Secretary Charles W . Birtwell, o f the Boston Children’s A id So ciety, these independent societies gradually came into closer affiliation until they have now established efficient cooperation. In 1867 the Commonwealth o f Massachusetts, under the inspiration o f Dr. Samuel J. Howe and Frank W. Sanborn, began systematic placement o f State minor wards. Subsequently the city o f Boston and other municipalities in Massachusetts organized placing-out departments. Here the Boston Children’s A id Society exercised a potent influence. The placing-out work o f the New York Children’s A id Society was limited mainly to older children, but the society developed large activities in schools for neglected children and homes and sanatoria for handicapped children, confining its activities mainly to children o f the borough o f Manhattan in the city o f New York. The Brook https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OF CHILD PLACING IN TH E UNITED STATES. 5 lyn Children’s A id Society undertook similar work for the borough o f Brooklyn. THE CHILDREN’S HOME SOCIETY. In 1883 there was organized by Rev. M. V. B. Van Arsdale, in the city o f Chicago, the American Educational A id Association, to assist deserving children in obtaining an education. In the following year the name was changed to the (National) Children’s Home Society and the organization became a child-placing agency. The society began operations in the State o f Illinois, but soon spread into other States, increasing rapidly until there are now 36 accredited State children’s home societies—one for each State of the Union ex cept Alabama, Arkansas, Connecticut, Indiana, Louisiana, Maryland, Massachusetts, Nevada, New Hampshire, New York, Rhode Island, and Vermont. (A ll these States except Arkansas, Louisiana, Rhode Island, Indiana, and Nevada have children’s aid societies in their principal cities which do a general child-placing work.) The children’s home society movement began in the Middle West. It differed essentially from the children’s aid society movement be cause it extended its work into rural communities from the start, whereas the children’s aid societies were urban societies at the begin n in g and several o f them still continue to be exclusively city organi zations. The founder o f the children’s home society, Rev. M. V. B. Van Arsdale, began without any financial support. Sometimes he did not collect enough money to pay his expenses; he used to carry small articles for sale in order to meet such emergencies. The early State superintendents and their field workers had to collect money for the support o f the work as they went about looking after neglected children. Their salaries were contingent, uncertain, and pitifully small. Many o f them were clergymen who were accustomed to such uncertain incomes. As the movement extended, some strong organizations grew up, while others grew very slowly and failed to develop strength or to accept modern, progressive methods. They have suffered from the fact that no one o f them has any pension system and they have been reluctant to discard workers who have become worn out in the service. For many years, the prosperity and success o f a State children’s home society was apt to be measured by the number o f children re ceived and placed in homes; but in recent years less stress has been put upon numbers and more upon the quality o f the work done and upon constructive work to preserve the child’s own home. Most of the societies are receiving a much smaller number o f children than they were a few years ago. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 6 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. Thus far the children’s home societies have made very little use o f the boarding-out system. Their children have been placed almost entirely in free homes, usually with the expectation that the child will remain as a member of the home. A large proportion of their children (in some States as many as one-half) are legally adopted by the foster parents. Another large proportion become permanent members of the foster home but without legal adoption. In the early days o f the children’s home society there was very little case study with reference to the acceptance o f children, es pecially with reference to the children o f unmarried mothers. It was usually taken as a matter of course that the unmarried mother must, give up her child and that it was proper for the society to accept it. A superintendent of one o f the most active children’s home societies once said to the writer: “ I believe that the fact that parents are willing to give up a child establishes a prima facie case that the child should be accepted by the society.” All of these societies in their early beginnings were in straits for financial support and were under temptation to accept childien if some financial aid was available. Most o f them were accustomed to receive children from public authorities. In some cases a State appropriation was made for the support of the society. In Ken-> tucky an annual appropriation of $40,000 was made. In Kansas a small State appropriation was allowed. In Pennsylvania an annual State appropriation is made to the Pennsylvania Children’s A id Society and the Western Pennsylvania Children’s A id Society to cover the expense o f supervising children placed in family homes. In some States appropriations are made from county treasuries to child-placing societies, sometimes as lump-sum allowance for each child received and sometimes as periodical appropriations to cover the actual expense o f caring for the child. On the whole, there is a steady improvement in the standards and methods of the State children’s home societies, though even to this day there is a great diversity in their efficiency. Their national or ganization, now known as the Children’s Home and Welfare Associa tion, meets annually in connection with the National Conference of Social Work. CATHOLIC CHILD-PLACING AGENCIES. In 1898, the St. Vincent de Paul Society of New York established a placing-out agency known as the Catholic Home Bureau for De pendent Children, which was organized and developed by William J . Doherty, its executive secretary. This organization became a stand ard child-placing agency for 18 Catholic institutions for children in the State o f New York. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OF CHILD PLACING IN TH E UNITED STATES. 7 The Catholic Children’s A id Society was organized in New Jersey in 1903, by the late Rev. Father Francis Foy, and has become an ac tive and efficient child-placing agency. The Catholic Humane Bureau o f San Francisco was founded in 1907 by the union of the Humane Bureau o f St. Vincent de Paul and the Catholic Settlement Society. Well-organized Catholic child-placing organizations now exist in a number o f the larger cities, many o f them under the auspices o f the St. Vincent de Paul Society and others as departments o f diocesan Catholic charities bureaus. In the city o f Cleveland the diocesan bureau has united with the Protestant and other child-welfare organizations in establishing a central bureau for the investigation o f applications in behalf of neglected children and for the assignment o f children to agencies which are o f their own religious faith. The different religious bodies have thus far cooperated with this agency to a very remarkable degree. ; THE LUTHERAN KINDERFREUND. In 1902 the German Lutheran Church organized the Lutheran Kinderfreund in Wisconsin and began placing children in family homes. The work proved popular and speedily developed 14 different societies in as many States. A similar undertaking was started by some o f the Scandinavian Lutheran organizations, but has not, ap parently, justified the hopes of its founders. It does not appear to have shared in the progressive improvement o f the older placing-out societies. It is to be hoped that it will be revised and expanded. DISCUSSIONS OF PLACING OUT IN THE NATIONAL CONFERENCE OF CHARITIES AND CORRECTION. For 25 years an earnest discussion was waged in the National Conference of Charities and Correction between the advocates of in stitutional care for dependent children and the advocates of the plac ing-out system. Gradually the tide turned in favor of the placing-out plan. In the conference o f 1898 indications of agreement appealed. At the conference of 1899 Hon. Thomas M. Mulry, president of the St. Vincent de Paul Society o f New York, presented a remarkable report from the committee on the care o f neglected and destitute children, which proved to be the final word of this long-continued discussion and which laid down a platform that has been accepted with practical unanimity by Protestants, Jews, and Roman Catholics, trustees of children’s institutions, and managers of children’s socie ties. This great report became one of the classics o f the National Conference o f Charities and Correction. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 8 FOSTER-HOME OARE FOR DEPENDENT CHILDREN. STATE, COUNTY, AND MUNICIPAL PLACING OUT. About 25 State agencies with authority to place children in family homes exist in the United States, but no one of them does a placingout work comparable in numbers or organization with that of Massa chusetts. On November 30, 1921, the division o f child guardianship o f the Massachusetts State Department o f Public Welfare had under its care and supervision 12,039 children. O f these children 3,9185 were in boarding homes and 1,362 were in free homes, without pay ment o f board, making a total o f 5,280 children placed in family homes. The city o f Boston has for many years maintained a childwelfare department. On January 31, 1921, this department had under its care 1,387 children, o f whom 680 were in boarding homes and 281 were in free homes; thus it has placed in homes a total of 961 children. In many o f the States there are county agencies which have au thority to place children in family homes; among them are the States of Connecticut, New York, Pennsylvania, North Carolina, Ohio, and Indiana. Ohio, Indiana, and Connecticut have county children’s homes established with a view to making them temporary homes from which children could be placed in family homes. The tendency has always been to accumulate children in county homes and to minimize the placing-out work. In Indiana there has been a very great diminu tion o f the population o f the county children’s homes owing to the activity and efficiency o f the child-welfare department o f the board o f State charities. Indiana for many years has had county boards o f children’s guardians which had a certain degree o f responsibility for the care o f the dependent and neglected children o f the county. In the State o f North Carolina there have been established, by recent legislation, county boards o f public welfare whose duty it is £b care for all children in the county who are public wards. Experience has generally proved the work o f county officials in placing and supervising children in family homes inefficient and un reliable, but efforts during a number o f years to improve their work through State supervision have met with encouraging results. In the State o f New York, the State Charities A id Association was organized in 1872 to work for improvement in the care o f the de pendent and defective. The New York State Charities A id Associa tion has developed a very remarkable cooperative work with the county superintendents o f the poor and the county supervisors re sponsible for children who are public wards. One by one the counties have been induced to establish a department o f child welfare * Including 181 children in homes partly supported by the State. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis development of child placing in th e united STATES. 9 with a trained worker in charge. This trained worker has been nominated in most cases by the New York State Charities A id As sociation and the association has established close cooperation with these county agencies, organizing plans for training o f the local workers and assisting the counties in placing children who need to be removed from their original environment. The county agencies make careful case studies o f applicants and provide for their immediate needs—family rehabilitation, medical or surgical treatment, temporary boarding out, and so forth—but when a homeless child is to be provided with a permanent homp. this is usually done through the central office o f the State charities aid association, whieh maintains a trained staff. In this way a vast im provement has been made in county care o f children. The Pennsylvania Children’s A id Society has established similar cooperative relations with county children’s aid societies and county poor directors on behalf o f children who are public wards. The result has been a gradual improvement o f the public care o f de pendent children in eastern Pennsylvania. The bureau o f children o f the Pennsylvania Department of Welfare, established in 1921, is working actively and efficiently for the improvement o f the child-placing work o f the State by the organization o f district conferences for the study o f improved meth ods and by efficient and sympathetic supervision o f the work. In Maryland the Henry Watson Children’s A id Society, which formerly restricted its work to the city o f Baltimore, has ex tended its range to cover the entire State by the organization o f county groups, with a great improvement in the care o f neglected children in the outlying counties. PLACING OUT FROM INSTITUTIONS. Orphan asylums and children’s homes. Nearly all institutions for dependent children eventually place out a large proportion o f their children in family homes. Some institu tions o f this class are simply boarding places, where parents or public officials send children for temporary care. The institution does not assume their legal guardianship and they are ultimately returned to the parents, to the court, or to the public agency from which they were received. There are still a few institutions, like the large home at Mooseheart, 111., which undertake to bring up children to young manhood and womanhood, until they are able to care for themselves. But nearly all o f the orphan asylums and children’s homes o f the United Btates place children in family homes; in other words, while the child is still under their care, by virtue o f their guardianship, they place the child in a home o f their own choosing. Usually their https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 10 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. guardianship continues for the time being, and they are supposed to exercise some degree o f supervision. Under these conditions they become distinctly placing-out agencies. Public institutions. There are a considerable number o f public institutions for depend ent children which have authority and are expected to place children in family homes. Such are the “ State public schools ” for dependent children o f Michigan, Minnesota, Nebraska, and Wisconsin; the State home o f Colorado ; the State home and school o f Rhode Island ; the Montana State orphanage; the “ soldiers’ orphans’ homes” of Maine, Pennsylvania, Ohio, Indiana, Michigan, Illinois, Iowa, and Kansas ; and the county children’s homes, o f Ohio, Indiana, and Connecticut. The State public schools o f Michigan and Minnesota have adhered steadfastly to the placing-out method, have developed fairly adequate staffs o f placing-out agents, and have refused to grow. The soldiers’ orphans’ homes, so called, have magnified the institutional idea of bringing up children and fitting them for self-support before dis missal. In recent years most of these institutions have endeavored to develop the placing-out method, but usually they have been ham pered by their old traditions and it has been difficult for them to de velop efficient placing-out work. The county children’s home system, which prevails in Ohio, Indiana, and Connecticut, has never been satisfactory in any of these three States, where it has been extensively developed. In each o f these States the original law contemplated the early placing of children in family homes; but the number o f children in each institu tion was so small that the temptation to accumulate children, es pecially in those homes which were fairly efficient, was almost irre sistible. The number o f wards of each home was so small that the directors did not deem it necessary to employ trained placing agents, and supervision over the foster homes was universally inadequate. In recent years, children’s bureaus have been established in each of these three States, and these bureaus have made strenuous efforts to develop the child-placing method in the county homes and to secure adequate supervision. Much improvement has been made, but to this day the county children’s home system is unsatisfactory. THE CHILD WELFARE LEAGUE OF AMERICA. For about 10 years an annual midwinter conference of child placing agencies has been held, usually in the city of New York. Out o f this meeting grew the “ Bureau for the Exchange o f Infor mation,” consisting of child-placing societies which exchanged litera ture through a central office and finally established cooperative rela tions to facilitate the care and supervision o f placed-out children https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis d e v e l o p m e n t of c h il d p l a c in g i n the UNITED STATES. 11 whose foster parents might move from one State to another. The Bureau for Exchange o f Information grew in interest and usefulness until it included 68 child-placing agencies. The bureau had, how ever, only a very meager budget. These agencies gradually came to feel that the bureau should be expanded into a cooperative agency for the improvement o f the standards o f child-placing work. A committee was appointed to take this matter in hand, and as a result the Bureau for Exchange o f Information was reorganized as the Child Welfare League o f America. The Commonwealth Fund was induced to make an appro priation of $25,000 per year for five years to test the usefulness and efficiency of the organization. The league secured the services of Dr. C. C. Carstens, o f Boston, as director. His active work began January 1, 1921, and under his leadership the Child Welfare League o f America has become a recognized and efficient agency for the improvement o f placing-out work throughout the United States. The membership o f the league consists mainly o f child-placing organizations. -Minimum standards for membership are prescribed, referring to staff, budget, equipment, and methods. The member ship has increased in a little over two years from 68 to 98. The admission of a number o f applicants has been delayed because they have not yet met the standards. The membership o f the league includes children’s aid societies, children’s home societies, societies for the prevention o f cruelty to children, State and county public agencies for the care of children, and a limited, but increasing, number of institutions which place children in family homes. In addition to the annual midwinter conference at New York regional conferences have been held in Chicago and Atlanta, and a regional conference is proposed to be held in Texas for the South west. A regional conference was also held for western Canada in Alberta. The league has recently organized a committee on “ group move ments in child care ” to help “ religious, fraternal, civic, and mili tary-veteran organizations to develop their interest in child welfare along fines that will prove valuable to all concerned.” TENDENCIES IN CHILD-PLACING WORK. The following extracts are quoted from the 1922-23 annual re port of Dr. C. C. Carstens, director o f the Child Welfare League o f America: 1. There is a strong tendency, and one to be wholly welcomed, for both child-placing agencies and children’s institutions to come, into helpful rela tions with each other. 72693°'— 26----- 2 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 12 F O S T E R -H O M E C A R E -FOR D E P E N D E N T C H I L D R E N . Many causes have contributed to this result. The spirit of competition in social work is discredited among honest and intelligent workers. The needs of the child are given more consideration. Cooperation is no longer practiced merely as lip service but is aeted upon. To this the development of councils o f social agencies and chests has contributed. In certain States, institutions are adding field-work service for intake and follow-up work. Where formerly the superintendent or an underling took a little time off for the investigation, which was generally not much more than “ a lick and a promise,” now it is considered an important part of the work of the institution. This is particularly found in some progressive southern States. In other places, the child-placing ageney is being coordinated with the insti tution so as to have the case carefully looked into. I f a home adjustment can be made it is done without the child coming into the institution at all except perhaps for certain professional services. I f the child comes in it is given shelter, examination, study, medical and psychological care, and then is later placed where it will have the most advantageous development. In this way the institutions become receiving homes also and serve many more children. A considerable number o f institutions are developing such diag nostic receiving homes. 2. The various States are learning the use and value o f the boarding home. A s one comes to recognize the importance of keeping parents' and children together whenever possible, or reuniting them whenever advisable, the adop tion and free home fails to meet all the needs. The boarding fam ily home comes into successful use where the free home does not serve. In some places boarding work is done in institutions or by groups in families. But neither provides the fu ll advantages of real fam ily life. There should rarely be more than four children at board in a family, and usually fewer, so that the children may get family home upbringing. N o home should be used that does not give the boarded child much more than is paid for by the board money. This provides against commercialization of the work. Such homes can be found but require persistent and careful home finding. * * * 5. There is a noticeable tendency for family-welfare societies to develop child-placing departments and in a few instances to combine children’s agencies with their work. This development can generally be traced to the failure of existing children’s agencies to meet new situations and new needs that have arisen. The American Association for Organizing Family Social W ork has appointed a committee to study the situation, and the appointment of a committee of the league has been authorized by our executive committee. It is proposed that there should be five persons from each agency; that these separate com mittees have joint meetings and consider questions relating to the interrela tions of the agencies either as they arise theoretically or in the fields of each national agency. The members of the league are requested to send to its oflice any matters that would have interest for this committtee. THE W HITE HOUSE CONFERENCE. On January 25, 1909, only six weeks before bis retirement from the presidency, President Theodore Roosevelt convened the White House Conference,6 which proved one o f the notable events o f his • See Proceedings o f the Conference on the Care o f Dependent Children. Sixtieth Con gress, second session, Sedate Docum ent No. 721, pp. 8-14. Government Printing Office, W ashington, 1909, V https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OP CHILD PLACING IN TH E UNITED STATES. 13 administration. He invited about 200 people, representing every phase o f child-welfare work, to spend two days in discussing the needs o f dependent children. They came from nearly every State o f the Union and they represented State boards o f charities, State agencies for the care o f children, children’s aid societies, children s home societies, societies for the prevention o f cruelty to c lldren, orphan asylums, children’s homes, and juvenile reforma tories ; they included Catholics, Protestants, Jews, and people of no religious affiliation. When the conference met there was considerable doubt as to whether so large and diverse a body would be able to agree upon the fundamental questions o f child welfare—especially those with refer ence to the relative merits o f institutional care and placing out in amily homes. But after two days o f full discussion the conference adopted by unanimous vote a platform of 3,000 words which repre sented the consensus o f opinion of the representatives o f every form o f child-helping work. Among the conclusions thus unanimously adopted were the fo l lowing with reference to the place o f the family home in relation to dependent and neglected children: 7 Hom e life is the highest and finest product o f civilization. It is the great motive force o f mind and character. Children should not be deprived o f it except for urgent and compelling reasons. Children o f parents o f worthv character suffering from temporary misfortune, and children o f reasonably efficient and deserving mothers who are without the support o f the normal breadwinner, should, as a rule, be kept with their parents, such aid being given as may be necessary to maintain suitable homes for the rearing of the children. * * * Ekcept in unusual circumstances the home should not be ro en up for reasons o f poverty, but only for considerations of inefficiency or immorality. * * * * A s to children who for sufficient reasons must be removed from their own homes, or who have no homes, it is desirable that, if normal in mind and body and not requiring special training, they should be cared for in families when ever practicable. The carefully selected foster home is for the normal child the best substitute for the natural home. Such homes should be selected by a most careful process of investigation, carried on by skilled agents through personal investigation and with due regard to the religious faith of the child. After children are placed in homes, adequate visitation, with careful consid eration of the physical, mental, moral, and spiritual training and development of each child on the part of the responsible home-finding agency is essential It is recognized that for many children foster homes without payment of board are not practicable immediately after the children become dependent and that for many children requiring temporary care only the free home is not available. For the temporary, or more or less permanent, care of such children different methods are in use, notably the plan of placing them in families, pay ing for their board, and the plan of institutional care. * * * Unless and until such homes are found, the use o f institutions is necessary * * * pp. 195 200 fo r complete text o f conclusions o f the conference. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME CARE FOR DEPENDENT CHILDREN. 14 The proper training of destitute children being essential to the well-being of the State, it is a sound public policy that the State through its duly authorized representative should inspect the work of all agencies which care for dependen children, whether by institutional or home-finding methods. * * * The infor mation so secured should be confidential, not to be disclosed unless by compe tent authority. REAFFIRMATION OF THE CONCLUSIONS OF THE WHITE HOUSE CONFERENCE. In the conclusions quoted above, the White House Conference committed itself unanimously and unequivocally in favor o f fam ily-. home care as the ideal plan of dealing with homeless and neglected children. In 1919, nearly 10 years later, the Federal Children’s Bureau called a conference of representatives of child-welfare work through out the United States.8 This conference appointed committees to formulate minimum standards o f child welfare. The committee on minimum standards for the protection of children in need o f special care adopted the following resolutions on the principles o f child placing : The conclusions of the W hite House Conference of 1909 on the Care of Dependent Children are reaffirmed in all essentials. They have been guides for communities and States in reshaping their plans for children in need of special care. They are recommended for consideration to all communities whose standards do not as yet conform to them, so that they may be trans lated into practice in the various States. * * * * * * * Before a child is placed in other than a temporary foster home, adequate consideration should be given to his health, mentality, character, and family history and circumstances. Arrangements should be made for correcting remediable physical defects and disease. Complete records of the child are necessary to a- proper understanding of his heredity and- personality, and of his development and progress while under the care of the agency. * * * * * * * Careful and wise investigation of foster homes is prerequisite to the plac ing of children. Adequate standards should be required of the foster families as to character, intelligence, experience, training, ability, income, environment, sympathetic attitude, and their ability to give the child proper moral and spiritual training. When practicable children should be placed in families of the same religious faith as the parents or the last surviving parent. A complete record should be kept of each foster home, giving the information on which approval was based. The records should show the agency’s contracts with the fam ily from time to time, indicating the care given the child intrusted » Minimum Standards fo r Child W elfare. U. S. Children’s Bureau P ublication No. 62, W ashington. 1920. See pp. 20 1-204 fo r complete text o f resolutions relating to “ children In need o f special care.” https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis D E V E L O P M E N T OP C H I L D P L A C IN G I N T H E U N I T E D S T A T E S . 15 to it. In this way special abilities in the families will be developed and con served for children. Supervision o f children placed in foster homes should include adequate visits by properly qualified and well-trained visitors, who should exercise watchfulness over the child’s health, education, and moral and spiritual de velopment. Periodic physical examinations should be made. Supervision of children In boarding homes should also involve the careful training of the foster parents in their task. Supervision should not be made a substitute for the responsibilities which properly rest with the foster fam ily. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis CONSERVING THE CHILD’S PARENTAL HOME. J. P ren tice M tjephy , E xecutive Secretary, the Children’s Bureau of Philadelphia. THEORY VERSUS PRACTICE. The conservation o f home relationships for socially handicapped children has been, on the whole, a rather academic matter for most o f us. Partly by reason o f the amount o f work to be done by any given agency ; partly by reason of the lack o f coordination between children s welfare agencies and other social agencies in given com munities; partly by reason o f lack o f trained and adequate staffs and o f even minimum standards o f method and technique, the real significance o f child-caring work has not been grasped by specific children’s societies and institutions, by some organizations doing family and other specialized work, nor by the general public. There has been a general theoretical agreement that children should pref erably grow up with their own parents and in their own homes; that social values o f the greatest importance are guarded and en hanced if this relationship between parents and children can be protected and developed. This was very admirably expressed in the conclusions o f the 1909 White House Conference on the Care of Dependent Children— “Home life is the highest and finest product o f civilization. Children should not be deprived of it except for urgent and compelling reasons.” Through many National and State conferences called for the con sideration o f general and special problems affecting family life and child life, there has appeared a constant approval o f all methods of work that tend to protect the home. W e see, however, a great dif ference between theories and practice when we survey the mass of child-caring work that is being done in the United States. It is not, therefore, trite and unnecessary to discuss just how far the parental relationship and all that is valuable in family life may be safe guarded in work dealing with children in need. THE EXTENT OF CHILD DEPENDENCY. The need for conserving family experiences for the child life o f the nation is further borne out by the large number o f children in the United States that receive foster care. The number o f children cared for in foster homes throughout the country runs into the hun17 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME CARE FOR DEPENDENT CHILDREN. dreds o f thousands in any given year, and the total annual financial expenditure for the services extended to these children reaches a sum which no one can give with accuracy but which is huge beyond ques tion. The grand total for the country can, in a measure, be estimated from the totals for certain States: Pennsylvania has more than 500 child-caring agencies annually caring for approximately 50,000 chil dren.1 The State of New York has 233 children’s agencies, which in a given year cared for 46,064 children. Massachusetts has 87 child caring agencies, both public and private, which in 1921 cared for 19,002, children. According to a special report issued by the Boston Council o f Social Agencies,2 in the city o f Boston alone 34 private child-helping agencies in one year gave care to 4,500 children— a service which cost $1,235,023. On the basis of reports coming from a few of the States and of data contained in the Federal census reports, it is conservatively estimated that all the public and private child-caring agencies and officials throughout the country have in care at this time approxi mately 250,000 children. O f course, in any given year there is a considerable turnover, so that the actual number of different children cared for is larger than the average number in care throughout the year. The importance* therefore, o f a wise and adequate handling of all those problems that come before a welfare agency in regard to the separation of children from their own people is outstanding. The question is, furthermore, of supreme importance to family and child-welfare agencies, to juvenile courts, and to public officials, as they tend toward a joint consideration of the essential difficulties to be met in handling applications that involve potential foster care for children. WORK OF CHILD-CARING AND FAMILY AGENCIES INTER RELATED. It has been a mistake in policy for the specialized child-caring and the specialized family agencies to act in many instances as though the phases of child-welfare work which each group faced were essentially separate and distinct. Happily these two types of agencies are coming to see that their responsibilities are interrelated. Prospects are thus opened up for a more fundamental type of child caring work than has hitherto been seen except in very rare instances. Child-caring organizations are not free from family-protection re sponsibilities, and family agencies are never free from the responsi bility for seeing that good standards of work for children are estab lished in their communities. The two groups of agencies named, of i Statement made on authority o f Pennsylvania Department o f W elfare. * B ulletin No. 5. May, 1923. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis CONSERVING TH E CH ILD ’S PARENTAL H O M E. 19 course, include public and private services and every type o f agency, whether it be associated charities, a public-welfare department, a juvenile court, a detention home, an institution for children, a society to protect children, or a children’s aid society. THE NECESSITY OF HIGH STANDARDS IN WORK FOR CHILDREN. It is true o f social work, as o f every other field of human activity, that quality o f service does not come by chance. It is a peculiar criticism o f social work that to a very large extent the general public places too low a value upon the qualifications which members of welfare staffs should have in order to do their work. There can be no adequate conservation work with children unless the work is done by people of broad intelligence and education and fundamentally sound character. Staff workers, particularly with children’s agen cies, are too generally selected without thought as to their special training and their fitness not only to understand children, but to work with them. Good staff workers should therefore be one o f the main planks in a child-welfare conservation program. Executives of experience and devotion. Certainly no executive o f any o f the agencies classified above can safely be trusted to do the right kind o f work unless he has had a very definite experience, now commonly designated as case-work training. This standard, o f course, immediately rules out many present executives o f these organizations; but the progress made in the last decade in improving the personnel o f social agencies gives cause for the utmost optimism for the future in this matter of exec utives. No notable or even average piece o f work for children has been done by executives who did not bring great native and acquired abilities to their work. The lack o f trained leadership has placed a very heavy handicap upon child-welfare work in many commun ities, and finding the “ way out ” from numberless unwise manifesta tions o f philanthropy for children will be possible only under a new, highly experienced, and devoted leadership. The time is past for the use in social work o f people whose experience can best be de scribed as nondescript. The next decade will see the investment of truly vast sums in a wide variety o f new child-welfare projects which will often be initiated out o f their proper sequence unless the right leadership is at hand to advise, guide, and direct those who wish to serve through their money and their effort. Staff workers of the highest type. Next in importance to executive workers come general staff mem bers. The situation with reference to the rank and file o f those who serve on the staffs o f children’s organizations is most depressing, in https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 20 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. State alter State. I t requires unusual abilities to render adequate service to children, or to see that such services are rendered by others. Standards in regard to the education, general and technical training, health, experience, and financial compensation o f staff members need radical changing. W ork for children as done by children’s agencies is in far too many instances in exactly the same status as that o f the poorest and worst equipped rural schools in the United States. W e see beyond question that men and women of the highest type are required in the performance o f country-wide health and educational programs. The same restrictions and conditions as to personnel are equally binding in the field o f social work and its subdivision of child welfare. . . One who visits many different types o f child-welfare agencies is too often impressed by great inadequacy on the part o f those who are actually in charge o f the children. This is a manifold danger, be cause in almost no other field of welfare work is the appeal to the average layman so great as it is where children are involved. Mil lions o f dollars both for capital and for current use are annually poured out for child-welfare work, and in many instances these funds are unwisely applied because the donor was ill advised by the social workers to whom he intrusted them. Those who prophesied that there would be a marked falling off in gifts for welfare work as a result o f the war certainly did not foresee the attitude of the public in regard to children. Various organizations are sweeping the country with truly gigantic projects for aiding children in need, and many o f these plans call for care o f the children away from their own people. It is not a part o f this discussion to consider these specific child-welfare programs, but the essentials o f any good child-welfare conservation plan should have general application to them. L im iting the case load o f individual workers. Social work has suffered severely from having had to run on a quantity, as against a quality, basis. It is o f course quite evident that a public agency is less able to limit its work than is a private agency. Yet extraordinary progress has been made in recent years by public agencies in the extent to which the work load per staff member has been reduced, expansion in work o f the agency being registered by increasing the staff rather than overloading individual workers. The private agency is in a more favorable position so far as limiting work and .thus expressing a definite qualitative service is concerned. The failure to stress the evils going with any attempt to do the utmost amount o f work without regard to standards has cost child-welfare work dearly. As agencies improve the methods o f work they understand its real meaning better and are more able https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis CONSERVING TH E C H IL D ’ s PARENTAL H O M E. 21 in each instance to protect the interests o f all the persons involved. It is wise to limit the work o f an agency so as to be able to give good care to such children as are received, even though it may be necessary to refuse many applications o f great urgency. Adequate salaries for adequate work. Hand in hand with the securing o f suitable staff members must go a program o f adequate remuneration for work done. No success ful appeal can be made to men and women o f education and char acter, who are being sought out by every profession and department of production, unless reasonably adequate personal standards o f liv ing are assured them. The exception to this rule occurs in the case o f the unpaid services which certain great religious orders provide for children o f the types under discussion. However, in these same religious circles notable work is being done under the direc tion o f salaried men and women who measure up to the highest standards, and it is clearly evident that in the secular fields the serv ices o f properly equipped workers can be secured only on a basis o f adequate compensation. It is a common experience that it is easier to secure money for capital outlay or for the support o f children under foster care, than it is to secure funds ftfr the payment o f high-grade workers who will see wherein gross disbursements can, with the utmost safeguarding o f the children, be very materially reduced. THE NECESSITY FOR INFORMATION AS A BASIS FOR ACTION. In any community there arise day by day a myriad o f applications o f all sorts calling for the removal of children from their own homes and their placement for some kind o f care either in an in stitution or in a family. These children include those whose parents have died, are in prison, or are sick, incompetent, mentally ir responsible, immoral, unmarried, or in poverty. The children them selves present a wide range o f mental and character difficulties ex pressed in various forms o f misconduct and delinquency. In these diverse and often complicated situations it is impossible to act with wisdom without knowing a great deal about the child and his family although the attempt to do so is constantly being made. I f family life is worth saving and developing, i f sparing a child the experience o f having to grow up with strangers, and having parents train and care for their own children represent the normal and desirable situation, then the methods followed in the reception o f children by child-caring agencies will have to be generally re organized and standardized. It should be realized that in many communities the child-welfare work that is most fundamental and most enduring is not necessarily done by children’s organizations, https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 22 POSTER-HOME CARE POR DEPENDENT CHILDREN. Whether or not a child need be taken from his own home depends to some extent upon what protective agencies exist in his community; and this information can be brought out only through careful inquiries made at the time o f the child s proposed reception by a child-caring agency. Miss Mary E. Kichmond has given an outline o f the general re quirements in the matter o f reception information,3 and this is sup plemented in various papers appearing in the Proceedings o f the National Conference of Social Work and in statements given in the annual reports of the leading child-welfare agencies in the country. Saving to a child the potential resources in his own f amily is possible only through a clear and comprehensive understanding of just what it is that makes up the child’s history. Because public and private child-welfare workers have been so largely in doubt as to the causes which brought the children to them, they as a group have played a minor part in work looking to the prevention of child neglect, de pendency, and delinquency. REMOVING THE CAUSES OF FAMILY BREAKDOWN. We have all solemnly agreed that family homes must not be broken up because of poverty, yet many children throughout the United States are removed from their own people simply because of insuffi ciency of family income and all the immediate ills which follow in the wake of low wages. A general lack of information in the recep tion department also leads many o f these same child-welfare groups to act in ignorance o f conditions o f ill health, mental disability, parental incompetence, inadequate recreational facilities, bad hous ing, and improper school adjustments. Supplementing the fam ily income. Adequate protection of the relation between parents and children begins with an income sufficient to maintain normal social standards. This is a matter to which very few child-welfare agencies ever refer in their reports. They seem not to know that all too frequently they remove children from their own homes for the purpose of giving foster care when the outstanding lack is sufficient family funds for ele mentary necessities. The family-welfare agencies have been increas ingly concerned with the necessity for supplementing the inadequate income of many o f the families with which they are in contact in order thereby to keep the family groups unbroken. The country still awaits, however, the wide expression of the principle that a chil dren’s agency must not count it good work to spend money for the foster care o f children if the unfitness o f the children’s own homes is * Richmond, Mary E . : Social Diagnosis. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis Russell Sage Foundation, New York, 1917. CONSERVING TH E C H ILD ’ S PARENTAL H O M E. 23 clue entirely to poverty. Many examples can be found tbe country over o f richly endowed children’s agencies whose wards must be good children o f good mothers who are widows and therefore without sup port. It surely seems incongruous for us to go on approving o f this state o f affairs. It would seem as though in the face o f such situa tions we need a new index o f values to show what are the truly fun damental forms of child-welfare work. I f the reception o f a child is made a matter of serious thought and careful planning, it will become a general practice to discover and bolster up all those family groups which with special and outside assistance, generally costing less than foster care, can be kept intact. Where reputable agencies inquire carefully into all applications, they generally find that disposition other than foster care results in about 75 or 80 per cent o f all cases. In general practice, however, most communities, including their many social agencies, seem to have few resources when faced with cases o f family need. Among the first plans considered is the breaking up o f the family. Childwelfare surveys show a surprisingly large number o f children in care who really should have been left with their own parents or whose need for foster care the child-caring agencies are unable to prove. I f an agency or institution is spending from $500 to $1,200 per year per child under care it should in each case be possible to prove easily and quickly the necessity for such care. Prevention through health protection. To function normally one must be well, yet many o f the children coming into foster care show physical disabilities. The same can also be said about their parents. It is therefore an important part o f the work o f both child-welfare and family-welfare agencies to do everything they can to protect and to promote the health interests o f those under their care. I f every public and private family-wel fare agency could give adequate health care to all its clients the number o f applications ultimately going to children’s agencies would be materially reduced. “ Well clinics ” need to be organized all over the country for the purpose o f dealing with incipient physical diffi culties before they reach a serious stage. I f this were done fewer and fewer removals o f children from their own homes would take place, for ill health is one o f the prime factors in the breaking up of families. It is already demonstrable that prenatal and postnatal clinics have had a most definite effect in improving the health standards o f mothers, and this in time will mean that more mothers will live to take care o f their children. It is very clear indeed, therefore, that an organization working with families or children which is not https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 24 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. directly and vitally participating in a high-grade health-promotion program is not doing all that it should in the matter o f conserving family life for children. This health program should include care ful examinations, all necessary laboratory tests, and provision for necessary treatment where such can not be had from existing agencies. A liberal share of the costs o f such work is a proper charge in the budgets o f both family-welfare and child-welfare agencies. Better housing. The existence of much bad housing, with all its effects on home life, means that child-welfare agencies must now care for many children whose families resort to foster care as a means of escape for the children from home conditions. Therefore the solution of the housing situation is another fundamental step in the conserva tion o f parental relationships for children. Recreation. I n ’ a number o f the cases handled by family and child welfare agencies the situation is on the border line between dependency and delinquency, and in these cases there invariably appears the factor o f poor or utterly negligible recreational life. This is just as likely to be the case in the strictly rural community as it is in the densely crowded city. Consequently understanding and planning for the recreational needs of children, and also o f adults, represents another important method o f safeguarding family life. THE TRAGEDY OF SEPARATION. It is important that everyone responsible for the well-being of children should have a pretty dear concept o f the child. I f we had a truer and deeper understanding of the mental and physical life of the child there would be less intentness on the execution of plans which are more likely to injure than to help the children affected. Although it may be unpleasant to realize it is natural for children to view with questionings and criticisms those whom they meet in fos ter-care agencies. Children suffer far more than we realize when they enter upon a period o f foster care; and their sufferings—cer tainly mental and often physical—should be taken into consideration when plans for the separation o f children from their own people are being thought out. We have built up a rather pleasant picture of superperfect children’s organizations into which the children slip rather easily and where they are supremely happy. Now for good and clearly convincing reasons this is not generally the case, and when the realization o f this fact becomes more general greater and greater safeguards will be thrown about the child as he first comes under consideration. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis c o n s e r v in g the c h i l d ’s parental home . 25 Dr. Alberta S. Guibord, in a very remarkable paper on “ The landmap o f the dependent child,” 4 shows a clear understanding of what passes through the mind o f the average child when he enters a agT Cm •AxS-She i>01ntS ° Ut’ an imP°rtant factor in dealing vith such a child is his predisposition to influences which make for delinquency and social inefficiency. This is so because o f the emo tional disturbance incident to family breakdown. c ] » T L T / h0UI d b 6 int™stel? the responsibility o f separating of i l w / • ne‘ \ ° ™ Pe° ple Wh° is Unable Set the child’s point o± new , to weigh what it will mean to him to be separated even for a f f " ° d fr° m Paref ts and bro*«™ and sisters, and to under stand that for the great mass o f children any foster-eare program mvolves insurmountable difficulties. Wherever a reasonable anfount . " f ''natl0n ls seoured about any child, the placement o f that child under foster care fairly bristles with problems. A child-placm g agency must be very definitely conscious o f the limitations o f its w ort i f it is to execute reasonably careful placements and eonseUS ^ ^ a‘ W not neglected and ¿ ¿ P 1? Stai! 0f any agency called upon to decide whether a child is to lemain in his own home will do better work i f it is thoroughly perthe ldea that itS pIan o£ help ia Probably following in the wake o f some social tragedy, or that such a tragedy will occur unless a very radical and far-thinking job is done by the agency in question. Barring certain exceptions, children should not c L e L t o the care o f placing agencies until every effort has been exhausted to keep them within their own family groups, and they must never be considered, as detached from their families at the time o f the in ^ ■ J z r - s e e ^ workers “ the ^eld o f child weI&re do not con, ? yP f od ™ *bey are now giving an ideal one. These leaders do not see that a multiplication o f child-caring organizations o f the various types now in existence or the doubling o f their endowments necessiirily would improve the conditions o f child life in the United States Bather are they convinced that i f such funds could be placed at the disposal o f more immediately protective and preventive agenmes a new and higher type o f child-welfare work would result and this work would be for children who in all probability would never have to be removed from their own homes. THE LIMITATIONS OP FOSTER CARE. Certain outstanding aspects o f children’s work can be strikinglv presented through an outline o f the essential limitations that face those who must be in charge o f the children. First is the limitation ‘ The Survey, August 16, 1920, pp. 614-616 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis ~ " 26 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. as to the number of good foster homes available. Next, staff workers represent the average folks whom one meets every day and are usually no better equipped to meet the difficulties which children present than are the average run o f parents. Third, when an agency tries to obtain for each child in care a reasonably normal home environ ment it enters upon an outlay o f funds which the general public is quite unprepared to meet. Child-caring work has hitherto been judged on a basis of low per capita costs, but as higher standards have been applied to every de partment and every person engaged in it the costs have mounted to sums which would have seemed incredible years ago. When an agency spends on one child in a given year the equivalent of the average income for the average family in the United States, there immediately arises the question: Can such an agency justify such expenditure? I f there happen to be other children in each of the families from which this agency has selected its wards the further question arises, Would it not be better to allow the special child in each case to remain with his own mother (granting him to be a halforphan) and give the family the amount of money which would otherwise be spent for foster care, plus the total thought, time, and service which the agency’s personnel gives to each of its wards? SUBSIDIZING THE HOME. Every observing children’s worker knows of many cases in which, if she could have expended on the child’s own family life j,ust what she has spent on one member of the family in money and care, the whole family situation would have been immeasurably improved. This fact should have great weight in the consideration of the prob lems of dependent children. The mothers’ assistance or mothers’ pension fund movement has kept with their mothers large numbers children who* in the absence of this support would have required the care of social agencies. Nothing could be more anomalous than a situation in which mothers, because o f poverty, are forced to give up their children to agencies to receive foster care at an expense far greater than the cost of providing for the children in their own homes and with their own mothers. Yet this process goes on in practically every State in the Union. It would seem to call for radical action everywhere. Moreover, where the resources of the family agency are inadequate to meet the relief demand made upon them, steps should be taken to ascertain to what extent the resources o f certain o f the children’s agencies could be used for general family relief as against special child relief. Large benefactors and pro moters o f country-wide plans for child welfare should be made to https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis CONSERVING THE CH ILD’ s PARENTAL HOM E. 27 seejhat in a vast majority of the communities o f the country actual child-welfare work is now many Japs ahead of the work of the organized and incorporated children’s agencies. This is said with out any intention to disparage the work of the children’s agencies in any way; but wages, health, good housing, and all the other essentials o f normal family life are influenced only slightly by them. Moreover, potential benefactors in the children’s field should be urged to leave their money free from narrow and hampering restric tions as to use. The more liberal grants of public aid to mothers with dependent children, commonly known as mothers’ pensions, have tended in many communities to reduce the number of children in the care o f chil dren’s societies. The report of the Department of Public Welfare o f the city of New York shows a steady decrease in the number o f children under care at the close of each fiscal year since 1916. For that year the number under care was 22,117; for 1921, in spite o f an increase in population and much unemployment, the number under care was given as 15,951. Undoubtedly better methods in the recep tion of the children accounted in part for this decrease, but the pub lic grants or pensions to many mothers in their own homes also exer cised a great influence in keeping children out of the hands o f child-caring agencies. The figures for the Massachusetts child-caring agencies for the last two years also show in many instances a falling-off in percentage o f children under care compared with the increase in population. It is much easier to get money for the work o f specialized childwelfare agencies than it is to get money for general family agencies. In Boston 5 25 family-helping agencies dealing with 32,500 indi viduals in their own homes spent last year $522,573, whereas 3 4 chil dren’s agencies giving complete care to 4,500 children, and super vision and other nonfinancial help to 20,500 additional children, spent in one year $1,235,023. The situation is even more striking in Philadelphia,6 where 90 child-caring organizations, with an aver age o f 2 0 ,0 0 0 children in care, spent in 1920 approximately $5,500,000, and 5 family-welfare agencies spent in 1922 approximately $750,000. Yet a potentially heavier child-welfare load rests on the family agencies, notwithstanding the fact that they have far less to spend in any given year. The interpretation of this situation needs to be taken in hand by the child-welfare leaders in collabora tion with the family-welfare leaders, and its significance should have the widest publicity. 5 Bulletin No. o, 1923. Boston Council o f Social A gencies • Unpublished study, Children’s Bureau o f Philadelphia« ; 72693°— 26-------- 3 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 28 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. WORKMEN’S COMPENSATION LAW S AS PROTECTION FOR THE HOME. The attention o f all students o f welfare work should he called to the effect that workmen’s compensation laws have had in protecting family life. Through this one movement a great army o f families throughout the United States has been lifted out o f a condition of dependency on either public or private relief. Twenty years ago children o f workers injured or killed in industry filled the institu tions while their mothers worked and lived alone, having a hard time to eke out a mere existence. Eeal compensation for such injury or death o f the father represents a great advance in family protec tion. Moreover, the compensation movement has resulted in means for encouraging accident prevention which are keeping increasing numbers o f workers from even being injured. THE SCHOOL AS A FACTOR IN STRENGTHENING THE HOME. In some communities the juvenile court has been accurately char acterized as the largest and most important child-welfare agency, the largest family-welfare agency being given second place. Yet the public schools represent an organization o f child-welfare forces that in volume o f work and importance of service easily transcends all other child-caring organizations. The newer psychology, partic ularly in the studies o f experts like Dr. William Healy, Dr. Bernard Glueck, and Dr. Augusta Bronner, has revealed the importance of the early years o f childhood. Next to the home in its influence on the young child comes the public school. Hence the necessity for augmenting in every possible way all that the public schools can do in their work for children." It is not sufficient that the teacher know her children as pupils in the classroom. The influences that bear on children outside the school determine to a very large degree just what permanent values they will carry away from their school life. The teachers are doing social work in their particular field, but it is often likely to be futile unless it is brought into close contact with all the other social forces affecting the child. To meet the need, to give the backgrounds of the children, to reveal accurately just what they have or have not in their own homes, is the serious task o f a new group which has come into the schools in Philadelphia. This group, best known as visiting teachers, are teachers with special experience in the field o f social case work. They help the whole school staff to understand, and therefore better to teach, the child who for any reason whatsoever is not making a good adjustment through the school activities. I f the visiting teacher does good work, she catches up in their very incipiency many sig nificant acts and character developments. She treats them as the oc https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis CONSERVING TH E C H ILD ’ S PARENTAL H OM E. 29 casion demands and thereby prevents them from becoming outstand ing difficulties which may lead to delinquencies or to bad adjustments with parents or other members o f families, with the consequent dan ger o f the child’s separation from his own people. The visiting teacher represents an improvement in results over the best work of the best attendance officers. The children who are misfits in the school are the first responsi bility o f the visiting teacher. Children o f this group— who a few years ago would generally have been thought to need care in parental schools, if not industrial schools—through the visiting teacher or the attendance officer trained as a social worker, have been adjusted satisfactorily while remaining in their own homes. No one can com pute what this means to these children. The placement o f a child presenting problems o f conduct, with many other children facing the same difficulties is a step which should be taken very reluctantly. The more one studies prisons and reformatories and the results o f their work, the greater becomes the determination not to introduce an in dividual to such a life if the means are at hand for preventing it. Understanding the individual is one o f the first steps in this preven tion. THE JUVENILE COURT SAFEGUARDING THE HOME. The juvenile court is too well known to need any interpretation here. However, it must be cited as an important agency which has enormous possibilities for the safeguarding o f family relationships. One o f the remarkable developments during the last 40 years of the nineteenth century was the breaking away from the habit of punish ing adult delinquents by prison commitments. Sifting out the more hopeful and most trustworthy adult delinquents for probation re sulted in enormous financial saving to the State in the maintenance o f prisoners and also in the sums necessary for prison extension and equipment. Probation also saved for the delinquent’s family his financial support and his presence. As the principle has come to be applied to juvenile delinquents it has had an even more beneficial effect. When one realizes how short is the period o f care given in most industrial schools, one can not but believe that careful probation would in the long run produce more lasting results than these short intensive periods of training for large numbers o f children o f about the same age, brought together because of the commission o f various acts o f delinquency. Commitment to an industrial school is a shock to most children. O f course, many children enter the in dustrial school from homes that were broken up before the court came into action, but these represent on the whole the smallest segment o f the total group. Child-welfare agencies which desire to be con https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 30 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. sidered alert and actively to support constructive work will watch their juvenile courts. The juvenile court following good social case work methods and staffed with well-trained probation officers will exert a powerful influence for keeping homes unbroken. It is, of course, still too true that the juvenile court, in the matter of actively taking over the best methods o f social case work and covering its specific field throughout the country, is only in its initial stage; yet this beginning represents a great victory over previous condi tions, and it is fair to say that the results achieved in the face of great handicaps thoroughly warrant the experiment. The juvenile court has cut into the field o f agencies operating under the general name o f “ societies to protect children from cruelty,” and this is entirely in accord with principles o f progress. It is well that private organizations should not exercise quasi police power. The authority has been frequently abused in the past. Where children are to be removed from their own homes for cause which must be reviewed before a court o f record, the authority for such action should rest with a public agency such as the juvenile court, in contrast with a private agency. Children are going to be better protected from cruelty and neglect and from thoughtless and wholesale removals through the perfecting o f the juvenile court’s methods, and it is time that we began to concentrate our energies on achieving this end. Agencies change as do other organizations of mankind and it will be entirely fitting for the child-protective agencies to advance into a new and different field. SPECIAL TYPES OF CHILDREN. For certain special classes o f children there seems to be no ques tion o f the necessity for foster care. Foundlings, in spite o f care ful efforts to locate parents, continue, in large cities at least, to have small chance o f return to relatives. O f deserted children, this is much less true. More information can be found with less difficulty about children of the latter group. Yet the attitude o f mind and the mental health of the parent who deserts a child and leaves him to strangers make it very difficult to fasten the responsibility for physi cal care of the child on such a parent. Such a parent can sometimes be held to his financial responsibility for the child, even over long periods, but success here calls for very careful and very thorough social work. . In regard to children born to unmarried parents, the trend is definitely in the direction o f continued care and responsibility for the child by the parents. I f good reception methods are followed, if social backgrounds are sought and social causes are looked for, separation of unmarried parents from their children is usually found https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis CONSERVING TH E C H ILD ’ s PARENTAL H O M E. 31 to be unwise and undesirable; yet many children’s agencies and many organizations working with unmarried mothers countenance such separations as soon after birth as they can safely be effected. I f “ knowledge is power,” i f acquaintanceship with the facts is a necessary preliminary to any sound social policy, such would seem to be the case in this field o f illegitimacy. CONCLUSION. We must dispel the ideas o f the general public that most o f the children coming to social agencies for care are full orphans, that in general the agencies are dealing with children who have no rela tives, and that practically all our dependent children are separate and distinct from those classed as delinquent. It is unquestionably true that relatives are a weak support in the cases of many children, but it is also undeniably true that many good relatives carry a load of child care that is greatly underrated and misunderstood. The best children’s workers fully understand that .the selection and use of relatives for the care o f children whose own families are breaking calls for very careful social work. It is when such work is not done that we strike disaster. The concluding thoughts are these: That the ultimate good of underprivileged children will best be secured if every effort is put forth to safeguard their own home interests; that more lasting social good will result from conserving family life and relationships than from creating an ever-increasing number o f separate caring agencies, to take children out o f the circles which they know best and prefer and to which they generally return after their period o f foster care is over. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis ’ i ^ ; í;\v i'0'S J jB H B 5 •;»tiW$'-'{tií* míÉï|{fÿ^f|RÎ ir?-, I :y ; https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE ESSENTIALS OF PLACEMENT IN FREE FAMILY HOMES. E dm ond J. B utleb , , Executive Secretary Catholic H om e Bureau for Dependent Children, N ew York. INTRODUCTION. Up to the beginning o f the nineteenth century the prevailing method in this country o f dealing with orphans and the children of shiftless, poverty-stricken, deserting, sick, or unworthy parents, whose relatives were either unwilling or unable to care for them, was to turn them over to the custodial care o f poorhouses, poor farms, or similar places o f incarceration. As public institutions these so-called homes for the poor were administered by officials ap pointed for political reasons. For the most part they were lacking in the qualifications necessary for adequate service to their poor charges, and their principal claim for a continuance in office was based upon a record o f economical management. The evil conditions resulting from this method o f child caring grew to such proportions as to induce high-minded citizens to est tablish private orphanages and homes for children as a means of providing for them in a more huipane way. The movement was slow in its development. It required 30 or more years to create the general interest necessary to produce a response commensurate with the needs o f the work. From that time on the private institu tions grew rapidly. Opposition to the old system grew apace and developed a public opinion which during the latter part of the century forced the passage in many States of laws prohibiting the commitment o f children to poorhouses or similar institutions. There after public institutions entered the field to share the task o f child caring with those maintained by private agencies. During the century o f administration o f private institutions and the early period o f State institutions little was done to develop methods approaching the standards o f the well-equipped and wellmanaged children’s orphanages and homes o f the present time. Lacking these standard^ the average administration was content to provide housing, food, and clothing o f the plainest type and a small amount o f education. The directors, managers, and friends o f these institutions were actuated by the highest o f motives. They <rave themselves and their means to the welfare o f the children whose 33 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 34 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. care they assumed. It is not surprising that some o f them failed to measure up to the duty and quality of service required. The publicity given unfortunate results in isolated cases of chil dren poorly cared for in private institutions, the general apathy and ignorance of the public as to the proper methods o f institutional care, and the lack o f adequate inspection, supervision, and helpful pub licity, all combined to make child-caring institutions the object o f persistent attack during the last 20 years. The most extreme critics have gone so far as to advocate the abolishment o f all child-caring institutions, on the theory that “ the worst family home is better than the best institution.” . . . . An extract from a recent article on the subject of institutions by Dr. Charles H. Johnson, secretary o f the New York State Board of Charities, may be cited as a refreshing contrast to the attacks of these unreasonable, uncharitable critics: The thousands of earnest people in this State who are giving their lives to institutional service, taking the place of fathers and mothers who have neglected or deserted their children, acting as caretakers for the aged and in firm many of whom have been abandoned by their own families, watching over the sick and the disabled at the cost of their own leisure and comfort, have little support from the public whenever anyone wishes to attack their respective institutions. . , , ... The truth is that the institutions to-day are, as a rule, conducted on a high plane of human interest and that the standards of individual care are being constantly raised. As a result of the long-continued campaign of criticism many wellintentioned persons, actuated by a sincere desire to be helpful to the dependent child, are obsessed with the idea that the only way to secure the future welfare of such a child is to place him in a free family home or in a boarding home, irrespective o f the needs and rights of the child or of his status with respect to parents or other relatives. That placing out, boarding out, and legal adoption are excellent means to a desirable end requires no argument. In specific cases and under certain conditions this proposition is so generally admitted by all persons engaged in child-caring work that it would seem entirely unnecessary to engage in any controversy with regard to the matter. During a period of more than 40 years in which the writer has been in personal contact with directors of institutions he has never met one who did not hold that a normal family home is the best place for a dependent child. In view o f the general attitude with respect to these methods o f child caring, it is surprising that any o f their advocates should find it necessary to resort to abuse of well-regulated institutions. ^ Persons who desire to engage in placing out, boarding out, and legal adoption should do so with an open mind, realizing the neces https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E ESSENTIALS GE PLACEMENT IN FREE FAM ILY H OM ES. 35 sity o f dealing with each case on its individual needs and merits ìathei than as a means o f opposition to the child-caring activities of others whose methods and motives in their own field are deserving of the greatest respect and gratitude. The placing o f dependent children in free family homes did not begin as a modern activity. Through all the centuries it has been pi acticed as part o f the methods of all organized charities and among nations and peoples where no such organizations existed. A m ong many races and groups of people it was carried on, as an act o f love o f neighbor, to such an extent as to make other means for the care of the orphan unnecessary. During the last 25 years, however, placing out has been made the subject o f special study and development, with the result that it is now recognized as one o f the most important factors in any welldevised plan for the welfare o f dependent children. This study and development and the experience o f those engaged in the work as a specialized activity have made it quite obvious that placing-out service, unless carried on in accordance with approved standards, not only will fail to secure good results but will be responsible for destroying the future welfare o f many if not most o f those for whom help is intended. This may seem to be an extreme assertion, but its proof may be found in the thousands o f human wrecks seeking the aid of charities as the result o f bad placing-out work. The following is an extract from the resolutions adopted by the White House Conference:1 The carefully selected foster home is for the normal child the best substitute for the natural home. Such homes should be selected by a most careful process of investigation., carried on by skilled agents through personal investigation and with due regard to the religious faith of the child. After children are placed in homes, adequate visitation, with careful consideration of the physical mental, moral, and spiritual training and development of each child on thè part of the responsible home-finding agency, is essential. This conclusion, which is in harmony with the experience o f those who for many years past have been engaged in placing-out work, clearly indicates that only those who are qualified to do the work intelligently and in compliance with the specific requirements for effective service should engage in it. It is not work for individuals who are unable to give the personal investigation and long-continued supervision necessary. Unless they feel assured that they can meet these requirements they should not enter the work. Bureaus o f charity or similar organizations undertaking to establish placing-out activities as special or subsidiary work should realize the necessity for a complete understanding o f the work before starti Proceedings o f the Conference on the Care o f Dependent Children, held at W ashington 1). C., January 25, 26, 1909. Sixtieth Congress, second session, Senate Document No 7 2 l' p. 10. Government P rinting Office, W ashington, 1909. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 36 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. ing to function in this field. Without such understanding disastrous results are sure to follow. In the folio wing.pages will be found an outline o f the knowledge, service, and equipment necessary for successful placing o f depend ent children in free family homes, arranged in divisions under the following titles: The child, The foster parents, Selection o f home and foster parents, Visitation and supervision, Legal adoption, Dis charge from supervision, After care, and Administration and records. THE CHILD. The following extract from the resolutions adopted by the Con ference on Child Welfare held under the auspices of the Children’s Bureau o f the United States Department o f Labor, in May, 1919, may be offered as a proper guide for persons o f any creed or without creed who undertake to provide for the future welfare o f children: •The fundamental rights of childhood are normal home life, opportunities for education, recreation, vocational preparation fo r life, and moral, religious, and physical development in harmony with American ideals and the educa tional and spiritual agencies by which these rights of the child are normally safeguarded. As a general proposition, it may be said that any normal healthy child is a placeable child ,2 but there are special conditions which may render the placing out of such a child undesirable. The age o f placeable children may be briefly stated as follow s: Boys up to and including the age o f 14; girls up to and including the age o f 10. The placing o f girls over 10 years o f age does not give promise o f good results particularly where there are other children in the family or where adults suffering from the infirmities o f old age or physical or mental afflictions are not adequately cared for by members o f the family or adult attendants. Under these circumstances flagrant exploitation of child labor and neglect o f schooling are apt to oecur, especially with girls between the ages o f 1 0 and 15. The experience o f placing-out agencies will show that the most successful results occur in the cases o f children placed when below the age o f 5 years. It is contrary to the designs of God and nature to separate parent and child because o f temporary disability. When poverty, illness, or even improper guardianship makes it necessary to care for a child outside his own home, nothing should be done to cause a definite and continuous separation if there is hope o f rehabilitating the parent and restoring the normal relation. As the natural order provides for parental care, based upon love and affection, for the * N o t e . — The discussion in this paper relates to placement in free homes fo r adoption and does n ot refer to boarding-home care. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E ESSENTIALS OE PLACEMENT IN FEEE FAM ILY HOM ES. £7 support and training o f the child, it also demands a reciprocal service for the aged based upon filial love and duty. When, there fore, there is possibility o f reuniting parent and child, such a child is not placeable in a free foster home. He should receive temporary care in a boarding home or institution. It is necessary, before undertaking to place out a child, to secure definite information as to his family history, religious affiliation, and physical and mental condition. Lack o f such information may later create serious problems detrimental to the interests of the child and his foster parents. Careful investigation should be made as to the cause o f death or o f the present mental or physical condition o f parents in order to ascertain what, if any, unfavorable inherited tendencies may develop in the child. I f there is any probability o f such tendencies, the child is not placeable. Such a child should be cared for in an institution or a carefully selected boarding home until experts decide that there is no possibility of such traits developing. The child should then receive, if possible, the advantages o f a normal free home. « No child should be placed out who is suffering from any physical or mental defect. A ll such children should receive the care and at tention necessary to bring them up to normal standards before place ment. No child should be placed without sufficient guaranty that he will be kept at school until he reaches the age o f 16. THE FOSTER PARENTS. In view o f the fact that the vast majority o f the families o f our country consist o f persons having a limited amount o f wealth, an ordinary education, and little or no social distinction, it would be unwise, if not futile, to set up standards o f too exacting a character for foster parents. We should realize that most, if not all, o f the children we aim to help do not come from homes where at any time unusual conditions of wealth prevailed. I f we can secure homes and foster parents among the wealthy it is well to do so, but it does not necessarily follow that children so placed have better prospects than those placed with families who have been.accustomed to making personal sacrifices to maintain their position in life. In fact, the latter type may contribute more to the child’s welfare by giving him greater personal attention than could be expected from those who delegate such care to a servant. The aim should be to secure as foster parents persons who desire a child for the child’s sake. They should have an assured income, sufficient to insure proper care o f the child. They should not be advanced in years, otherwise the child may lack the continuous care https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 38 foster - h o m e garb for dependent ch ildren . necessary to enable him to reach manhood under their supervision. They should show a wholesome attitude o f appreciation o f the needs of the young in matters o f companionship, recreation, and reason able freedom from restraint, to guard against making the home a virtual prison for the child. They ought to be persons of good physical and mental health, industrious and thrifty, with at least average education and intelligence. And they should enjoy the re spect and indorsement o f their pastor and neighbors as law-abiding and respected citizens. They should be of the same religion as the child to be placed with them and should be vouched for by their pastor as persons who are regular in the performance o f their religious duties and as persons who will provide proper religious training for the child assigned to them. SELECTION OF HOME AND FOSTER PARENTS. The methods to be adopted for finding homes will vary according to the experience o f those engaged in the work. “ Sob stories” may develop appeals for children, but most of these will be from persons who demand impossibilities. Well-planned advertising through good mediums is expensive. Considering the results, there is a serious question as to whether the money thus expended might not be used to better advantage in other directions. Some publicity, however, is necessary. Interesting and appealing press items and stories will play an important part in preparing the way for other methods. A careful, conscientious agent can produce more satisfactory re sults than can be secured by any other method. In making his appeal to prospective parents he has the opportunity to prevent much waste of time and money which is needed for investigation, by selecting approved sections and neighborhoods and desirable-families, and by choosing certain localities so as to minimize the cost o f supervision after placements are made. He will also learn o f the local oppor tunities which may offer helpful assistance to the family in matters of education, religious training, recreation, companions for the child, etc. This method of securing homes will be found the most satis factory. Application for children should be made upon a blank form prepared to secure sufficient information to enable the agency at once to decide whether it is advisable to proceed further and to guide the agent in making an investigation concerning the applicants and their home. The blank should also contain an outline o f the specific terms upon which the placement is to be made and an agreement to comply with these requirements, which should be signed by both husband and wife. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE ESSENTIALS OF PLACEMENT IN FREE FAM ILY HOM ES. 39 Following the receipt o f an acceptable application for a child the most thorough investigation should be made concerning the appli cants, the members of their family, the home and its equipment, and its environment. This investigation to be complete should be made by a duly qualified agent, and the report o f the agent should include definite information on the following lines: The foster 'parents. Definite information should be secured as to age, nationality, personality, obvious physical and mental condition, education, intelligence, religious and general character, prob able attitude toward children, atmosphere o f the home 5 how long parents have been married, where and by whom the ceremony was performed; previous experience, if any, in the care o f children; the occupation and earning power o f the foster father and o f any other members o f his family in the home contributing to the support o f the home and fam ily; whether the home or other property is owned, and if so, whether title is clear and unencumbered; and whether the family has a savings account or other assets indicating thrift and ability to meet and deal with ordinary reverses. I f the family has heretofore had a placed child, where did the child come from, what was his age, how was he treated, is he still in the home ? I f not, how long did he remain, why did he leave the home, where did he go, and what is known concerning him? In all cases both husband and wife should be interviewed to guard against a possible unwilling sub mission o f either to the coercion or objection o f the other in the taking of a child into the home. Other members of family.— I f there are children of the foster par ents in the home, a record should be taken of their age, sex, character, health, and (if o f working age) occupation and income. I f any such children are not in the home the reasons for their absence should be stated. I f any persons other than the husband, wife, and children are in the home, details should be given concerning them and their relationship to the family. Definite information should be procured concerning all hired help in the home, their age, character, habits, etc., in order to safeguard the placed child from any unfortunate results due to intimate association with such persons of an unde sirable age or type. Neighbors.--Inquiry should be made as to the character o f the immediate neighbors o f the family and the probable companions o f the child. Type of child desired and treatment contemplated.— Definite in formation should be obtained as to the type o f child desired, sex, temperament, other requirements and motive for procuring the child. Inquiry should be made in regard to provision for child’s attendance at church and school, sleeping accommodations, oppor- https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 40 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. tunities for social life and recreation, and foster parents probable methods o f discipline. In the case o f boys desired for farm homes, it is important that in addition to the foregoing details the reports should clearly show size and character o f farm ; acreage under cul tivation; whether it is what is known as a milk farm ; if so, the num ber o f cows and other cattle and the methods o f disposing of the milk; the number and character o f hired help ; work or chores,' if any, expected o f child ; willingness to provide for regular attendance at school until the age of 16 ; and the prospect of some compensation within a reasonable time after the end o f the school period. References.— In addition to interviewing the persons named by the applicants as references, the agent should call upon some persons of good standing in the home section who are not related to the appli cants for an impersonal and discriminating opinion o f them. As children should be placed with families o f their own faith, it is necessary that the agent should interview the pastor of the appli cants to secure definite information as to the performance o f their religious duties and the probability o f the child’s receiving the at tention needed for his spiritual welfare. The home.— The exact location o f the home should be stated and in country sections its local name and post-office address; its distance from church and school should be ascertained. The type of dwelling —entire house or apartment—number o f rooms, sanitary conditions, lighting, ventilation, and furnishings should be noted, and also, in a farming section, the number, kind, and condition o f outbuildings. In all cases the upkeep o f the buildings, the care o f the rooms in the home, and the adequacy o f the sleeping-room accommodations of the family should be described. Environment.—It should be stated whether the home is located in a residential, business, or slum district, or in a farming or sparsely settled country, etc. The general type o f the surrounding buildings, by whom they are occupied, their state of upkeep, the community conditions maintained by the public officials, and facilities for recreation and outdoor life should be noted. Travel to and from home.—The lines of transportation to the location of the home, and, if in a country district, the distance of the home from the railroad station and the facilities available for traveling to the home, telephone number, and any other information which may prove a convenience and timesaver in the event of place ment and subsequent visits o f supervision, should be mentioned. I f the home is located in a section where families are separated by great distances and there is no opportunity for the child’s association with desirable companions of his own age that fact should be stated with details concerning the situation. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E ESSENTIALS OP PLACEMENT IN FREE F A M ILY HOM ES. 41 I f the agent should discover any facts not called for by this out line which tend more fully to place the aspect o f the case before the agency prior to decision or action he should include them in his re port. It may be thought by some persons that an agent would have difficulty in getting responsive replies to the numerous inquiries set forth and that the applicants might resent such an extensive in vestigation as too inquisitorial; but if the agent is trained in his work and knows what facts and information he should get he will be able, by engaging the foster parents and others in a general and friendly conversation, to secure the needed replies to most of the questions without direct or specific questioning. VISITATION AND SUPERVISION. Placing out and supervision are not and can not be looked upon as separate pieces o f work. From the time the agency begins the search for a free foster home, procures one, and places the child in it, trans ferring the child as necessity requires, up to the time when the agency is able reasonably to declare that the child no longer needs super vision, all the work done in connection with the care o f ‘that child is a continuing act, which is not complete nor well done i f supervi sion is discontinued prior to the legal adoption of the child or his proper discharge from further oversight by the agency. Within a-month after a child has been placed an agent o f the plac ing-out agency should visit him with a view to learning whether the home fits the child and whether the child fits the home and is a welcome member of it. Thereafter the child should be visited regu larly by the visiting and supervising agent not less than twice each year and as much oftener as the necessities o f the case demand. No person or agency should engage in placing-out work unless prepared to follow this method and provide adequate supervision for the period necessary to insure good results. To place out without such supervision is a most serious and culpable neglect o f the child’s welfare. Before agents start on a tour o f visitation they should consult the case records o f the children to be visited and should take with them complete memoranda concerning the personnel o f the family, the important matters disclosed by preceding visits which call for special attention, suggestions previously made as to needful changes or im provements and promises of compliance therewith, and correspond ence conducted in the interim with regard to the cases. While the supervising visit does not call for as wide a scope of information as is required for the original investigation o f the home and family, it is o f equal importance, since assurance that the con https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 42 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. ditions upon which the approval o f the placement was based are maintained is absolutely necessary. When a child is visited the agent should inquire carefully into all the matters described in the following divisions o f the subject and make a complete report o f his findings, together with such recom mendations as he may consider desirable. The home. I f the agent discovers that the foster family is living at an ad dress other than the one stated in the case record he should record the old and new addresses and make a comprehensive report o f the new home, its location, etc., on the lines followed for first investi gations. He should note any addition to the family. I f hired persons or others are introduced into the home, some information should be secured concerning them and the effect that their presence in -the home may have upon the child. All changes indicating deterioration in the approved conditions o f the home or its neighborhood should be noted by the agent, who should keep in mind the requirements, as to sanitary conditions, ade quate light and ventilation o f living and sleeping rooms, cleanliness and comfort, and the maintenance of outbuildings, if any, in sani tary condition. The foster parents. The agent should learn whether the foster parents’ interest in and affection for the child are well established and likely to continue. I f there is any dissatisfaction with the child the agent should find out its cause, and if there is any possibility o f adjustment the agent should give the matter immediate attention and not await action by the agency. (The agent should not limit his service to gathering * information ; he should be able and willing to contribute helpful and constructive advice to both foster parents and child.) I f the situation indicates that adjustment is impossible the welfare of the child demands immediate removal and a new home. Other items that should be noted are methods of discipline ; atten tion and care in illness ; interest, and helpful assistance in religious and scholastic training; in the case of older children willingness to give some financial recompense for services and to train and encour age in habits o f thrift; and any changes in the religious, social, or financial status of the foster parents. I f the foster mother? from either choice or necessity, engages in any regular or continuous occupation outside the home, thus depriv ing the child of his most pressing need, constant motherly care and attention, the child should be removed. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E ESSEN H A L S OF PLACEMENT IN FREE FAM ILY HOM ES. 43 The child. The agent should carefully ascertain and record all the facts bearing upon the health, contentment, happiness, and proper training and general welfare of the child, particularly with respect to the follow ing: Health.—I f the physical or mental condition o f the child is found to be impaired, it is the duty of the agent to discover the nature of the trouble, whether the child is receiving medical care, and, if so, the opinion of the physician as to the possible outcome of his treatment. I f the family is unable or not disposed to furnish the medical care and attention necessary, the child should be removed at once. Bodily comfort.—I f the child lacks a proper sleeping room and equipment and he has not a sufficient supply of underwear and out side clothing and shoes, or if his bodily comfort is neglected in any manner, arrangement must be made by the agent to correct such conditions; and if this is found impossible the child should be re moved. ' • Contentment and happiness of child.—I f the child is in a good home with affectionate foster .parents there is no reason why he should be unhappy or discontented. If, therefore, the agent learns or feels from contact with the child that he is unhappy or discontented it is absolutely necessary to take immediate action to remove the cause of his being so; and if this can not be done the child should be transferred to another home. Conduct, reports, complaints.—I f reports or complaints are re ceived concerning the conduct of the child they should be thoroughly investigated. It is quite conceivable that the act complained of may in some instances be a reaction against unreasonable and extreme methods of discipline, inability to guide and direct, laxity or entire neglect o f proper discipline on the part of the foster parents, or deprivation o f recreation and o f a reasonable amount o f outdoor life and pleasure. Whatever the cause may be it should be discovered and adjusted by the agent. Scholastic training.—The agent should exercise great care when visiting a school and interviewing the teacher with regard to the child not to provoke neighborhood or school gossip or disturb the relations between the foster parents and child, particularly where the latter believes that his foster parents are his real parents. In such cases, the agent should refrain from identifying himself as a representative of the agency to any person outside the immediate family of the child, and from doing or saying anything in the pres ence of the child which might cause the latter to learn his true rela tion to the family. 72693°—26----- 4 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 44 FOSTER-HOME CARE FOR DEPEEDEET CHILDREN. Complete details should be secured, for the use of the office force, as to the location and character o f the school, with information as to the school period, name o f teacher, attendance officer, grade progress, attendance, and home assistance. Special care should be taken to note any failure to send children to school for the opening sessions, as the habit o f entering school a month or six weeks after the be ginning of the term can not fail to prove detrimental to the progress of the pupil. It is not sufficient to say in the report that the child’s attendance at school is regular. The report must state whether the child attends every day during the school session. I f the child does not do so, an explanation must be made as to the absence and the cause for it. I f the cause is one that is inexcusable, provision should be made to change conditions at once. When making a report con cerning the fact that the agency’s ward has ceased going to school the agent should not use an indefinite term such as “ finished,” as this is meaningless, but should state definitely why the ward no longer goes to school and give his class standing or grade when he left. Foster parents and wards should be induced to extend the educa tional period as far as possible, as a means to their mutual advantage. It would be difficult to establish any standard by which every child may be judged as to his proper grade in school It is also difficult at times to discover the cause of retardation, many children develop slowly, others slowly up to a certain age and then quickly. The agent can not be expected to be a wizard in dealing with this subject, but he should resort to every means available to discover whether the child’s retardation is due to any physical or mental condition which may be cured. In coming to a conclusion in regard to what appears to be retardation, he should bear in mind that many if not most o f the children placed out have been neglected or deprived of the training they would have received in normal homes and that in many such eases what may appear to be retardation, as it is com monly understood, is nothing more than the result of neglect and lack o f training before they came under the care of the agency. As the agent should have some guide for his inquiries and investi gations with regard to ages and grades the following table, pre pared on lines recognized by the Board of Education of the city of New York as representing average conditions in the schools of that city, is submitted for guidance; School Grade Table. 678LO- 1 1 7 years____________________________________________ 8 years-------------- -------------------------------------- --------------9 years----------- -------------------------------------------------------years------------ ------------ ------------------------------------------- https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 1 A ,1 B ,2 A ,2 B . 1A, IB , 2A, 2B. 2A , 2B, 3A, 3B. 3A, 3B, 4A, 4B. 4A, 4B, 5A, 5B. TH E ESSENTIALS OP PLACEMENT IN FREE FAM ILY HOM ES. 11- 12 yeans________ 1 2 - 13 years__ „_____ _ 1 3 - 14 years__________ 1 4 - 15 years_________ _ 45 --------- ----------------------------------------------- _ 5A, 5B, 6 A , 6 B. -------------------------------------------- ------------- 6A , 6 B, 7A, 7B. --------------------------------------- ----------------- 7A ,7B, 8A, 8B. -------------------------------- 8 A, 8B, first-year high school. Instructions issued in 1912 by Dr. William H. Maxwell, city super intendent o f public schools o f the city o f New York, showed the upper limits o f the normal age in regular grades as follow s: First year_________________________ Second year_________________________ Third year__________________________ g 9 20 Ages. Fourth year_________________________ Fifth year____________________ t_____ Sixth year__________________________ u 12 13 As the standards are not alike in all States or cities, agents using this table may have to adapt it to local terms, but in reporting on and dealing with conditions found in such cases they should refer to them in such manner as will identify them with the corresponding period or grade of the foregoing table. Religious training.—1Î it is important that the child’s bodily com fort, schooling, and general material welfare be carefully conserved, how much more important to conserve his spiritual welfare. In or der that the child may receive proper spiritual training the agent should carefully inquire into the attention given to such training by the foster parents and to the foster parents’ observance o f their religious duty 5 example is more effective than preaching. Conditions o f neglect or indifference as to religious training should not be al lowed to continue. In adjusting difficulties arising under such con ditions the agent should approach the task prudently and tactfully and if necessary secure the cooperation o f the pastor o f the family in doing so. I f all efforts fail to secure the necessary result the child should be transferred to another home. Labor cmd compensation.— The future welfare and interests of children who are placed out demand that serious consideration be given to the question o f work by the children. In arriving at a conclusion as to what action should be taken with regard to procuring reasonable compensation for the labor o f the child the agent should be guided by the following suggestions : I f the foster parents give to the child the same consideration that they would give to a child o f their own, keeping him at school in definitely, providing him with all the advantages of a high-school or college education, and expecting o f him only such household du ties as would fall to the lot o f any young person growing up in a family, the question o f wages should not be raised. If, however, the child is removed from school as soon as the law allows, and all his time thereafter is taken up by labor in behalf of or for the material benefit o f the foster parents, some provision should be made to secure for him a compensation for his services https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 46 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. The amount o f the initial or progressive compensation will have to be regulated by the circumstances in each case ; the age o f the child, the length o f time he has been in the home, the care and affection bestowed upon him, the amount and character of the services or labor, are all important factors in arriving at a decision. The time when such compensation should begin is another matter which will have to be regulated by the circumstances in each case. It seems fair to assume, however, that the child should begin to receive wages not more than one year after he leaves school and begins to devote his entire time to his foster parents, doing work which otherwise they would have to pay for. The matter o f vocational guidance should also receive attention, especially in cases in which the child, though remaining in the home, secures outside employment. Savings.—I f the child is encouraged to be industrious and secures compensation for his labor, the agency has not completed its work unless it develops in him a desire to save a reasonable proportion of his earnings. The surest and most dependable method of develop ing the saving habit is the opening of a personal account in a savings bank. Substitutes for this method should not be accepted. Foster parents may say that they will care for the child’s money and that it may be drawn as desired. It is bad policy to make the foster par ents the banker and debtor o f the child. The growth of such an in debtedness is sure to breed trouble. The child lacking possession of his money or the bank book may never really acquire the sense of ownership. The agent should make the foster parents realize, in a manner which will not give offense, the necessity for the adoption ol the savings-bank method. After the bank account has been started the agent when visiting the home should question the child concern ing the matter, giving such advice and encouragement as may be necessary to keep his interest and desires centered in a successful growth and continuance of his funds in the bank. The agent should not accept promises of future compensation or remembrance in wills in lieu of adequate or satisfactory wage for service; nor should he accept the now generally discredited promise of generous compensation when the child attains his majority. W ith out question of the honesty or motives o f those who make such offers, the fact remains that promises to pay and to provide compensation by will are dependent for fulfillment upon the integrity and the ability o f those who make them and are often ignored for slight cause; in some cases a reason for breaking them is provoked. The further fact that there is no certainty as to the continuation o f the child in the home or that the home will remain intact or desirable for the period covered by the promises makes it quite obvious that https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E ESSENTIALS OF PLACEMENT IN FREE FAM ILY HOMES. 47 these methods o f meeting the financial needs and rights o f the child should not be accepted. General observations. I f the agent discovers when visiting a home that the child has run away, it is his duty to use every means possible to discover why the child left and where he went. It is much easier for him to secure such information by local inquiries and interviews with the com panions o f the child, and he is more likely to succeed by this plan of investigation than by depending on correspondence. He should exhaust every local opportunity o f locating the truant and discover ing the cause o f his departure before leaving the neighborhood of the home the child has abandoned. I f a child has been in an ideal home with excellent foster parents for a period o f five or more years and conditions indicate a continu ance of such favorable conditions, the number of visits may reason ably be reduced to one in each year, to be supplemented by a system of correspondence which may satisfy the necessities o f the case. The agent should never leave unadjusted conditions in the home on the assumption that the agency can settle them. Since he is on the ground and has the opportunity personally to get all of the facts available and necessary, it is his duty to exhaust every possible means to settle such matters. LEGAL ADOPTION. It has recently become quite a fad among a large number of en thusiastic and well-meaning persons who lack accurate knowledge concerning the subject o f legal adoption, to look upon that method as the best one for adjusting any and every problem arising in con nection with dependent children. But the possibility—it might reasonably be said the certainty—exists o f disastrous results, not only to the foster parents but more particularly to the child, if the caution necessary in the procedure is ignored. It is nothing short o f a crime to prey upon the distress and despair o f a parent suffering from extreme poverty or serious illness for the purpose o f securing the surrender o f a child for legal adoption. The proper procedure in such circumstances is to exert all possible means to help the parents to secure a return to normal conditions where the relations o f parent and child may be maintained in the manner intended by God and nature. Another activity in this line is the increasing policy o f separa tion -from his mother, by legal surrender, o f the child born out of wedlock, the surrender in many cases being planned before the birth o f the child, who is thus deliberately and criminally robbed of his https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 48 FOSTER-HOME CASE FOR DEPENDENT 'CHILDREN. birthright— a mother’s nurture, care, and love. There should be a law in every State in the Union prohibiting the legal separation o f a child from his mother for at least six months after his birth. Persons undertaking to arrange for the legal adoption of a child should realize the necessity for giving due consideration to all aspects o f the rights o f parent and child before taking any steps in the matter. They should know that mere surrender o f the child, even if such surrender is properly executed (which is not always the case), does not carry with it the right to consent to legal adoption; that the adoption may be legally and successfully attacked i f the re quirements o f the law are not observed; that the so-called abandon ment o f the child as a basis for the right to proceed with legal adop tion is subject to review; that the parent is entitled to his day in court and, if he can show that he did not intend or deliberately plan to abandon his child and that his doing so was the result of poverty or illness and consequent inability to meet his obligation at the time, it is more than likely that his right to his child will prevail. The foregoing reasons, and many others which might be cited, are sufficient to show that only those well trained in the procedure of adoption and possessing a broad, sympathetic view o f the natural needs and rights o f parent and child should engage in the work. In any event there is absolute necessity for avoiding precipitate action. I f it be deemed necessary to safeguard the interests of the placed-out child by careful investigation o f the character o f the foster parents and their home, and long-continued supervision o f the interests o f the child after placement, is it not equally necessary to make the same type of investigation and conduct the same kind of supervision for a probationary period o f at least one year before permitting legal adoption? DISCHARGE FROM SUPERVISION. As a general proposition, supervision should not cease until the child has attained the age o f 2 0 years. This standard does not apply to cases disposed o f by adoption; the agency’s jurisdiction automatically ends upon completion o f the legal formalities o f adoption. Nor does it apply to such ex ceptional cases as may arise from time to time in which it becomes desirable, because o f unusual conditions, to cease visitation in the interest o f the future welfare o f a child. Such conditions might exist when the child has been living for a number o f years in an ideal home, under the most favorable conditions, believing that his foster parents are his real parents, and a strong bond o f affection exists. The necessary publicity o f visitation by the agent might in such a case result in breaking up existing relations. These https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E ESSENTIALS OF PLACEMENT I F FREE FAM ILY H OM ES. 49 cases, however, will always be small in number as compared with the whole, and can not be used in fixing the period for necessary supervision. It has been found by experience in dealing with children who are not in their natural homes—those o f their parents—that the most critical period in the lives of such children lies between the ages o f 16 and 2 0 in the case o f boys and between the ages o f 14 and 2 0 in the case o f girls. It is during this period that the child begins defi nitely to manifest that spirit o f youthful independence and disre gard for authority whieh results so disastrously in some foster homes which lack the tempering affection o f father and mother found in the normal home. In such cases the aid and advice of the agent are needed to adjust the difficulties and restore harmony. It is during the same period that the boy and girl develop an earn ing capacity which should be properly directed, and for which recognition should be secured by procuring for them a wage com mensurate with their services and with home conditions. Such a wage will give the child and opportunity to put something aside for a possible break in home conditions or for some other adversity. Where such recognition is denied, children should be removed and placed in other homes where they will receive adequate recognition and compensation. Foster homes are subject to the same fatalities as befall those of normal type. Death, sickness, adversity, or other causes may lead to the breaking up o f the home, and as a result the child placed in the home may be forced put into the battle for existence at an age when a boy or girl is unable to make the struggle unaided. Again, intemperance or other adverse influences may enter the home and cause it to become so disorganized and unsafe as a shelter for the young that a child previously placed in it should be removed. It surely can not be claimed that boys or girls o f immature age are competent to meet these adverse conditions and make proper provi sion for themselves unaided. It should be and is the duty of child placing agencies to anticipate such results by a continuous supervi sion up to a time in the life o f the child when they may feel certain that the work they undertook in placing the child in the home o f strangers is completed. AFTERCARE. Complete service in placing-out work requires that at the closing o f a case and the discontinuance o f supervision the agency should send, to the foster parents an acknowledgment o f its appreciation and thanks for their cooperation and assistance in the support and train ing o f its ward, and to the ward a friendly announcement o f the https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 50 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. closing o f the case and the statement that this procedure should not be looked upon as the act o f bidding him farewell. He should be advised to remember with gratitude the care and affection bestowed upon him by his foster parents and should be encouraged to con tinue to look upon the administrators o f the agency as friends to whom he may appeal at all times when the service o f a friend is needed. The agency should be willing to assist its former wards whenever adversity or trouble of any kind prompts them to appeal for advice or aid. ADMINISTRATION AND RECORDS. Since the work in which the placing-out agency is engaged is of such vital importance to the complete welfare o f its wards, it is neces sary that it should be administered by persons carefully trained in the service and under methods and systems o f records which will insure an adequate source o f information and guidance. The executive and agents o f the society are the persons upon whom the success o f its work depends. While college education adds to their equipment, for persons possessing good judgment and intelli gence, special training in social service, and a fairly good knowledge o f human nature, and broad-minded enough to enable them success fully to deal with the many types o f people they will meet, a good general education may suffice. . As the details o f the history of the child and his parents and the re sults o f the investigation o f the foster parents and their homes and o f the visits by the agents for the supervision o f the child in the home are constantly necessary to meet legitimate inquiries concerning the child and his care or to solve problems or shape methods during the period o f supervision, a complete system of records is necessary. When children are legally adopted certified copies o f the court orders of adoption should be procured and filed with the records o f such children. The records should be kept in such form as to make it possible to secure promptly complete information concerning all the children placed by the agency, their foster parents, existing conditions in the homes under supervision, and details as to discharges from super vision and after care. The work o f the agency is confidential in character, and great care should be exercised in giving information concerning its wards or foster parents. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE CHILD IN THE BOARDING HOME. M a r y E. B oketz, H m d -worker, H om e Bureau, H ebrew Sheltering Guardian Society, H ew Y o r k . Success in dealing with dependent children depends upon the at titude o f many beside the child himself and his caretakers. What good to try to impress upon the child that dependency is not in it self a stigma, if the attitude o f the community implants in him a sense o f social inferiority? No child should be considered dependent except in the sense that all children are dependent. Is not the rich man’s child also dependent? I f the idea that all children are on an equal footing so far as dependency is concerned could be made general it would go a long way toward eradicating that feeling o f inferiority which is the curse o f the charity-bred child.' Taking children out o f in stitutions and caring for them in family homes will only partially solve the problem. Aside fi om what can be done in changing the community point o f view, the agency caring for children must get away from the old idea o f alms and personal philanthropy. Never mind whether the child is grateful. The child is entitled to all that can be done for him. It is his birthright, and the child-caring agency merely acts in loco -parentis. But teach the child that he is expected to make the most o f his abilities and expect him to take as large a share) o f social responsibility as he can when he grows older. THE AGENCY’S SERVICES TO PARENTS. With the hope of helping children in such a way that no f e e l i n o o f inferiority may develop in them, the Home Bureau o f the He° brew Sheltering Guardian Society has offered its service at cost to self-respecting wage-earning parents. Labor groups and benevo lent orders have been rather impatient with private philanthropy and have frequently started their own social service. They are the inbetween group who suffer through their very self-respect; they are not rich enough to hire specialists nor yet poor enough to accept their services gratis. The labor groups have, therefore, taxed them selves in order to provide at cost medical service, convalescent serv ice, and recreation, and more than one labor group and benevolent order are planning national orphan asylums. The labor group has 51 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 52 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. a rich field available among its own membership for the placement o f children o f workingmen in the homes o f brother workingmen. The home o f a mechanic is a very satisfactory place for children. His work is likely to be continuous, his wage is steady, his stand ard o f living is regular. He rarely looks for relief o f any sort, and he makes the backbone o f society. His home is a simple, health ful, normal environment, and his children can go as far as their own abilities and the opportunities available in the community will take them. Children’s agencies should help educate self-respecting workers to take care o f the dependents o f their own group; to show them that high-grade supervision o f children in foster homes is worth paying for; and until they are ready to do it for themselves, using modern methods, to offer such service to them at cost. Show the working father that placement of his children in a supervised home is a form o f protection for the children as well as for himself. The fact that this service is supplied at cost for the child whose parent can support him will react favorably both upon the parent and upon the so-called dependent child, for no distinction should be made between the types. o f homes offered to the children who are charges o f the agency and to those paid for by their parents. Neither should there be any dif ference in the kind of clothing supplied them, even though the parents’ rate include the cost o f clothing. FOSTERING THE CHILD’S SELF-RESPECT. How many child-caring agencies realize how much a child’s ap pearance means to him in the fostering o f his self-respect and in dividuality? The old method was to bring the child, ragged and dirty, to the foster home, in the hope o f arousing the pity o f the foster mother for the “ poor orphan” and so persuading her to keep him. That is psychologically wrong. It breeds the idea that “ any thing is good enough for the poor orphan.” I f instead, the child is bathed and clothed from head to foot in new clothing which he, him self, approves and is proud of, before he is taken into his foster home, the agency has gone a long way toward engendering respect for the child on the part o f the foster mother. It is not an unnecessary and foolish thing to spend time and money on trifles for birthday presents. The little gift from the office o f the agency means much to the foster child, and it is well, repaid. It calls the attention o f the foster parents to the important fact that another year has passed in the life o f the child, and they can hardly help taking some cognizance o f that fact themselves. It brings the same message to the child’s own parents, who in their misery may have overlooked this seemingly unimportant event. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE C H IU ) IN TH E BOARDING H OM E. 53 Workers with dependent groups frequently lack the ability to make the dependent” retain something o f the feeling o f independence and ownership which every human being is entitled to have. The re lationship between the agency and the child is artificial at best; but the child-placing agency can come nearer to offering the child a normal environment than can the institution, and can more easily avoid the danger o f total pauperization o f the individual. In the home children learn, as children should, the value and cost o f things, the facts o f life and death, joy and sorrow. Even private schools are introducing make-believe stores and letting little children wash dishes, cook, set the table, and so on. Is it not more healthful for the children to get this experience in a natural rather than an artificial way? In a foster home where the mother usually does all her own housework, Irene is sent to the store knowing that she must get from the butcher a chicken weighing just 3 pounds for Friday night’s supper and how much Auntie can afford to spend on it. “ She has seen tired eyes bent over the mending basket. She knows where the patches and buttons come from, and she has seen Auntie’s old skirt suddenly changed into a beautiful new middy blouse for herself. She has seen Uncle make a cover for a chair that was worn out, from a remnant that cost only thirty-nine cents.” Adele and Ethel learn all the nice little amenities that are expected in the family. They go visiting with grandma and are sure that her daughter has the cunningest baby in the world.” They know when to send New Year’s greetings, how to go visiting alone, and how to save and spend money. Also, when grandma’s back aches after a particularly try ing wash day each tries to get there first and spare her from bend ing over to unlace her shoes. No matter how short a child’s stay is in a foster home, for that period he or she must be a recognized mem ber o f the family. THE CHILD’S PARENTS AND THE FOSTER HOME. The supreme importance o f the natural tie between parent and child is often overlooked in work for dependent children. The worker earnestly interested in helping the child may see as a neurotic or apparently worthless individual the parent whom the child reveres as the wisest and best person in the world. This reverence for parents is in a sense an egotistic instinct; i f a child’s parents are worthless, so, he may feel, is he. His own self-respect is tied up with the feeling that his parents are “ all right ” ; and disregard o f the child’s attitude may do him an irreparable injury. A special effort should therefore be made to maintain close connection between i the child, the foster parents, and the child’s own parents. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 54 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. Rose, an attractive child, was placed in the home o f a childless woman. No one could have received better care than did Rose in this home, yet the arrangement did not work. The foster mother, with no children o f her own, yearned for the love o f a child. She knew that Rose had no mother, and took her for that reason. But Rose had given to her father the love due both parents. She ap preciated her new home and tried to respond to the foster mother. Her father, in an effort to cooperate, visited her less frequently, but instead o f matters growing better, they grew worse. A real antagonism developed, and yet Rose herself could not tell the cause. W hy not capitalize that love of Rose for her father and make it a real power for good and progress? Place Rose with a woman who has children o f her own, who lives very near the father and who is willing to have the father visit her home daily, if he so desires. This was done, and the child not only showed the same affection for her father but in her great joy had more than enough to share with the foster family. An agency must make a special effort to counteract the natural ten dency of the foster mother to belittle the parent who has failed. The worker may attempt to interest the foster mother in a child’s neurotic mother by explaining that perhaps she and the visitor herself would have done no better had they experienced all the strain that this woman had to live through before parting with her child; or she may suggest that a father seems uninterested only because he is ashamed that he can not do the things he would like to do for his child. The agency should strive to make the father realize that what his little girl needs and what no one else can supply is the knowledge that he remembers and cares for her. The agency may tell him: “ Your little girl is properly clothed and fed, she re ceives good medical care and all things needful that money can buy. But it is you that she wants, and a little gift from you cost ing only a few pennies will make her happy because you have remembered her.” The agency will be repaid tenfold for keeping up the interest of the parent in the child and that o f the child in the parent. A growing association between parent and visitor, constant interpretation o f the parent to the foster mother and of the child to the parent, and above all respect for the natural rela tionship between parent and child—these are matters o f the greatest importance in proper placement. THE ATYPICAL CHILD. Most placed-out children have been through tragic experiences; so when one talks of “ the normal home for the normal child ” it is necessary to stop and ask what constitutes the normal child and the normal home. Certainly almost everybody, and perhaps to a greater https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E CHILD IK THE BOARDING H OM E. 55 degree than the average every one of the placed-out children, has kinks in his personality that need straightening out. The question, then, is what can the normal home do for the child who is atypical in his social experience and in his physical and mental development? Ih e normal boarding home can do and has done much for the physically retarded child. The foster mother understands orders in regard to physical care and regulation of diet and habits. In my experience the foster mothers have taken for granted that they them selves will care for the children in all illnesses except contagious diseases and very severe diseases, such as pneumonia. Is it fair to talk about “ the commercial foster mother ” ? Only a beginning has been made, however, in helping the mentally handicapped child. Yet it can be understood that the emotionally unstable or mentally retarded child would find life even more diffi cult in a large group than in a family, unless in a highly specialized environment. The psychiatrist who has made a study of about 50 such children formally under the care of the home bureau has been impressed with the “ marked physical improvement o f these children under foster-home care ” but also with “ the marked lack o f improve ment in regard to emotional control under the same care,” He says that “ it is asking too much of a retarded or unstable child to sit through five hours of mental work a day. After five hours of strain * * * he is bound to be a source o f trial and annoyance to foster mother, neighbors, and playmates. I f the mental activities of the emotionally unstable child were to be combined with rest periods, manual work, and play, the normal home might do the rest.” But the suggestions of the psychiatrist can not be carried out by an agency without the cooperation o f the school system. The schools o f New York are doing much to help children with special problems. For “ cardiacs ” all stair climbing is avoided, and there are rest periods, mid-morning lunch and dinner served at the school, and con stant physical examination. For the child o f limited vision, sightconservation classes are provided. These are steps in the right direction. The physical problems are more tangible, but the needs o f the emotionally unstable child are none the less serious. For one group of maladjusted children, help has already been given. Educators are beginning to realize that a child who day after day endures the ignominy o f sitting in a class with much younger children, is apt to have “ a chip on his shoulder.” To-day, in New York City, it is possible to place such a girl or boy in a vocational class that has its headquarters in a high school, where all association will be with girls and boys of the same age. Academic subjects are taught this group for only a short period each 'day, and their manual work is shared with the high-school children. This program has more than once changed a troublesome girl or boy into an attractive https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 56 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. one. But these facilities for the extremely retarded and the defec tive child can not help the neurotic or the’ superbright child, and these children also must have opportunities provided to suit their special needs. Some time ago Reuben was brought to the agency by his father, a workingman, merely because he was a bad boy and the father could not manage him, although his older brother got along well. Reuben had heart trouble; but in his father’s opinion that was only a minor matter, and he had been given treatment at clinics only about once a year. Mr. K was surprised when the agency went out of its way to find a home for Reuben where he would not have stairs to climb and where his diet would be supervised, and to enroll him in a school where he could try out various vocational subjects in addition to his school work. “ W hy,” said he, “ do you take so much interest in my child? You are nothing to him, and I, his father, am ignorant o f all these things.” The boy is now self-sup porting in part. Two years ago Mr. K would have looked forward to the time when Reuben could come home and help support the fam ily ; but he has been educated to understand that the child, not him self, should have first consideration, and now asks that Reuben be left where he is, despite the fact that he will probably have to help pay the boy’s expenses. It took three foster mothers and one visitor to help George grow up. George came to the agency at the age o f 1 2 , having been dis charged from a hospital for the tuberculous where he had spent seven years. Through growing up in this abnormal environ ment he had become a source o f annoyance and disturbance, at first overpetted and then disciplined. A t 12 he was bright, quick-tem pered, cruel to younger boys, and yet almost invariably loved by the adults who knew him. He was handicapped by a glass eye and two shortened fingers, the results of playing with a shell; and he wore a brace because of a tuberculous hip. What wonder that people felt sorry for “ poor Georgie ” and were inclined to pet him. But his foster mother, though no less sorry for the boy, realized his ten dency to self-pity and adopted a different attitude. All through the period that he spent in her home, both she and the visitor o f the agency impressed upon him that he could make good like other boys, but he would have to make more effort and show that he had more ability; and if he failed it would not be because he was phy sically handicapped but because he had not the mental power nor the stamina to make the effort. Stimulated by this treatment, George showed great improvement and he was then placed in a home where his further special educa tion could be considered. When at the age o f 15 he entered high school, so well had he overcome any tendency to self-pity that he https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E CHILD IN TH E BOARDING H OM E. 57 made the baseball team—brace and alL He is now taking a special agricultural course, which seemed the best thing for him and to which he was attracted. Before being entered for the full three-year course he was sent fo r a six weeks’ vocational test and his teachers found him a very apt pupil. Each o f the three homes in which he has lived has been a factor in his life, and his foster mothers take the place o f a family o f his own. He visits each foster home, but does not make comparisons among them. They are all his homes, and for each he has a “ soft spot.” THE USE OF A TEMPORARY HOME. Many replacements might be avoided if the responsible agencies made themselves thoroughly familiar with the children and their families and also placed the children temporarily in observation homes. By observation home is meant not a temporary shelter with a mation in charge but a boarding home with a woman who knows how to receive strange children, who during their stay with her can interpret them to the visitor, and who can explain to the children what is going to happen to them and prepare them for placement. Temporary placement in an observation boarding home is much more satisfactory than immediate placement in a new home with a woman who very naturally expects from the child an expression of affection which he can not give while the wound of separation from his own home is still fresh. The observation boarding home is far preferable to the shelter or diagnostic cottage in that the child is living in the community, going to a public school, and mingling with other children o f the neighborhood, much as he will do when finally placed. And a better opinion can be formed as to the sort o f ad justment he is likely to make in any given environment. From this observation home the child may “ go on a visit,” osten sibly to spend a week-end with friends o f the agency’s worker, and if he is returned to the temporary home he is spared the feeling that the new home did not want him. After such a visit, the foster mother is approached and the child is talked with separately. Even when it does not seem advisable to make the placement, the child has almost always enjoyed his visit. The foster mother, though she may decide that the child is not the one she wants, will enter into the spirit of entertaining a guest and will make the few days happy ones. I f this method is used the child will not look on changes as terrible experiences, and the foster mother will be quite ready to try again. THE VISITOR’S FUNCTION. The importance o f the personality of the agency’s visitor can not be overemphasized. The visitor has the opportunity, to make or mar a child’s environment. Is she an “ investigator ” from whom https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 58 POSTER-HOME CARE FOR DEPENDENT CHILDREN. the foster mother feels she must hide things, or is she a friend ? One visitor had left the staff o f the home bureau, and when the new one came to Mrs. X she was greeted w i t h - “ W e are so glad to see you. Miss E meant so much to us. W e could tell her everything, and she brought us news from the outside world—told us o f some o f the mis takes and successes o f the other foster mothers. W e hope you wi come often and be as good a friend.” This is a long way rom e old idea of the u snooping investigator.” . . . . Close cooperation between foster mother and her visitor is a mat ter o f growth. Giving orders will not bring it to pass. Let the foster mother have a chance to make an idea a part o f herself; only so can it be made certain that she will accept suggestions. Does not any one feel better about carrying out an idea when it seems to be all his own, even though it has really originated elsewhere? Ih e tactful visitor drops a suggestion and at her next visit the foster mother tells o f a new idea she is working out. Perhaps the best word to sum up the visitor’s function is inter preter.” It is her function to interpret the child, to the foster parent, the parent, and the teacher, and to interpret the parent to the foster parent and the child. For this it is necessary, first, to have available detailed information as to the conditions leading to the separation of child and parent, and second, to be amply en dowed with human understanding and imagination. Frequently the visitor makes the mistake o f trying to do every thing .for the child herself. Things should be done for the child through the foster mother as far as possible. I f the child is to be brought to the office for examination or taken to the hospital the foster mother should do it, unless she can not possibly leave her home. Suggestions as to the child’s care and training can be made sometimes to the foster parents and sometimes to the parents. THE ATTITUDE TOWARD BOARDING HOMES. The agency must not diminish its efforts to change the point of view o f the community toward boarding out, if the plan o f child care in foster homes is to be promoted. The notion is still prevalent that a foster mother who receives pay is either in dire need or so mercenary that she would starve the bodies o f the little dependents. Can it be wondered, then, that many a woman who might be inter ested in becoming a foster mother keeps that fact to herself? One woman said, “ I would like to take a child, but my husband says that people will think he can not support me.” One foster mother had lost two babies in the old country. She had always missed them but had never thought o f taking a child into her home. She could not adopt one and would not board one https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE CHILD IN THE BOARDING H OM E. 59 because it was not considered the ‘‘ nice ” thing to do. Yet she was really anxious to care for a child and had much to offer one. Because o f this misunderstanding, years passed before a child had the benefit o f her home. Recently she saw one of the boarded children in the home o f a friend whom she respected very much. She has now taken a little boy. How she wishes she had done it years a go! Another foster mother exclaimed: “ W hy didn’t the home bureau make me understand it 15 years ago ? ” Much has been said about the difference between free homes and boarding homes. The popular idea that all boarding mothers are commercial and all mothers who offer free homes angelic, is a grave hindrance to child-placing agencies. The plan o f placing children in boarding homes suffers because this wrong idea in the community makes it more difficult to attract the right sort of foster mother. On the other hand, the easy acceptance of a free home because it is a free home is more likely to be detrimental to the child. After all, motives are mixed. The foster mother who frankly says that she can use the money may realize the obligation she has assumed as clearly as the one who offers a free home, and may be just as much interested in the child’s welfare and just as kindly. The woman who says she simply wants to give a child a home may also have a measure o f self-interest. Whether with free homes or with boarding homes the questions to be decided are: What is the per sonality of the foster mother ? What is the family make-up ? What are her own children like? What do the friends and neighbors think o f the family ? Whether the woman is paid or not is imma terial. The aim must be to secure a good foster home, and then make satisfactory adjustments. But it is undoubtedly a little easier for an agency to supervise and give instructions to the foster mother i f she receives some remuneration than if she offers a free home. The foster mothers should be told that they, as well as the agency’s staff, are paid workers; theirs is in a larger sense a voluntary service without which the agency’s work would be lost. The foster mothers come to the office of the agency to get things that belong to the children, and the agency serves them on behalf of the children. I f they have had any feeling of shame about boarding the children their attitude will change, and they will become willing to interest members o f their own families— as well as lodges and sisterhoods— in the matter and thus become the greatest sources o f assistance in finding new homes. The position o f foster mother must be recognized as a dignified one. Tell the foster mothers and make them feel that they are, with you, students—coworkers in child- care. Organize the foster mothers into a league. Do not be afraid o f having them meet 72693°—26----- 5 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 60 FOSTER-HOME CASE FOR DEPENDENT CHILDREN. together. You can keep the plane o f the meeting high, and there need be little worry as to the danger o f petty gossip. Keep them informed o f general child-welfare activities. Teach them to be proud, instead o f being ashamed, by making them feel that they are among the chosen few. “ Just think,” says Mrs. ft, a out of 300 homes offered they use only 50, and mine is one o f the 50!” Frequently the foster mother remains a factor in the life o f the child’s family long after the organization has ceased to supervise the case. Mrs. H , who had not visited the agency for three years, returned to ask for a child to care for and told o f the two little^ boys who had been in her care five years before. She had visited them in their home, had explained with great patience to the step mother things which she had learned about the proper approach to them, and had been a constant go-between for the children and the stepmother. In fact, she. had been doing case work o f a high type without either pay or recognition. I f such interest can be nurtured in foster mothers the agency ceases to do merely a child placing job and becomes a source o f unending helpfulness in the community. RAISING THE STANDARDS OF THE FOSTER HOME. To many foster mothers the periodic mental, dental, and physical examinations seem at first unnecessary. One foster mother put it thus: “ When my children were young, I took them to a doctor when they were sick, to the dentist when they had a toothache. You tell me to bring these children to the doctor whether they are sick or well. Even if they are not thin, you keep on weighing them. You send them to the dentist whether they have a toothache or not.” But in her expression was a respect for the newer method, and she added: “ I wish someone had told me to do these things for my own children.” Mrs. B was no longer very young when she took Sylvia into her home. Sylvia’s mother was tuberculous and Mrs. B was very glad to take Sylvia to see her regularly and to help make the mother’s last days happy. When she realized that the mother’s days were num bered, she promised that the child should always have a home with her. Her home offered wholesome food and good outdoor life in a community which had excellent school facilities, but it was so woe fully old-fashioned that an American child growing up in it would soon become ashamed of it. The visitor began to explain the need o f attractive surroundings—rugs, curtains, and the other little things that would help make it more o f a home to Sylvia* Now that the foster mother had a little girl— a thing she had never hoped to have— she began to look forward to having her own home instead o f simply https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E CHILD IN' TH E BOARDING H OM E. 61 putting more o f her husband’s earnings into the bank, and to-day she has one o f‘the most attractive homes in the suburban community in which jshe lives. Sylvia has a piano, and on her last birthday she was proud to invite the girls in the neighborhood to her party. So tactfully was this change brought about that the foster mother will probably never suspect that the visitor was in any sense a factor. It is best that the boarding homes should be homes that have not been wrecked by disease or destitution. Aside from the fact that the payments for board are likely to cover little more than cost and that it would be dangerous to use a home that had not an adequate budget for its own needs, there is the more important objection that the child would be removed from one abnormal situation merely to be injected into another. His stay under the supervision o f the agency should be in a home that is intact and has normal relationships. Child-caring agencies are inclined to overlook the opportunity available to them to become educational factors in the community through their influence over the foster mother and her friends. THE RIGHT USE OF PUBLICITY. The right kind o f publicity will not stop with the foster mother, borne day, if not to-day, the work o f the agency will need the backing o f the community; and this will be lacking unless a foundation had been laid by means o f the right kind o f publicity. One organization running with a deficit felt sure that the churches would come to the rescue. The churches did not come to the rescue—because no one had told them o f the work the agency was doing. There seems to be little doubt that social service requires publicity. It would be a pity, however, if all the publicity were centered on the raising o f funds. The entire publicity program should center, instead, around the spreading o f an idea. Make the stories live so that every newspaper will carry them, and you will awaken the type o f interest that can be used later in placing children. An agency that is busy placing chil dren in homes and certain that this is the better method, often fails to realize how very little interest the general public takes in the work it is doing. Almost everyone has known children who had to be taken from their own homes. But few know what becomes o f these children, or have given any thought to the question of-what would be the best way o f caring for them. The value o f publicity should not be measured merely by the amount o f money subscribed or the number o f homes offered as a result o f it. There is another reason for publicity besides spread ing the idea o f foster-home care. Taking care o f a child may be an ordinary boarding job, or it may become a stimulating experience to a woman who as housewife has few contacts with the outside https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 62 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. world; and the agency’s publicity work will be a way o f adding to that stimulus. Even if the newspaper stories were read by no one outside the agency’s own foster-mother group, the effort expended would be well repaid. Such articles give each foster-mother a feel ing that she is part o f a large program. They should therefore be sent to the local papers, so that the foster mothers will be on the lookout for them and will clip them and show them to friends. The interest aroused will be reflected in a finer attitude in the homes and in better standards o f care. SUCCESSFUL PLACEMENT. What constitutes a good placement? Does it mean sending a child to a beautiful home with up-to-date physical facilities and foster par ents who are socially and economically in better than average circum stances?- Not necessarily. A child who is not very bright should be placed in a simple home with good people who do not make many demands on life and will not expect too much of him. It means a great deal to a child o f this sort to be with people who think his remarks bright and who will encourage his limited mentality instead of discouraging him by over-stimulation and over-expectation. The right foster mother and home can be found for almost every type of child, if the agency only has the facilities to look for them. Not every foster mother is waiting to get a blue-eyed golden-haired little girl. Some, if properly approached, will be glad to undertake a difficult task and share in the pride of success with it. It was not expected that the home o f Mrs. S would work so well as it did for Nathan, a boy who came to the bureau at the age o f 9 years. He had a tumor o f the brain and had never gone to school. After he was placed in a home where he would have individual at tention and be sent to school it was found that he suffered from chronic headaches. The home was building him up physically, but he was getting nowhere in his studies. After a thorough examina tion, it was concluded that the headaches were simply a defense on the part o f the child—that the work was too difficult for him. He was taken out o f school- and placed under the instruction of a private tutor, who made little effort to give him information but taught him to concentrate. After three months she felt this end had been aceomplished and suggested that the boy be returned to public school on a part-time basis. The school cooperated and per mitted the boy to attend daily from 1 0 o’clock to 12. A ll went well until the summer. Nathan was then sent to a suburban foster home where there were two younger children, with the idea that in the fall he was to be returned to the city and to the same school. But the visitor noticed a change in the boy in this vacation home. The foster mother in the city had been so fearful for his safety that https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E CHILD IN' THE BOARDING H OM E. 03 his own natural fears were accentuated and he did not dare to cross the street alone, nor to indulge in any games with other children. Ihe busier foster mother in the country sent him out to play with her two little children, and he soon became interested in joining other boys Frequently the foster mother would tell him to watch over the little ones. When schooltime came this boy who had been be set by constant fears asked to be permitted to take the little boys to school. He would have to walk a mile a day in all kinds o f weather. What should the agency do ? After all, he was still a child with a tumor. He was brought back for examination to the hospital where he had had radium treatment for years. The doctor was pleased with the boy’s self-confidence. His physical condition was good, and the doctor advised that the chance be taken. A winter3°1f snowstorms llas come and gone, and the child still thrives* and best o f all, he has a reason for going on, a new faith that he can do the things that other boys do and that he can help a child weaker than himself. This accidental success will become a guidepost o f action in similar cases. Lillian, a little girl of 4, was mentally retarded and, it seemed, ahnost defective When told to sit, she sat, and sat until she was told to stand. She neither spoke nor asked for food. She seemed hopeless. She had an insane mother and a feeble-minded father. The psychiatrist thought it hardly fair to class as defective a child who had never had an opportunity in normal environment. The home available afforded no special'type o f care; but it offered good food and a clean bed, and the foster mother showed a most kindly interest and willingness to cooperate, which were, perhaps, the big gest factors m the situation. To-day the little girl is attractive alert, bright-eyed, and doing well in school and at home. The problem o f children whose care has fallen upon the State or a private agency can not be solved happily for them until society re alizes its obligations to these dependent children. In Dorothy’s case, perhaps, has been achieved what is ardently hoped for in every placement but rarely attained. Dorothy is a part of the family the school, and the town in which she lives. She gives and goes to par ties; she is on the programs of entertainments; she knows when the rent is due. She quarrels with her foster sisters and brothers and saves her pennies to buy them presents. And no one tries to hide the fact that Dorothy came “ from a society.” . The visitor is introduced to neighbors and friends as u the lady who comes to see Dorothy.” The whole relationship is simple and natural. No attempt is made to cover up Dorothy’s past as something out of the way. It is ac cepted, and so is Dorothy. For her, “ no make-believe^, society no make-believe family, no make-believe virtues, but real familv real society, real life.” V https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SPECIAL PROBLEMS INVOLVED IN FOSTER-HOME CARE. L eon W . F eost, S ecreta ry , Children’s A id S o ciety o f D etr o it . In this paper it is proposed to confine the discussion definitely to a few essential features o f the process involved in placement of children in temporary boarding homes. This will include reference to limiting intake by means o f adequate case work, the functions of a case-working department, the selection and preparation of board ing homes, the necessity for adequate records, the basis o f the divi|sion o f work in a large agency, and a few other related matters. What is applicable as a method o f procedure in one locality may ik ® suitable in another. Child-caring societies are ordinarily found to reflect to a large extent the community in which they oper ate. Standards are usually only as high as the public demands; an active and intelligent board o f directors is therefore o f fundamental importance. But the fact that social vision and a high degree o f in telligence are lacking in the board o f directors is no reason in itself why the standards and methods o f an agency should lag, nor is it necessary if the social consciousness o f a community is undeveloped or at low ebb that the agency should reflect this attitude. INTERPRETING CHILD-CARING WORK TO THE COMMUNITY. The child-caring society is not functioning properly i f it does not take into account its own responsibility for molding public opinion. The awakening o f the community is entirely possible through a gradual but well thought out and unsensational plan o f action ex tending over the entire period o f the life o f the individual agency. No reference is now being made to campaigns for raising funds an immense problem in itself, which must be met by means adapted to the psychology o f the people one is attempting to interest. Rather the year-round program o f education o f the community as to the problems o f a child-caring agency should be in mind. The once-ayear campaign o f education for fund raising is certainly not suf ficient, nor is the occasional story chosen for its melodramatic side lights going to put the child-caring organization in proper touch with the community. The interpretation must be dignified (and by this is not meant a dry ” ), illuminative, and continuous. The whole problem o f interpreting child-caring work rightly and con65 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 66 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. sistently is vital, and comparatively few of the existing agencies make full use o f their resources in this field. The appeal for support is very likely to be sensational in char acter, and many agencies have been content to allow public opinion to regard their work in such light. This may prove a boomerang, for public confidence gained through emotionalism and untempered by real understanding is difficult to maintain or to reestablish once the emotional appeal diminishes. The loss is tangible and can be prevented. It must be kept in mind that all social work does not center in the child-caring agency. The work of the society is an important part o f a social program, it is true, but still only a part, and the publicity program must be of such a nature that the com munity will see the society in a properly balanced relation and with the right perspective. Child-caring agencies have too fre-' quently sinned in this respect. The society can not interpret its work to the community unless it understands its relation to other forces. Has the staff really assimilated the problems of the society, or is each member just doing his or her specialized job? Does each member o f the staff thoroughly know and understand the sig nificance of other social agencies of the community, and their rela tion to his own society? Has each a real conception of the com munity and its social resources as a whole and an idea o f relative values? Is the staff itself working in circles? Is the organiza tion as a whole able to interpret itself to the community ? NEED FOR CENTRALIZING RESPONSIBILITY. A society doing child-welfare work from the case-work standpoint usually develops out of local conditions, and consequently all types o f organization are extant among such societies. It seems desirable, whenever the work is o f great enough scope to warrant it, to have at least two rather distinct departments. The first department should be responsible for all family case work done by the society, and as such should control all intake and all releases, since accepting chil dren for care outside their own families is family case work of a most important type. The second department should specialize in the job o f caring for the children that have been accepted by the society for either temporary or “ permanent ” care. There are numerous advantages in having a society so organized, and there are no serious objections except when the small size o f an agency makes such a division o f duties impractical. Any organization or business doing effective work must be able to centralize or place responsibility. Certainly this is the case in childcaring societies, where every detail must be given careful consider https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SPECIAL PROBLEMS INVOLVED IN FOSTER-HOME CARE. 67 ation. In order to approximate good results, the organization must be so ordered that an individual is made responsible for each par ticular phase o f the work. I f the two distinct departments mentioned are postulated, all family case work should be handled exclusively in one o f them. This is important for a number of reasons. In the first place, child-caring societies having high standards o f case work always attempt to make the natural home o f the child suitable, rather than remove the child to a temporary new home. This policy is based upon sound and fundamental principles. A child’s own home, if conditions can be made safe, is better for him than a boarding home. I f good case work seems to warrant a temporary removal, efforts are then directed toward building up the natural home so that the child may be re turned to it. This end should be consistently worked toward wher ever possible, with careful consideration o f the interests o f the child himself, the family, and the community. The reestablishment o f the child’s own home can be accomplished best by a family case worker who is enabled to give her entire time and attention to this sort o f work. The danger o f narrow specialization can be offset by so organ izing the agency that every member o f the staff may become ac quainted with the duties and functions o f every other member. LIMITING INTAKE THROUGH CASE-WORK METHODS. These considerations lead logically to a subject which is con stantly being more and more emphasized in child-caring societies— namely, regulating intake through case work. It is easy to succumb to the fallacy of judging the importance o f a society by the number o f children in its care, or to the temptation to reduce per capita costs by swelling the number o f charges. This perhaps makes “ g o o d ” publicity, but what o f the child? By intelligent planning, a thoroughly high-grade family case-work department can do much to stop unnecessary infiltration. Divided duties and functions, of course, lead directly to a division o f time. A worker who must divide her time between family case work and child-caring work is a specialist in neither, and, in general, expert service can not be ex pected o f her. INVESTIGATION AND RECORDS. A discussion o f what constitutes good case work with families would be out o f place here; information on this subject is available to those who wish to obtain it. But the point o f view o f the child caring agency is just a little different from that of the average case-work agency, and it may be o f some value to bring out a few o f the factors involved. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME GABE FOB DEPENDENT CHILDREN, 68 It is assumed that full face-sheet information will be obtained in every possible case, as well as all information for other essential forms1 used in child-caring work. It is more especially the material which goes into the chrono logical case record that needs to be considered. The steps and general plan employed in working on each family case in a certain child-caring agency are outlined below. It is not intended to offer any extended brief for this particular plan, and very possibly it would not be suitable for all child-caring agencies. From experi ence it was found that, given a number o f case workers, varied points o f view would be reflected in the records. Certain workers tended to emphasize one phase, and the records o f others were apt to be more complete on other types o f information. In order to secure greater uniformity o f method it was found advisable to require that the information gathered in all first investigations be dictated, arranged, and numbered after the following plan: Procedure for Investigation. 1. 2. 3. 4. 5. B rief description o f type o f family. B rief description of conditions in the home. Statement of man (facts bearing on situation). Statement of woman (facts hearing on situation). W h y man or woman really applied for help. (W a s pressure brought to bear on them by other agency or individuals?) 6. H ealth : State, in detail, any physical disability. Name of doctor or hospital caring for man, woman, children. Give reports from doctors, hospitals, clinics, etc. 7. D eb ts: Dates debts were contracted; dates of payments on sam e; dates due and amounts of present unpaid balances. 8. Family budget in detail, showing income and approximate nor mal or necessary expenditures. 9. School reports o f children. The instructions were that if any enumerated point was not covered by the investigation, or if it was impossible or impracticable to make a search at the time for this information, the explanation was to be given under the proper number. In all cases the regular chronological case-history sheets were to show this numbering, so that it would at once be obvious if any point was not covered. The nine points were considered only an irreducible minimum; it was not assumed that the case worker would be satisfied with so simple an investigation as this plan provided for. Under this system the supervisor of case work is provided, very early in the history o f the case, with a concrete statement o f the assumptions upon which the representative o f the society is working. 1 A n excellent collection o f these form s has been prepared by the Child W elfare League o f America. (130 E ast 22d Street, New Y ork) and samples are supplied by the league upon request. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SPECIAL PROBLEMS INVOLVED IN FOSTER-HOME CARE. 69 As soon as possible after certain other supplementary information has been obtained, the case worker is required to state in the record ~ what plan she is following. In the left-hand margin o f the form used the word “ plan” appears in capital letters. As this plan is modified on the basis o f subsequent information, a statement o f the new plan is added, the words “ revised p la n ” being written opposite it in the margin. The purpose o f this is obvious. In the first place the supervisor can be sure that the case worker is work ing toward a definite end; and at any time it can be assumed that the latest plan stated is still being followed. Careful constructive criticism is made with a minimum expenditure o f time and effort, and unworkable or ill-advised plans o f case workers can be caught early in the history of the case. The fact that a worker must definitely state what her intentions are tends ta clarify her thinking, particularly in complicated family problems. A ll too fre- — quently the young worker believes that she is doing a good piece o f work when she is merely piling up in her chronological record a mass o f more or less disconnected facts which may or may not have signal bearing on her problem. This procedure in the case records is followed by summaries made usually at six-month intervals, especially where the case is a “ heavy ” or complicated one. These summaries are o f a simple character and in the following form : 1 F ir s t su m m a ry: 1. Problem. 2. Status at first contact 3. Treatm ent S econ d s u m m a r y : 1. 2. 3. 4. Problem. Status at first contact Later developments. Treatment. F in a l su m m a ry : 1. 2. 3. 4. Problem. Status at first contact Diagnosis. Treatment The time required for the preliminary study varies, o f course m different types of cases; this point can best be determined bv each agency on the basis o f the type o f cases being handled. A ll this work justified itself only if it assists to better knowledge o f individual cases. By some such procedure considerable limita tion o f intake and the return o f many children from boardinghome care to their natural homes should be found possible. Thej return o f children to their own homes when conditions permit is perhaps one of the easiest matters to neglect, particularly i f the parent or parents make themselves inconspicuous by prompt paving o f all bills. J s https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 70 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. Even with the best theoretical safeguards, through pressure of work errors of omission will occasionally occur. The monthly statistical report required o f each case worker seems the-best op portunity for the check-up. For this purpose a printed form is used, with a space at the left-hand side to list alphabetically on the first of each month all active cases the individual worker has in hand. At the right are columns to list calls, letters written, and so forth. As each piece o f work on a case is done it is checked in the p'roper column, from the field notebook, as soon as the worker returns for her office work. By totaling at the end of the month, the report may be completed in a very short space of time. On the reverse side o f this -sheet should be listed all cases which have not been worked on during the month just completed, with the date of the last dictation on each. I f because of pressure of work or for any other reason no work has been done on an “ active ” case during the current month, it is certain that the individual case worker using this system will be fully aware o f that fact, as she has to examine the chronological record in order to. ascertain the date o f last dic tation. In the child-caring department forms which are modifications o f those just described are used with equally satisfactory results, to safeguard the children in boarding homes. Each child should be considered by the agency as an individual and should have his own complete separate record. He should be studied and his actions noted in his individual record as carefully as possible. The case worker for children should enter facts in the record and try to keep out her personal feelings. She is not a mental diagnostician and is not supposed to be one, although she must attempt to anticipate the need for mental diagnosis and secure it whenever it seems de sirable. At this point it may be mentioned that the case record o f each child bears the same number as does the case record o f the child’s family. In a large organization this has a certain advantage. For instance, if three children are accepted from one family each child’s record bears the family case record number. I f one child is released from the boarding home of the agency the contents o f this par ticular child’s file are clipped together and placed in the back o f the family file. I f the child is readmitted, his previous file is then taken from the back of the family file and follows him again, while he is in the agency’s boarding home. Thus the child-caring depart ment always has the former record o f its experiences with the indi vidual and from the date of the child’s readmission can continue his care on the basis o f such knowledge o f the case. When all children from one family are finally released, the worker in the family case https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SPECIAL PROBLEMS INVOLVED IN FOSTER-HOME CARE. 71 work department has this cumulative knowledge o f the children in volved at her disposal, and she is the one who must now utilize this information. THE FUNCTION OF THE CASE-WORK DEPARTMENT. It may prove of some interest to present a list o f the services performed by the case-work department, or department o f investi gation and advice. This is at best simply experimental; from time to time new services and possibilities are noted as being proper functions o f this department. Each case worker is supplied with such a list having blank spaces under each general classification. As she discovers new possibilities for helpful work in the com munity m her regular line o f duties she notes them, and new lists, including these additions, are occasionally made and distributed to the case workers. The purpose of this is to furnish new impetus to the individual’s work in the field and particularly to answer the question o f the new staff member, “ What else can I do?” It is also o f value in answering the questions o f interested people as to what a case-work department o f a child-caring society can do other than merely to “ investigate” people and their conditions o f living. So far, the varied services of this department have been listed under eight general headings, about as follows: ( 1 ) Physical treatment: Hospital or sanatorium, dispensary, private physicians, clinic treat ment (type), examination (type). ( 2 ) Employment secured: Temporary; permanent. (3) Education: Secured special or vo cational training; secured instruction in household economics or in sewing; children kept in school beyond working age; home reading encouraged (results). ( 4 ) Recreation: Fresh-air care ; day outings; cultural opportunities afforded; recreational opportunities afforded! (5) Material relief: Boarding-home care given (free or partially free ; terms made) ; household goods obtained ; food obtained ; cloth ing obtained. ( 6 ) Legal aid: Nonsupport ; search for deserter* support order obtained; juvenile-court action; other court action; reference to Legal A id Society; special lawyers recommended; ad vice regarding separate maintenance. (7) Placing o f adults5 and children: Temporary shelter for children; permanent care through the society; children boarded out; day-nursery care secured; in stitutional care for adults; institutional care for children. ( 8 ) General improvement o f conditions : Connections with relatives strengthened; church connections strengthened; friendly visitor obtained; sanitary or housing conditions reported for correction; transportation to other localities obtained; removal to better home in city; home reestablished. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 72 FOSTER-HOME CARE POE DEPENDENT CHILDREN. WORK WITH THE CHILD IN HIS OWN HOME. As has been stated, all cases originate and are handled in the case work department. A ll children accepted for care in boarding homes are accepted there. The same department is made responsible for the return o f children to their own homes, and it is the special job o f this department to get the children back into their natural homes just as soon as good case-work principles permit. Therefore, a family case record always remains “ active ” until the child is re leased from the boarding-home care o f the society. Even after the return o f the child to his natural home, the case remains open if further work is to be done either with the child or with the adult. The work with the individual child in his own home is done by the family case worker who had and continues to have charge o f the family. No family case should be closed after a child is released to go to his natural home until a definite written report from the child-caring department is in the hands o f the family case-work de partment. I f the child-caring department recommends further treatment or supervision o f the child after he leaves the boarding home, this is assured. I f the recommended treatment is purely medical and can be advantageously handled by some agency specializ ing in medical work, a letter in the family file must show that the problem has definitely been handed over to and accepted by the proper agency. One can readily see how dangerous would be .the prac tice o f proceeding differently, especially when a child in a board ing home has been receiving a series o f treatments still uncompleted at the time when he leaves the home. THE BOARDING HOME. Selecting the home. The child-caring department should keep a careful chronological record o f each boarding home, including the full data obtained in the searching preliminary investigation. This record will certainly be o f value in making future placements. A detailed outline under the three headings material, personnel, and social has been found of considerable value in pointing out some of the essentials to be considered in choosing and accepting new boarding homes, and it would be o f particular value in investigating prospective adoption homes. In this way a picture of the home can be obtained from the three main angles. I f such an outline is used, lack of information of an essential character concerning the prospective boarding home can quickly be noted by the supervisor reviewing the field or by the committee having charge of the boarding-home situation. The chronological record o f the boarding home need not be ex tremely detailed, but it should include such essentials as the names https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SPECIAL PROBLEMS INVOLVED IN POSTER^HOME CARE. 73 o f the children placed, the terms o f placement, date placed, date removed, and reasons for removal. Comments upon the way various c lldren were handled in a boarding home are o f value in using the ome for subsequent placements. Homes caring for special problem children naturally require fuller records. Educating the “ boarding mother.” Since the success o f a child-caring society’s work will ultimately be made or destroyed according to the type o f work which is done m the boarding homes, the “ boarding mothers,” as they are called for want o f a better term, must be carefully linked up with the so ciety. How to do this most effectively and quickly is worth consid ering. th e educational process should be started as soon as the woman makes application to take a child into her home. A t that time she is enthusiastic, and her enthusiasm should be capitalized then and there. I f it appears, however, that she is not o f the edu c a t e type— from the boarding-home point o f view— her applica tion should not be accepted. The boarding mother is really a member o f the staff o f the society and forms a definite link in the chain of the child-caring work. I f this link is weak, it imperils the whole system. Before handing to the prospective boarding mother a formal application blank, which to her will seem to be nothing but red tape, some worker in the organization should sit down and talk with her in a human, friendly manner about the problem o f boarding care for children. When all preliminaries have been completed and the services o f the boarding mother accepted, the educational work is carried on by the home visitor o f the child-caring department. The home is visited before a child is placed in it and at least every two weeks during the entire period o f its use. The advisability of such fre quent visits may of course be questioned, but this rule seems to be more than justified by experience. In addition to the home visitation carried on by the workers the educational work with the boarding mothers is furthered by send ing monthly letters to each. These are written in a personal manner, and are mimeographed and to save expense are sent out with the monthly checks. The cost o f this service is very slio-ht • its ef fectiveness is wholly dependent on the way the letters are Written They should be couched m simple, nontechnical language, and should be stimulating. An obvious advantage in this plan is that a yearmund program o f education can thus be mapped out in advance. Each letter is so written as to carry one main idea, which can be embellished and illustrated in rather telling and personal ways. The visitors read each letter before it is sent out and then in their contacts with the boarding mothers take up more in detail the points https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 74 foster - h o m e care for dependent children . covered. Thus the personal element is stressed, and the foster mother becomes more closely connected with her organization. It has been found that the foster mothers, especially in the country districts, read or show these letters to their friends and neighbors, and that by this means and through the increased interest of the foster mothers many new and valuable boarding homes are dis covered. The work o f writing the boarding-home letters is centered in the home-finding department. Greater interest is stimulated by^ asking for replies and criticisms, a recital o f personal experiences with spe cial problem children, or discussion of other aspects o f child care. Frequently when a reply o f a boarding mother seems to be o f general interest it is quoted in a later letter, proper credit being given. One country boarding mother recently sent in an essay she had written and read before her club on u The relation of the child in the home to the school.” This short essay seemed so much to the point that it was used as the next regular letter. Incidentally, this particular boarding mother is now doing a very creditable piece of educational work in her community in interpreting the child-caring organization. One. obvious danger is that the letters may become merely formal, talking at the boarding mothers rather than talking with them. The whole system has to be handled with care and thoughtfulness. “ Lec tures ” will not be found effective. This is one reason why it is valu able to quote the boarding mothers themselves at frequent intervals. They appreciate it, and it makes the service seem more like their own service. M aximum number of children per home. Children should not be placed on the basis of the physical capacity of the boarding home. Three or four children per home should be the maximum, and as an individual society obtains a larger number o f potential homes this maximum may well be reduced, except for special cases such as those in which it is desirable to keep children of one family together. PLACING THE PROBLEM CHILD. To make successful placement o f the problem child, all the ele ments o f the situation need even more careful consideration than in the case o f the normal child. The problem cases include children who have venereal infections (though in noncontagious stages), those slightly epileptic, crippled and malformed children; those o f most unattractive physical appearance (these children easily develop in feriority complexes), enuretics, the deaf, the blind, or those partially bJm d ; those with tubercular tendencies, the undernourished, children oi doubtful mentality, the offspring o f physically degenerate fam https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SPECIAL PROBLEMS INVOLVED IN POSTER-HOME CARE. 75 ilies, incorrigible children, and those unrestrained in habits and tem peraments; those with “ immoral ” tendencies, habitual truants, both from school and from home; those who are exaggeratedly destruc tive, the “ abnormally ” cruel; those having bad sex habits, etc. All these types can be, and are being, well cared for in boarding homes. Extreme patience and understanding are necessary in handling these difficult cases, and an agency should not excuse itself for failures in this field but rather frankly recognize them. Child-caring societies are just coming to a full realization of what can be done for the problem child through careful placement. A large and constantly growing literature on the subject is available. I f much o f definite value is to be accomplished for the problem child, it is essential that the case-history picture be fairly complete. The problem child is more than likely to be “ elusive.” From the standpoint of the child-caring agency it is not enough that the child is “ understood ” by the individual worker in whose charge he is placed. There must be a central place of record where the worker can be checked up and progress noted occasionally. The agency must be assured that all essential details are being looked into with regard to the care the child is receiving in the boarding home. THE STUDY OF THE CHILD’S PROGRESS. The next essential to consider is the study of the child himself. Complete physical examinations are, o f course, necessary; mental examinations also should be given where the need is indicated. The best type of work can never be done without a thoroughgoing, prac tical knowledge by the child-caring agency of the child to be placed and o f his individual peculiarities and needs. In many cases this knowledge can be gained only after the child has been placed under care, and through careful observation o f the child’s reactions to the boarding home selected and to the other new influences to which he has been subjected. The question o f what to include in the study o f the child has been receiving constantly increased attention of late, particularly because o f the greater use which child-caring organizations are making of the services o f psychologists and psychiatrists. Experts will not give opinions without a complete background o f essential facts. It is clearly the responsibility of the individual agency, then, properly to note and assemble such information. Merely as an experiment the following outline was given the workers o f one society with the idea that it would suggest in a general way the material which might well be incorporated in the individual child’s record as the record progressed. It is not supposed to be all-inclusive, and, after all, the 72693°—26---- & https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 7Q FOSTER-HOME CARE FOR DEPENDENT CHILDREN. records will be largely a result of the training given by the society. However, the outline offers a basis, and each agency can devise one which will meet its own particular needs. W H A T IS YO U R C H ILD — 1. Physically. 2. Mentally. 3. Morally (socially). P h ysica l. (1 ) Specific medical attention child has had as to— (a ) Examinations and tests made. By whom? (&) Operations advised. (c ) Operations completed. (d ) Note in record specific results, if any are noticeable. (e) Treatments advised. ( f ) W ere they consistently carried out, and with what effect? (2 ) Physical appearance of child upon admission, during care, and at release. (a ) Weight. According to standard table, is child normal? (&) I f below standard, check up periodically and note results. (c) Height. According to standard table, is child normal? (d) I f below standard, check up periodically and note results. (e) General appearance, attractiveness, etc. (3 ) Personal hygiene. (а) Note bathing facilities, regularity of baths, etc. (б ) Keep careful check-up on teeth. I f they are in good condition, state this from time to time after you have personally exam ined them. (c) I f teeth are bad, show in your reeord that you have had them attended to, and whether this has had a marked effect upon general health and conduct of child. (d) Carefully inquire into personal habits of child and make proper notation. D o not neglect to show follow-up work on these points. (4 ) Clothing. (а ) Day garments. (б ) Night garments. (5 ) Food. (а ) Proper diet (milk, etc.). (б ) Improper (coffee, tea, etc.). (e) Regularity. (d ) Adequate amount. (6 ) Sleeping conditions. ( а ) Q uarters. (б ) Ventilation. (e) Air space. ( d ) Sufficient coverin g. Amount o f sleep. ( / ) Regularity. (gr) Alone, or with whom? 17 ) Development o f child on other points than those noted above. (e) https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SPECIAL PROBLEMS INVOLVED IN POSTER-HOME CARE. 77 M en tal. (i) ( 2) Mental status. (a ) General impression. (&) Note “peculiarities” and ability to make adjustments. (c) Does psychologist need to be consulted? (d) Has this service been obtained? (e) Recommendations of psychologist. i f ) Show in detail, and frequently, how they are being carried out (ff) Note, in detail, results. Formal education. (a) Attendance at school. (&) Progress in school. (c ) Contact with teacher. Give names of teachers. (d) Home work— assistance given. (e) Note special ability, if any. ( f) Future training in vocational way. etc. (3 ) Recreation. (а) Outdoor play. (б ) Indoor play. (c) Time allowed. (d) Type of play. (e) Companions. (4 ) Employment. (a) Kind of work. Detailed information should be furnished. \ &) Under what conditions? (c ) Amount of time devoted to it? (d) Special training given. (e) Is child in any way*imposed upon by the fam ily? (5 ) Development or progress on other related points than those suggested M ora l or social. (1) General conduct. («) Relation to playmates. (&) Relation to adults or family. ( c ) Relation to school. (d ) Relation to neighbors or community. (2) Discipline. (а ) Relation with those having right to expect obedience (б) Self. (3) Problems. Type involved. Make comprehensive and specific notations. (&) Outline of treatment agreed upon. (e) In follow-up notations, indicate progress or lack of tt (4) Influence of boarding home. (a ) Religious standard. (b) Ethical standard (moral). (c ) Opportunities afforded— cultural, etc. (d ) Church or Sunday-school activities. (a ) SUMMARY. To sum up, the factors involved in the placing o f children in pri vate family homes, either temporarily or for longer periods, include at least four main points: The child himself, of whom there should https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 78 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. be a thorough understanding and an adequate record; the home where it is proposed to place the child, concerning the possibilities of which there should be an equally comprehensive knowledge and an ade quate record; consistent and continuous supervisional, educational, or follow-up work by the society responsible for the placement; and finally, an understanding of and adjustment to the community where the child is being placed. A ll of these factors must be weighed and given their share o f emphasis. Without a most careful and intensive study of each the experiment is almost certainly condemned to fail ure. Desultory work not only will not do but is highly pernicious. One further point which should be emphasized is the personnel of the staff o f the child-caring agency. Just as it would be unwise for a business man to put inefficient people in places of responsibility;, so the child-caring organization can not afford to do it. Because a person has raised a family is not a reason in itself why the individual can do expert child-caring work. Placement work must necessarily mean the application o f common sense and o f certain more or less fundamental principles arrived at on the basis o f both personal and assimilated experience. Training can hardly be overestimated, and neither can the danger o f employing poorly qualified workers. I f the staff o f a child-caring agency think only in terms o f the immediate present their work will be merely palliative. The fact that good work does require imagination must not be lost sight of. Any working basis must always be subject to modification in the face of new facts. However, flexibility is not to be overemphasized so that ideals and methods become wobbly. It must constantly be kept in mind that insufficiency of information is always dangerous, if not disastrous. One side o f a story is not enough. The particular point must be viewed from all angles possible, and consequently all of the existent resources should be utilized. The child-caring society should consistently and thoroughly carry out a year-round program o f intensive education with the boarding mothers, for the character of the prospective temporary home is as important a feature as the personality of the child that the organiza tion is attempting to help. Tie up the two on a basis o f scientific understanding, and the chances of success are good. Neglect either at the risk of the child. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE WORK OF A STATE-WIDE CHILD-PLACING ORGANIZATION. By A lbert H. Stonem an, Stafe Superintendent, Michigan Children's Aid Society. This will not be an abstract discussion o f what a State organization for child placing ought to be, ideally. The principles and methods to be presented are those which have been worked out in practice by the Michigan Children’s A id Society, and which, it is believed, may be useful to all state-wide agencies placing out chil dren. Seven such principles are here stated and will constitute the topics for the different sections o f the discussion: 1. Making the organization actually state-wide in activity. 2. Broadening the scope of the work to include the various types of service needed by the different districts and communities of the State. 3. Providing some service for every community, including those best equipped with social agencies. 4. Making the facilities of the best-equipped communities available for the most destitute districts. 5. Developing local responsibility. 6. Developing specialization in service. 7. Reaching beyond the child-placing society into preventive and constructive movements for child welfare. MAKING THE ORGANIZATION ACTUALLY STATE-WIDE IN ACTIVITY. A children’s society should be incorporated under the laws o f the State, with the right to operate throughout the State. The govern ing body o f trustees should include representatives from all sec tions o f the State. Since so large a body can not be expected to meet oftener than quarterly, a smaller executive board should be chosen whose members are near the main office. In centers o f population, so soon as the volume o f the work war rants it, branch offices may be established to advantage. In each o f these, a trained children’s worker should be placed as executive, and in connection with her work a local advisory board o f directors should be organized. In order to make the society function most efficiently for such communities, there should be local provision for the temporary care o f children pending their future disposition. This can be accomplished most successfully by the establishment of 79 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 80 FOSTER-HOME CARE FOR DEPENDENT CHILDREN, a local group o f family boarding homes, as will be pointed out later. Similar branch organizations can also be worked out to advantage in rural districts which are at a distance from the main office. In such districts a branch office and executive should carry on the work of the society, somewhat as at the branch office in the large city. It is desirable to link these branch boards o f directors with the State board o f trustees by choosing the State board largely from the representative persons on the branch boards in all sections of the State. In the counties not included in the jurisdiction o f these branch or ganizations, local volunteer committees may be appointed, who will stand ready to report cases o f neglect and dependency and to secure confidential information concerning cases which may be referred to them. Such a local committee, often the only one o f its kind in the community, may prove to be the nucleus from which will develop a more formal organization for the promotion o f social service. Another extension o f the work o f the organization is practicable through agreements with public and semipublic welfare agents, such as Red Cross secretaries, public-health nurses, juvenile-court officers, and school officials. Cooperation of a helpful kind can also be had from women’s and men’s clubs which maintain standing com mittees on child welfare, boys’ work, and the like. Through the districts where local field workers o f the State are not available, contact may be made from the main office by traveling representatives whose services will be described in a later section. Educational publicity as to the work of the State society should be carried on continually in the city and county newspapers, farm journals, and other publications, and also through the medium o f the local boards and committees. This is important in order to bring to the attention o f people everywhere the practical value to every community o f the state-wide organization. In other words, the people o f the large and small community should be made “ State conscious ” in matters of child welfare, since the best-equipped com munity is frequently self-satisfied and confident that it possesses all advantages locally, while the least-equipped one may not even have heard o f the opportunities the state-wide agency offers nor o f the generally accepted standards o f child welfare. This “ State con sciousness ” will come through the realization, by both the bestequipped communities and those least well organized and equipped, o f the value to each o f them o f the services o f a state-wide society. MAKING THE SCOPE OF THE WORK SUFFICIENTLY BROAD. Within the boundaries o f any State will be found widely varying stages o f development in social work and a corresponding variety in the needs for service to children from complex social organizations https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis WOBK OF A STATE-WIDE CHILD-PLACUSTG ORGANIZATION'. 81 down to no organization; from strong and intelligent community spirit down to no community spirit or consciousness. Yet the state wide society is under obligations to provide service for all; it must be “ all things to all men.” This situation presents an opportunity which is both bewildering and fascinating. To a board o f directors and an executive with imagination, initiative, and perseverance, such a field holds the most attractive possibilities. It is not to be exchanged ior an easier more circumscribed task, nor one which has been reduced to cate gorical procedures. In this interesting variety o f situations and cases, however, there is one fundamental requirement as the first step in procedure, namely thorough investigation. The results o f the process are summed up m the phrase “ family history.” In places where the technique o± case work is unknown, it will be all too easy for the children’s worker to catch the spirit o f the locality and neglect this safeguardmg o f the work. The common request will be : “ Here is this child. W ill you take him?” W ith the desire to get on pleasantly with the local authorities, who are apt to bear down impatiently upon her, the agent must still tactfully but firmly postpone the answer until the decision can be based upon a careful investigation and in terpretation o f the facts. Based upon this investigation there are at least five possible de cisions as to treatment : 1. That there is no cause for action.—After the matter has been gone into thoroughly there will seem to be no need in some cases for child care or family assistance. With perhaps some advice on the part o f the worker, the case may be closed. Even here, however a full record should be made o f the investigation and conclusions for possible future reference. In the main office o f the society should be an index o f all such cases, wherever they have been found in the State. This section o f the index may be entitled “ Investigated and not received,” and should be maintained as a confidential ex change for all branches o f the society. 2 . That the child needs institutional care.—There will be other cases where there is definite need o f service, but not such as a chil dren s aid society is prepared to give. Perhaps institutional care is needed, such as the State itself provides for certain classes o f pa tients. Here it is the duty o f the children’s society not to drop the case, but to see that the child in question actually receives the help needed. Such cares also should be recorded in the main-office index. 3. That the child needs care within its own home.—A third class includes those cases which really need immediate help and per haps continued local assistance from some agency. It is found that https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 82 FOSTER-HOME CARE FOR DEPENDENT CHILDREN, the children ought not to be removed from their homes but should be assisted in some way while with their parents. Perhaps the service will be granting a money allowance, or helping the family to secure an allowance provided for by State laws, such as mothers’ pension and workmen’s compensation. Perhaps the help should be in the form of home supervision or friendly visiting. I f such a case is found in a district where there is no active family-welfare organization, then it would seem to be the obligation of the chil dren’s society to undertake this family-conservation service. Such children as are actually given substantial service may be counted as « temporary-aid ” cases and be so registered in the index at the main office. The folder containing the full record o f the case should be kept in the local office o f the branch which is dealing with the family. 4. That the child needs to he temporarily removed from the home.—In a fourth class are those cases where there is evident need that the children should be removed from their own homes—but only temporarily. The character o f the parents is such, mentally and morally, as to warrant the return o f the children when circumstances allow it. This indicates the need of the temporary hoarding o f these children under proper influences during the period in which the natural parents are being helped to get ready to receive back their children. In order to keep the parents’ sense of responsibility strong, as well as in the interest o f the children’s happiness, it is usually best to keep the children in the vicinity o f their parents. It is therefore necessary to have available good private family boarding homes in different sections of the State. These may be grouped so as to be supervised by a trained children’s worker in each center. The history o f the case should be filed in the office o f the branch dealing with the family. At the same time it should be recorded as a “ temporary-aid ” case in the index at the main office. 5 . That the child needs permanent readjustment.—Finally there is a class of cases in which it is evident, after all the facts are in, that the only safe plan for the children is to have them removed per manently from their natural parents or from their present situations. This usually means that they are to be made permanent wards of the society for the purpose of adoption. I f investigation shows their heredity to be such that they are not proper subjects for adoption, or if the physical or mental examination o f a child himself points to the same conclusion, then it will be the obligation of the society to see that institutional care or adequately safeguarded foster-family care is provided. It hardly needs to be said that in the reception o f every child, whether for adoption or for temporary care, the greatest pains should be taken to discover just what the child is, as well as his https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis WORK OE A STATE-WIDE CHILD-PLACING ORGANIZATION* 83 previous history and circumstances. Only so will it be possible to plan wisely for his future. With children taken for adoption the policy should be different fiom that followed when children are received for temporary care. In adoption cases the child, instead o f being left in the vicinity of his parents or in his previous environment, should be transferred to another section o f the State, away from former associations, and a plan made whereby he can start his life entirely anew. During the peiiod o f transfer and preparation each child should be brought into whatever community and given advantage o f contact with whatever agencies and specialists he needs in order that his future placement may be most successful. When children are thus received for permanent care their full history and the legal papers in their cases should be forwarded to the main office o f the society instead o f being kept in the branch office as in the temporary cases. In the general index such a child is listed as a permanent ward. It will be seen from the foregoing that the card index at the main office will have three classes of cases, namely: Permanent wards, temporary-aid cases, and those investigated but not received. These cards should, for convenience, be o f different colors. The index thus showing the names o f all children known to the organization in any section o f the State furnishes a complete “ confidential exchange ” for the different units of the society. PROVIDING SOME SERVICE FOR EVERY COMMUNITY. Communities which may be said to be well-equipped with social agencies may be divided into three classes. In the first class may be placed those which have three different types of agencies: First of all, a family-welfare organization, either public or private, operating on the basis of real case work j in addition to this, one or more in stitutions for the care of children; and finally, one or more case-work societies which board out children in family homes. In the second class belong those with two types of agencies: A family-welfare or ganization and also provision for the institutional care o f children, but no case-work society placing out children. In the third class5 are the communities having a family-welfare organization but no agency especially interested in the care o f dependent and neglected children. Communities o f the first class, as described above, might seem to have all the agencies and facilities needed for the care and disposition of their dependent children. They might seem to be self-sufficient. Usually such a city has this opinion o f itself, as expressed by the officials and the representatives o f its local welfare agencies. Yet https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 84 * FOSTER-HOME CARE FOR DEPENDENT CHILDREN. even here there is service which the state-wide child-placing organi zation should be prepared to offer, and which none o f the local insti tutions or societies o f the city can do so w ell; and that is the placing out o f dependent children for adoption in other parts of the State. The local agencies are not equipped with a field staff throughout the State, and this is essential to good placing out for adoption. In adoption there is usually need for a complete change of environ ment. A traveling nurse or other attendant is needed to transfer the child to another part of the State. There, either a receiving home or a private family boarding home is needed for the care o f the child while he is being studied and prepared for placement, and while his future is being planned. Meanwhile, there must be travel ing workers, or workers stationed in other cities and sections o f the State, investigating prospective foster families. Later, the child must be taken to his future home, where he is to be placed on trial for a period o f at least one year. During that trial period another representative o f the society, or perhaps the same person, will have the supervision o f the child and the home, send in to the main office detailed reports on the situation, advise with the foster parents, make adjustments when needed, and finally decide when and whether the privilege of legal adoption shall be granted. A ll o f this is serv ice which the local agencies of even a well-equipped city are not pre pared to furnish so well as the state-wide society. There are likely to be, also, other types o f work which the state-wide organization may be needed and requested to do for such a community; and this can be arranged for by working agreements, entered into perhaps with the family welfare agency, or more prob ably with a local children’s society or a group o f such agencies. Whether or not this further service is planned, the handling of adoption cases is certainly a specialization in which the state-wide society can be especially helpful. This fact alone entitles the State organization to an important place among the agencies carrying out the program of social work for this class o f cities. in communities o f the second class described above—those with a family-welfare organization and with institutions for child care, but with no society boarding out children in family homes— the State society has a larger field clearly open to it. No matter whether a receiving home o f the society is located here or not, there is always need in such a city for selected and supervised family boarding homes to supplement the child-caring service which the institu tions o f the community may be rendering. This boarding-home service can be made available and acceptable even to sectarian and other special child-helping agencies of the city or district. It may be recognized rather slowly by some agencies, because it may seem, at first, like a rival enterprise entering the community; but if the https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis WORK OS' A STATE-WIDE CHILD-PLACING ORGANIZATION. 85 I boarding-home work is well done, it will gradually win the cooper ation o f practically all o f the community forces interested in the welfare o f children. In cities o f the third class, where there is a family-welfare agency but no child-caring agency o f any kind, not even a local children’s home, the opening for the State society is still more clear and simple. Here it may be possible even to prevent the unnecessary building o f a local or sectarian institution, by demonstrating the possibility o f utilizing an institution already available, viz., the family home. It is easy to show such a community that the most economical care o f the dependent child, as well as the greatest benefits possible at any price, are to be had in a private family o f the right quality,, where the child is mothered and fathered in an individual way and supervised by a competent children’s worker. In this class o f community all o f the child-caring work except in the very abnormal cases can be done by representatives of the State society through this family-home method. The facilities for any community can easily be expanded or contracted to meet the need, by increasing or decreasing the number o f foster mothers thus employed in their own homes. Even defective children and children presenting serious behavior problems can be handled to a surprising extent by ehoosing and training boarding mothers to specialize with certain o f the more difficult types. “ Subsidized boarding homes” also can be chosen, in which service is engaged for the care o f a certain number o f children, and paid for whether or not the full number are actually placed in the homes. This method will provide for emergency care o f children. In making contact with cities of this third class, and in some cases those o f the second class, it is often practicable and mutually helpful to enter into special arrangements with the family-welfare organization, which is logically the central social-service agency o f the community. In some cases the family-welfare society will encourage the State children’s agency to establish a branch o f its organization in the community, in order that certain classes o f cases i coming to the family agency may be referred to the childrenV worker or that some competent organization may be at hand to take over the immediate care o f children. MAKING THE FACILITIES OF THE BEST-EQUIPPED COMMUNITIES AVAILABLE FOE THE MOST DESTITUTE DISTRICTS. The districts outside the jurisdiction o f the county branch organ izations will be largely rural. For such territory two types o f serv ice may be made available: A permanent branch organization or periodical visits by traveling representatives o f the State society. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 86 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. Wherever the resources of the state-wide society allow it, a district worker should be placed in charge o f a group o f counties. The headquarters for the district should be at a place from which the worker can go upon call to any part of the district. In this office will be kept the records o f local cases. Clerical assistance should be furnished when practicable so that the field worker can give full attention to children’s cases. It will be desirable, and ultimately necessary, to find temporary foster homes for boarding children in or near the locality. The representative in charge o f this branch will be called upon to do pioneer work in her field. She will cover a large territory, though not intensively, since intensive work would be impossible, considering the undeveloped field. She will care for the more ob_vious needs and seek to develop in the people o f her district an un derstanding o f the needs o f children, their possibilities, and the methods o f helping them. She will do the entire work as outlined in the former section for different types of cases. Perhaps there will not be a single family-welfare organization in her whole territory, and she will have to take the place of such an agency in the recon struction o f family life. In cooperation with the State organiza tion, she will transfer children to other parts o f the State and will receive children from other sections to be placed in foster homes in her territory. She will be assisted in her work at times by traveling representatives of the society, sent on special business. In addition to her child-caring activities this representative will organize a district advisory board of directors. These will be repre sentative persons in the various communities o f her section, whom she will educate in the methods and principles o f the State organ ization, in order to gain their loyal and intelligent support for the work that needs to be done. Thus in the course o f time this terri tory, through the branch organization, will be made conscious of the needs of its own children, and also will be made aware of the state-wide plans o f the society and the possibilities for underprivi leged children. Wherever there are health facilities and socially minded doctors and nurses the branch representative will gain their cooperation in behalf of children under her care. Through their aid and also through the assistance o f the traveling workers of the society, she will have boys and girls taken to hospitals, clinics, sanatoria, and specialists in other parts o f the State for examination and treatment when necessary. There may be parts o f the State outside the jurisdiction of any branch organization or where there are too few resources and avail able leaders to support a branch organization, which very much https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis WOBK OP A STATE-WIDE CHILD-PLACING ORGANIZATION. 87 need the service o f a children’s agency. Such territory will be served by traveling workers under the immediate direction o f the main office. The different types o f traveling workers desirable in such territory will be discussed under the section on “ Specialization in service.” DEVELOPMENT OF LOCAL RESPONSIBILITY. The policy of emphasizing local responsibility is a sound one in the wor mg out o f a businesslike financial system for the State organi zation. The aim should be to make every geographical unit selfsupporting as completely and as speedily as possible. This policy must not be insisted on too rigidly, however, especially in the early stages of development. There always will be, undoubtedly, some un developed districts whose needs for service far outstrip their ability or their present willingness to pay. There are wealthy communities and sections and there are others which are poverty-stricken. As a start, it will be a practical necessity to draw upon the former for investment in the latter. It is surprising, on the other hand, how much the poorer district will do toward the financial support o f its child-caring work, after it becomes interested in having such work done. This interest comes only through education. To make the great body o f people intelli gent on child-welfare matters would be too long a process to wait for Therefore, the obvious procedure is to choose a few socially minded persons and to concentrate efforts to develop intelligent interest in this group. A few persons can be found in almost any district who are sufficiently socially minded to appreciate the needs of the children and the possible benefits to be secured from the state-wide children’s society. Rural districts. The county unit is usually the most natural and convenient for child-welfare organizations, especially in rural districts, for States are organized in their various departments on the basis o f the countv. Courts having to do with dependent and neglected children are county-wide in their jurisdiction. In rural counties, an unofficial child-welfare board may well be organized, with a chairman and secretary at the county seat and perhaps one member residing in every township. Such child-welfare boards can perform a certain limited class of service. They do not function to any great extent however, unless there is frequent contact with them through cerre’ spondence or visits made to the members by the representative of the society. She should make it a point to demonstrate to these volunteers the methods o f the child-placing society and to keep them interested in the work. The branch representative should become https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 88 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. personally acquainted with the individual members of these boards in order wisely to select the task which each can be trusted to per form, and tactfully to choose the person for the particular case she has in hand. In the organization o f such county boards it is often possible to effect close cooperation with other social workers if any are there—such as the public-health nurse or the Rod Cross secretary. It is usually wise to include the county school commissioner and such other public officials as have an interest in the children o f the com munity. This development of local responsibility on the part of the lead ing people in rural counties is especially important from the point of view of the added service which it will bring to rural handicapped children. The interests o f the state-wide organization itself are, however, more prominent in the discussion o f the development of local responsibility in the better-organized communities. In dealing with rural districts which have few centers of popula tion and in which the people are widely scattered and have as yet no common interests, it has already been suggested that one of the first duties o f the representative of the State society is to develop in her territory “ community consciousness,” then perhaps “ county consciousness,” and then 4; State consciousness.” Through these stages of social education the State agency brings organized groups— local boards and county boards—to take a more and more intelligent and active part in the program o f the State organization. The better-organized urban communities. In dealing with the better-organized communities we find a differ ent situation. Here the local community consciousness has often been developed abnormally by local interests. A city, perhaps, adopts a slogan which calls upon its citizens to support local products and local organizations only. The community interests have concen trated upon themselves all attention and all resources. A t this point it becomes the task of the representative o f the state-wide organiza tion to help local leaders in social work to gain a view of the broader field; in other words, to help them to enlarge their narrow com munity consciousness into State consciousness. This is necessary, not merely for the self-interest o f the State children’s society, but fundamentally for the best interests of the dependent children of any city. It is extremely important that the state-wide child-placing society shall find and maintain its appropriate place in the socialservice programs o f the cities. The practical problem arises, how to make successful contact with such cities, how to make the self- satisfied community, perhaps rich in its local social equipment, recognize its need for the services o f the state-wide organization. Under these circumstances, it is a https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis WOBK OF A STATE-WIDE CHILD-PLACIHG ORGANIZATION. 89 case o f being “ all things to all men,” for there will perhaps be no two methods o f approach which are exactly alike. In every city theie is a situation peculiar to itself in regard to social-service or ganization and attitude. The stage o f development may seem to be just the same in two cities, and yet the attitude of one city may be far different from that o f the other. This will necessitate opposite policies of approach by the “ outside agency.” In one, the executive secretary o f the local children’s aid society—or whatever the local agency is—may be hostile toward anything that seems to him like competition in his field. In the other, the executive may be broad minded and able to recognize the advantage o f dividing the cases in accordance with a working agreement, so as to give to the State so ciety the type o f service to perform which can best be performed under a state-wide system o f work. Where the approach can not be made through the executive of the local agehcy, it may be made through some socially minded and influential citizens. A state-wide society which has been at work for any considerable time and which has rendered wide service is sure to have gained some friends in the city in question. Perhaps there are foster parents residing there who are deeply interested in the society. They may prefer to work confidentially because o f the nature o f their connection with the local agency, yet they will find a way o f helping the State society to gather and organize a local board to back the work o f the society in that city. Here it is su premely important that the representatives o f the State society shall do nothing unethical in the matter o f seeking eases or promoting their own activities locally. They should take care not to engage m work which duplicates that o f the local children’s society, if it is possible to avoid it. They should seek to do those particular things which their organization and methods fit them to do peculiarly well. And they should endeavor as soon as possible to have their organization correlated with the other welfare work o f the com munity through a central council o f social agencies, by registering cases in a confidential exchange, and by any other means which may be found to make the social service o f the community more efficient. J Urban communities with less equipment. In cities which we have grouped in the second class (those not having local children’s aid societies but having a central family-welfare organization and one or more institutions for child care) and in cities o f the third class (where there is a family-welfare organization and no agency caring f o r ,children, not even an institution), it is easy to make successful contact with the community. As has been suggested earlier in the discussion, the executive secretary of such a https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 90 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. family-welfare organization, if well trained and broad-minded, is very apt to encourage the State children’s society to organize a branch o f the agency in that community. Frequently cases arise where the principal problem to be solved is “ what to do with the child in the situation.” Perhaps the thing most desired is to provide some proper care for the child during a certain period, while case work is being done with certain other members o f the family. Here the boardingout service o f the children’s society is needed. In some cases a f ar ther separation of the child from the other members o f the family is desired. Here the ability o f the State society to transfer the child for placement in some distant home pending future developments is appreciated. Indeed, it sometimes happens that a family-welfare agency will offer free office room to the representative o f the chil dren’s organization in order to have such a worker available for chil dren’s cases. Perhaps the general secretary of the family society will treat the local representative of the State society as a member o f his own staff, so as to make the cooperation as perfect as possible, while allowing thè children’s worker to conform to the policy of the State children’s organization, to keep separate files for the children’s work, and to report the cases to the State headquarters. When close super vision o f the local children’s worker is possible by the State society, and a more independent relationship to the children’s organization in that particular city is desirable, an adjoining or separate office is secured by the State society’s representative while maintaining close cooperation with the local organization in the work. At the start, most of the cases coming to the children’s agency in such a city will come by way of the family agency, thus preventing duplication of work in the community. This spirit o f cooperation for mutual advantage and better service to children has even gone so far in one community o f this State as to result in the Staté society’s taking over and operating for the family-welfare society a local institution for the temporary care of children, thus putting all the child caring o f that community into the hands of the children’s agency, on the ground that it is best prepared to administer such service. In another instance a working agreement has been entered into between a local children’s agency and the State organization by which the children’s work o f that city was divided, all the adoption work being given to the state-wide society and temporary boarding cases to the local agency. It may be seen from the foregoing descriptions that a state-wide child-placing agency, by carefully studying its diversified field and wisely choosing its method o f approach to the many different com munities, may find itself in an interesting variety o f situations. Here are some o f the contacts actually made by one such State society in a series of cities : In one an independent office was opened in close https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis WORK OF A STATE-WIDE CHILD-PLACING ORGANIZATION. 91 cooperation with the local federation of social agencies; in another offices were shared with the city children’s aid society; in a third an office was occupied with the family-welfare society; in a fourth free use o f an office was granted in the city hall; in a fifth the society operated in the courthouse; and in still another city it was located with the county organization o f the tuberculosis society. Possibly no two contacts in the whole State will be just alike. Indeed, there is sure to be no exact duplication, because there are no two situations quite the same. Yet with all these differences, great strength may be built up by the State organization. Through widest diversity there may come truest unity. Local advisory boards. In every branch there is one element common to all. As soon as possible without straining the situation a local advisory board or committee should be gathered together. The group is to stand behind the local executive with moral support, cooperating with her on the one hand and with the State executive on the other as repre sentatives of their community. These are the persons through whom that city and county are to be informed as to the methods and the local value o f the State society and the State agency to be informed as to local needs. Through them the local children’s work will finally be put on the basis of self-support and self-administration, closely linked up with the administration of the State organization’ Sometimes this group will start as a special children’s committee of the board of directors of the family-welfare society. In other cases it will start as an independent board. Very often the subordinate committee will ultimately grow into the autonomous board. As a help in financing the work these boards are of practical value almost immediately. To illustrate: I f the city has adopted the plan of the “ community chest ” for its social-service agencies, usually one o f the first principles laid down is that only “ local ” agencies may participate. In order not to be classed as an outsider, the State society may show to the budget committee that it is an agency with a local board o f directors, a local children’s worker, and a group o f local boarding mothers taking care o f a number of local children. Thus it is demonstrated that this child-placing so ciety is as truly local as though it had built an institution in their midst. In case there is no community chest funds may be raised by an appeal sent out over the names of the representative citizens on the board. Even if a solicitor has to be sent in to canvass the field the local board can do much by way o f personal indorsement and organ ized publicity to make his efforts successful. 72693°—26----- 7 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 92 FOSTER-HOME CARE FOR DEPENDENT CHILDREN, It is possible in certain situations for such committees to approach city councils, city managers, or county boards of supervisors to pre sent the possibilities o f service by the State children’s agency for the dependent children o f the city or county. Sometimes arrangements can be made on a strictly business basis for the city or county to pay for such service, and thus support the child caring o f that city or county by taxes, while leaving the agency entirely in the hands of the private citizens. Financing the poorer districts. Along with the decided advantages o f getting support for such work from pity community chests and public funds is the difficulty of providing for the cost of administration o f the State society and its unrecompensed services to the more destitute districts. City or county taxes can not be drawn upon to pay for this outside work. Funds from community chests, however, probably can be secured in gradually increasing amounts from year to year, as the socially minded people who contribute to these chests are made acquainted with the valuable character o f the state-wide service. Leaders in the city welfare movements can be brought to recognize the responsi bility o f the centers of wealth to send assistance to the neglected children o f the rural and poorer sections. One instance may be cited as an illustration, that of the largest city o f the State, where a large lump sum is appropriated each year from the community chest to be used in rural places by the state-wide children’s society. In other cities the cost o f State administration is provided for in the budgets of the federations by payments toward secretarial service at the head quarters, supervision of children in foster homes, cost o f transfer, or other service. The specific expression o f this willingness to help support the State society depends largely upon the mental attitude of the executive and o f the budget committee o f each community organization. Local self-administration. One o f the last steps in the development o f local responsibility is bringing the local board to assume actual administration of affairs. Inasmuch as the State board o f trustees is legally responsible for all that the branch executive does, including the debts incurred, it is necessary that close contact be maintained through the State superin tendent. He must from the start control the situation, and must maintain this influence by the establishment o f mutual confidence be tween himself, representing the State board, and the local directors and executive. He must see to it that he deserves their confidence by getting their point o f view and really caring first for their inter ests. It is always a mistake for the State executive to think more of https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis WORK OF A STATE-WIDE CHILD-PLACING ORGANIZATION. 93 his State organization than he does o f the interests o f the particular community which that State organization is expected to serve. The nomination o f the local executive should be by the State execu tive, because o f his appreciation o f the necessary qualifications; but the confirmation o f such nomination should always be the privilege and duty o f the local board. No person should be intrusted with the direction o f the branch work who is not satisfactory to both parties. The surest way to create interest and maintain it on the part o f the branch board is to ask them gradually to assume the responsibility, and finally actually to administer affairs, including the funds. A t the start it is usually necessary to have the money pass through the main office o f the society. But when it can be worked out, it is best to let the branch become responsible for the support o f the work and also for the payment o f salaries, board for children, clothing, rent of office, cost o f automobile, and other expenses. In addition, they will be expected to have sufficient interest in the State society to make appropriate payments toward State administration. With branch organizations thus developed and with members for the State board of trustees chosen from these widely scattered but loyal local advisory boards, the state-wide society becomes a mighty force for child wel fare, an excellent example o f unity in diversity. DEVELOPING SPECIALIZATION IN SERVICE. The principle o f specialization is sound in administrative matters and should be applied to the development o f the service o f child placing. The details in working it out will depend considerably upon the size o f the organization, the number o f workers, and the types of territory covered. Any person can do one thing better than he can do certain other things, and he can do that one thing best i f he puts his attention wholly upon it. It is our experience that the soliciting o f money' and the doing of case work with families and children belong to different fields. So far as possible, then, the person who is specializing in one should not be expected to do his best work in the other. There is hardly room for argument against this on the ground o f economy, for it seems certain that with a staff of, say, two field workers, the sum total of results would be greater and better if each does one kind o f work than if both do both kinds. The loss involved in failure to follow up leads in either type o f activity in order to do something in the other line has proved in actual practice to be a distinct loss for both departments o f the work. In the subdivision o f the children’s work different policies must be adopted for different situations. In the branch where one worker https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 94 FOSTER-HOME CARE FOR DEPENDENT CHILDREN.’ is put in charge at the start, she has the whole job to do. She must investigate cases o f neglect and dependency, transfer children, supervise foster homes, and keep her own records. Yet even this one representative o f the society in this field often can put into practice the principle o f specialization, as she becomes the co ordinator o f the various allied agencies o f the city or county, by utilizing in behalf of children under her care ^specialists in health or recreation or education. Just as soon as the branch develops sufficiently to make possible two workers specialization begins within the organization. Perhaps the assistant will be given the clerical and record-keeping part, in addition to certain of the simpler interviewing and some of the easier field work; while the executive retains for herself the more important investigations, supervision o f certain foster homes, and delicate situations with behavior-problem children, and also keeps office hours for important interviews. When the number o f workers has grown sufficiently to make it practicable two or more distinct departments may well be estab lished. Perhaps the division will be into “ investigation” or “ in take” and “ child-caring.” Perhaps there will be one department, or at least one person, doing only “ home finding” ; that is, looking up and certifying homes to be used for boarding, free, or adoption homes. These details need not be discussed here. But in all cases there should be definite specialization in the work in order to have it done well. The application o f this principle to the state-wide agency is partic ularly important, since the agency has to deal with the larger terri tory where traveling workers are depended on to give the service. For such territory there seem to be at least three kinds o f service, sufficiently different to offer ground for classification. First, there is the investigator of new cases. W ord comes from various direc tions calling attention to cases of alleged neglect or dependency. There must be one or more persons, depending on the size of the field, ready to go without great delay to investigate the facts and the needs and to respond to emergency calls. Second, there will be the home visitor. Her work is to go quietly and inconspicuously from home to home to decide whether the children are wisely placed and whether they are developing well, and by personal contact and advice to assist in the adjustment of difficult cases. Such a visitor will.usually not hasten from place to place, as the investigator does, but will finish one town and district before she goes to another, although o f course emergency cases for this visitor to handle will arise, and she will go here and there to keep in close touch with certain special cases. But there is a difference between https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis WOBK OF A STATE-WIDE CHILD-PLACING ORGANIZATION. 95 the two types o f work, and it will be found that one person can do one o f these two kinds o f service better" than the other. The third kind o f service probably calls for a different sort o f preparation and ability from the other two. For this is needed the traveling nurse or attendant, who takes children from one part of the State to another. It is extremely important that this work should be done by the right person. In the case o f infants, for example, much depends—sometimes life itself—upon the physical condition of the child at the end o f the trip. The division o f the traveling children’s workers according to this triple classification is justified in practice by the quality o f service resulting, and it is not prohibitive for any society because o f any appreciable increase in cost o f operation. A by-product o f such specialization in service is the raising of the standard o f work in the many social agencies with which con tacts are made in the various communities o f the State. Some o f these local agencies are in the early and cruder stages o f develop ment. The State society has the opportunity, either by friendly suggestion or by example, to improve the methods o f many such community organizations both in case work and in record keeping. Here, as in other kinds o f service, the State organization can make available for the less advanced places the best methods to be found in the most advanced communities. Its influence may reach even further; institutions will imitate the method of boarding out chil dren in homes, and church orphanages will begin to reduce their population by placing out children in approved families o f their connection. EXERTING INFLUENCE BEYOND THE CHILD-PLACING FIELD. There are possibilities o f influencing public opinion, legislation, and administration o f State offices with consequent social and eco nomic changes, which would mean more for the future welfare o f children than the finest and most elaborate system o f placing out in the present generation. The executive officers and board members must be able to see be yond present situations into future possibilities, and beyond the boundary lines o f their own organizations into the larger field of preventive and constructive measures for child and family welfare. Even in the immediate field o f child placing effort should be exerted outside the activities o f the particular society, to bring about better State and county organization. One aim should be to make support from State tax funds available for service to special classes o f handicapped children. Another, to secure a State law making permissive the establishment in every county o f a county childI*“''-- https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 96 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. welfare board or department. Another, to create a child-welfare department or division o f a department o f the State, with competent personnel, having supervisory relations with these county boards. Another, to help the State department to do many o f the things for children which at present private agencies must do, and thus to allow the private agencies to progress into new or more difficult fields o f service. The most enthusiastic supporter o f good child placing surely can not think o f this same work going on and on interminably. It is the duty o f those engaged in this kind of service so to work and exert their influence that the time will come when child placing shall rarely be needed. For after all, the placing out of children—whether in adoption or in boarding homes—is an abnormal arrangement. It would be better if the natural parent were competent to keep his child, and i f the foster parent could have children o f his own. Even in the granting o f allowances to parents so as to prevent the separation of the child from his family, the situation is an abnormal one. It would be far better if social and economic conditions and the character of the parents enabled them without extraneous aid to provide a good home. Again, in dealing with cases o f illegitimacy one is constantly impressed with the ultimate hopelessness of the problem in the large, unless sometime, somehow, we can get behind the individual cases and deal with the social and economic causes o f illegitimacy. Since legislation and most other movements affecting general con ditions are state-wide in character, a peculiar obligation rests upon the state-wide children’s agency. The child-placing organization, with its widespread constituency reaching out into every section of the State, should have broader interests than merely its case-work activities. It should be actively influential in bringing the day when—to speak ideally—the Care and placing out o f homeless chil dren shall belong to the outgrown past. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE DEVELOPMENT OF PLACING-OUT WORK BY INSTI TUTIONS. K a t h a b in e P. H e w in s , G en eral S ecreta ry, T h e Church H o m e S ociety, B o ston . Placing out by child-caring institutions is no new thing. It is practically as old as the institution idea itself, in spite o f a popular no tion to the contrary. The very phrase “ placing out ” probably orig inated as connoting the opposite o f “ placing in.” In spite o f much hesitancy in the formal acceptance o f the method and o f very great differences in procedure it is none the less true, if the term is used in its broadest and most inclusive sense, that placing out has been resorted to by practically all orphanages.1 That this has not always been done under the banner o f placing out nor according to the most accepted modern standards does not alter the fact that many children have been put into family homes, often for adoption or by indenture and more rarely with the payment of board. The whole history o f placing out is so interwoven with that of institutional develop ment that it is difficult to determine which began first. The by-products o f an industry have proved on occasion to be quite as serviceable to mankind as the major products. Some insti tutions have found this to be true o f their placing-out work. Their histories as recorded in annual reports show that seldom, if ever, has placing out been done at the outset in other than a desultory, half hearted manner and always “ on the side.” I f there is an instance of an orphanage which has entered upon placing out with deliberate intent and equipped itself with a staff o f workers for this avowed purpose, its experience is unique. One agency began work as a missionary society, its representative literally walking the city streets offering good advice to the children whom he encountered. From time to time he placed certain o f these children in free homes. Later on the need was felt o f a “ home ” where temporary care could be given, and in consequence one was 1 The terms “ orphanage ” and “ institution V are used interchangeably in this article. Orphanages, popularly supposed to shelter children bereaved o f one or both parents,' seldom so lim it their intake. The United States Census o f 1910 showed that o f 111,514 children in institutions at the close o f that year 65.4 per cent were orphans, h a lf orphans, and foundlings. No distinction between these different classiflcations was possible because o f lack o f uniform ity in record keeping am ong the various institutions. 97 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 98 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. established. The emphasis for a time thereafter was on provision for the immp.dia.tft shelter of abandoned and neglected children, who were later put into family homes. Gradually sentiment swung toward the provision of more permanent care in the institution, and for a decade or more the annual reports o f this society were given over largely to a description o f this phase of the work, touching only lightly on its placing-out service. Again the emphasis shifted, and for a second time the institution became the minor factor. Finally it was abolished and was superseded by placing out, accord ing to up-to-date methods, for all the children coming under the agency’s care. FACTORS WHICH ACCELERATED THE DEVELOPMENT OF PLACING OUT. Sooner or later every child in an institution will reach an age at which it will become both impractical and undesirable for him to remain longer within its walls. Even though the most ideal condi tions prevail, there comes a day—it may be when he is 3, 7, or 12, or in some instances not until he is 16 or 18 years o f age—when the children’s institution is no longer equipped to minister to his needs. A t this point any one of several things may happen to him. He may go to another institution for education or correction, or, as in the case of the feeble-minded, for custodial care; he may reenter the community by returning to his parents or other relatives; or he may go to a foster home, free or for board. Infant asylums meet the situation by transferring to institutions for older children those babies not claimed by death or placed for adoption who reach a stipu lated age, usually 2 years. The institution planned on the congre gate system and housing older children o f both sexes must cope with the problem of sex segregation. A practical reason for informal placing out, and one which has operated, even against the will o f institutionally predisposed per sons, to bring about the substitution of the family home for the more formal care of the orphanage, is the pressure to receive more chil dren, and the consequent necessity to provide acommodations for them. I f children remain too long, the institution becomes clogged at the point o f entrance. The superintendent of a mid-western orphan asylum, writing of the development of placing-out work, says: “ The institution was rapidly filling, so the next step was to find homes in the country for these children. This went on for sev eral years, and our institution family was constantly changing.” A review o f the, annual reports o f a group of societies, covering 50 to 75 years of institutional work, reveals that they made almost no inquiries prior to the reception of children. Had it been otherwise, https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OP PLACINU-OUT WORK BY INSTITUTIONS. 99 hundreds would have been found not to need institutional care in the first place, and in their cases the problem o f after-provision would not have arisen. Many should have been kept with their mothers; others should have been given homes with relatives. How large this number is can never be known. It is certain, however, that crimes against the rights o f little children have been allowed in the name of charity, and, it must be admitted, continue to be committed at the present day. The decision to separate a child from natural ties should not be made until all reasonable efforts have been ex hausted to develop family resources. In the face o f the necessity of relieving the congestion in the orphanage it was but natural to select for other forms of care those children who failed to adjust themselves to its régime. Such mis fits include a miscellaneous lot o f children who, because o f physical handicap, temperamental peculiarity, exceptional mental ability or disability, or other distinctive characteristic, were stamped as undesirable members of the congregate group. Either they them selves did not flourish in the routine o f the institution or they did so at the expense of the other children. These were the so-called trouble-makers known to every institutional administrator, and some thing had to be done with them. Placing out was resorted to for such children as an expedient in a dilemma, and not necessarily be cause the method was held in high esteem. Far-fetched as it may appear, the elements o f water, wind, and fire have made their contribution to the development o f placing out. The destruction o f a dormitory wing or a dilapidated cottage has wrought wonders in this respect. Necessity is a compelling motive, and family homes may be used at very short notice, especially when selected without too much regard for the niceties. One orphanage, which ultimately adopted placing out for all its children, began by using foster homes for the boys as they reached the age o f nine years. This was not done because the board o f managers were unanimous in their approval o f the method. Far from it. It was resorted to simply as a practical expedient when the boys’ dormitory became un inhabitable. In another instance a society had outgrown its city location and desired to move to the country. Here placing out came as an afterthought, when no suitable site could be found. FORESHADOWING PRESENT-DAY PLACING METHODS. How well placed-out children meet the exigencies of their new life depends in part on the training and equipment given in the in stitution from which they are sent forth, as well as on the safeguards which are placed around thèm as they enter and continue in their https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 100 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. new environment. In the early days trustees and managers gave marked heed to the first o f these conditions, but took little or no responsibility for the adjustments o f wards who had left the pro tection o f the institution. In an annual report o f an orphanage for 1859 is recorded the sig nificant fa ct: “ One boy was withdrawn by his mother, who stated that she was able to provide for him.” On another page the same report states: “ The committee corresponds with all who have been dismissed from the home,” and, as if in confirmation, the following letters received from a foster father and his charge are cited: A s James can not write for himself, or but imperfectly, I have taken the liberty to send a line or two merely to let you know that he is well and com fortable, is not homesick, and seems to enjoy himself much. H e has attended church and Sunday school punctually since he first came. H e tells me to tell you that he has been a good boy and does not wish to go back. H e sends his love to his brother and yourself. [J am es:] I received Miss M ’s letter and I received your letter some time ago with the sled and other presents, and I am much obliged to you for sending them. I take this opportunity to write, as Mr. B is going to Boston to-morrow and I thought he would tell you how I got along and what I am doing. I can drive oxen to plow and I have the care of all the hens, and I brought in from the hens 22 eggs to-day, and Mr. B has two men beside me and he says that if I pick stones pretty smart for two days I might go afishing. I drive the cattle to pasture every morning and bring them home at night. I am glad to hear that Frank has got a place. Such evidence o f effort to keep in touch with the children, slight as it may seem in the light o f modern follow-up methods, indicates a spirit that in later years expressed itself, through this particular orphanage, in more and more placing out with constantly improved means o f supervision. As early as 1842, an institution which 50 years later formally adopted placing out as its method o f child care, made mention in its official report o f children dismissed to relatives or placed for adoption. It was not until 1855, however, that this organization made its first casual reference to “ hearing occasionally from those given for adoption’’—some 15 years after the first child was thus provided for. Three years later the following reference was made: “ These children are first received in the institution * * * until they are o f a sufficient age and are otherwise prepared to be useful in families, to which they are indentured for a term o f years.” Again no hint o f supervision. One orphanage disposed of the whole question o f the afterlife of the children dismissed for a certain year with the short sentence: “ Others have become o f age and have been provided for elsewhere.” Sporadic accounts o f how boys and girls progressed after leaving institutions filtered back occasionally through various informal channels. For example, an annual report https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OP PLACING-OUT WOKK BY INSTITUTIONS. 101 o f 1881 reads: “ About a year ago our matron * * * met a farmer who said: ‘ I was a boy in that home once and had a sister there whom I have long been trying to find. It is worth noting that this matron made such vigorous and well-directed efforts as ultimately effected a reunion between this brother and sister so long lost to each other. CRUELTY OF WHOLESALE SHIPMENTS OF CHILDREN FOR PLACING OUT. In any chronicle o f the development o f placing out reference to a certain dark phase o f this work can not be omitted. This relates to the wholesale disposal o f children by sending them out by the car load to distant States, there to be distributed among families almost as though they were put upon the auction block and knocked down to the highest bidder. In 1857 such an expedition was made from Bos ton to Chicago, three days being occupied in the journey. In 11 days homes had been found for 46 children, and applications for 30 more were in hand. An annual report o f three years later, referring to an incident o f this sort, reads: “ A large church was opened the morning after our arrival. * * * Our plea for the children was re sponded to in the most friendly and satisfactory manner, and in a few hours every child had found a new and, we trust, Christian home.” Thousands o f children have been lost track o f forever by this unspeakably careless and cruel method o f placing out, which has prevailed in some parts of the country up to very recent years if indeed it is altogether abandoned at the present time. FACTORS WHICH RETARDED DEVELOPMENT OF PLACING OUT. Opposition o f superintendents and matrons. A militant force in retarding the development o f placing out has been the hostile attitude o f many, though not all, superintendents and matrons. To guard jealously against what appears to be an in vasion o f one’s own territory is instinctive, and most institutionally minded persons view placing out as an entering wedge destined to pull down the very bricks and mortar around which their interests center. Trained to see things from a particular angle, they natu rally hesitate to accept such a radical change as is involved in family placement. They have fought honestly for the retention of the in stitution, fearing a loss to the placed-out child o f an opportunity for his fullest development—placing in their minds being synonymous with exploitation. In view o f the methods previously discussed, such a sentiment may well have been based on personal observation and comparison o f the best institutional methods with the results o f random placing. The weakness of their argument lay in the very https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 102 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. marked difference between the best o f one method and the worst of the other. “ I f safeguards do not follow every child assigned to foster-family life, the child-placing movement may become the strongest kind of evidence in favor o f institution care,” says a well-known child-care expert. With no experience as to what these safeguards should be, children have been allowed, not infrequently by these same adverse critics, to go to family homes many o f which have not even been visited and about which little is known beyond the general impres sions gained through a call at the orphanage by the prospective foster mother or the recommendation o f a friend, or perhaps the generally favorable representations o f the local clergyman. Small wonder is it that children thus carelessly placed, who later have been returned to the institutions as “ unsatisfactory ” (that all-inclusive term), should bring back with them such tales,of indifferent care, or even actual abuse and neglect, as tended to confirm previously formed prejudices. One who is traditionally rooted and grounded in the belief that the only way to provide for destitute childhood is by the mass method argues that only thus can it be insured that the child will receive -three square meals a day and a comfortable bed and that only thus can all his time be accounted for and his ac tivities supervised. The argument may be developed from a wrong premise but at least it indicates a sincere and earnest desire to pro tect innocent childhood. The more or less sporadic cases o f placing out that come to the notice o f institution officials, being on the whole o f the kind disapproved most o f all by advocates o f good placing out, tend to strengthen this original belief. Their horizon narrowed by the constant and insistent demands o f institutional responsibili ties, superintendents and matrons generally lack the interest to pur sue inquiries along lines foreign to the training and experience of the average institution head. Only the exceptional superintendent or matron is professionally inquisitive enough to take time to study the technique of foster-home finding and supervision which observa tion and experiment have slowly evolved for the child’s protection. A ttitude o f parents. Another factor in the retardation o f the movement is the attitude of the parents themselves. A minority, to be sure, but still one large enough to be given consideration, prefer to have their children in the institution. To these parents the very tangibility o f the build ings makes its appeal, as against the vague idea that they have of the foster home; and until they can be shown that the latter is really watched over, they very naturally look upon it with suspicion. Stories o f abuse and neglect in family homes are cited in support o f their preference. Sometimes consciously, but more often un https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OF PLACING-OUT WORK BY INSTITUTIONS. 103 consciously, these objections o f the parents are encouraged by o f ficials o f the institution, who in turn use them as- arguments to support their own contentions. Absentee trustees. Boards o f trustees, proverbially composed o f esteemed and con servative gentlemen well known in their several communities for sagacity and business integrity, took, especially in the early days, only a remote interest in the actual management o f the institutions for whose conduct they were accountable. The investment and con servation o f funds was their chief concern. This and an annual meeting, at which the report o f the lady managers was accepted and an appropriation made for their further use of a sum never in excess o f the income from endowment, were generally regarded as the sum total o f the trustees’ responsibilities. Somehow it never seemed to be any considerable part o f the duty of these men to inform themselves personally as to how their respective institutions were being con ducted, nor to concern themselves, except very remotely, with in quiries into the aftereffects o f institutional life on their wards. The early by-laws o f one organization made provision for more activity on the part o f its trustees, specifically directing them to assume cer tain obligations. A later report referred to difficulties encountered in living up to these requirements: “ In the original plan of the society it was provided that the gentlemen o f the board o f trustees should exercise the same care and supervision over the boys that the lady managers did over the girls, but of late years this excellent custom has fallen into disuse.” Subordinate position o f women’s boards. The “ managers ” were a subordinate board of women, usually ap pointed by the trustees and, except in minor details, given little or no ultimate authority. They had their assignment, however, and it was one that demanded concentrated time and labor. Charged with the management o f the internal affairs of the orphanage, they were in trusted only very remotely with the formulation of policies. Subject to the restrictions and regulations imposed on them by the superior board, they were free to run the institution; to engage and dismiss the employees; to make regulations with regard to the admission and dismissal o f children; and to minister to the children’s needs, both physical and spiritual, during their stay. The yoke o f the trustees must have rested heavily in some instances. One annual report re lates that “ The result was * * * the adoption o f a new consti tution giving more control to the board o f managers as to the internal arrangements o f the home, and left the investment o f funds and the control o f all finances o f the society, with the exception of annual https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 104 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. mbscriptions [the italics are the present writer’s] in the hands o f the board o f council.” The members o f the board o f managers were selected from the same social group, and frequently from the same families as the trustees. Nevertheless there was a gulf fixed between them in matters relative to the conduct o f the affairs o f the organization that was hard to bridge. The trustees, with their big business interests, had an attitude o f smiling condescension in the making o f an allowance to the managers í o t their “ charity.” The latter, in turn, showed a patient gratitude. When the two ends did not meet, the ladies supple mented the grant from the trustees with amounts which they con tributed or else secured through personal and often valiant solicita tion. FORCES IN THE EVOLUTION OF MODERN PLACING-OUT METHODS. Personal interest o f * managers.” The board o f managers usually met once a month. During the interim committees on repairs, dry goods, provisions and groceries, fuel, and admission did yeoman service. The good women knew the children by name as well as by sight; they visited the infirmary, inspected the ice chest, had personal experience with the brokendown rocker, and were choked by the smoke emitted by the defective kitchen flue. On Wednesday—or was it on some other day ?—-the admission committee met regularly, rain or shine, summer as well as winter. For two or three hours its members listened patiently to pathetic stories o f fathers and mothers who appeared in person to plead that their Josephs and Hannahs be given shelter. In the after noon, taking time only for a hurried lunch, these same managers would storm the offices of busy men o f affairs with stirring appeals for help, which seldom failed o f response—from the request for $100 to replace the threadbare stair carpet to $1 for turkeys to gladden Christmas Day. Personal, direct, and frequent contacts o f such a homely nature could not fail to have their beneficent effect on the understanding of the practical problems connected with the daily lives o f the children. The managers knew what was happening in the institution and some thing of what befell the children when they left it. Managers o f one orphanage met those from another and exchanged experiences They gathered, not by prearrangement nor in formal conference, but socially and accidentally. Common problems have a way' of-creep ing into everyday conversation, and such difficulties encountered in the institution as the age limit, segregation o f the sexes, the inciter of mischief, the delicate child, the high mortality rate of infant asy https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OF PLACING-OUT WOEK BY INSTITUTIONS. 105 lums, all had their turn at fashionable watering places and over the teacups on the cool and shaded verandas among the mountains. Here and there appeared isolated instances o f women dissatisfied with the institutional method as the sole means o f caring for de pendent and neglected childhood. When a manager took a delicate child into her home and gave him a summer o f fresh air and per haps companionship with her own children, as is chronicled in the early annals o f more than one orphanage, her action was prophetic. Recognition o f the need fo r supervision after placement. In the earliest examples o f placing out, as has been remarked, little or no cognizance was taken of the need for supervision. It was enough that the child was given wholesome care while in the institu tion. Having arrived at a certain chronological age, he must go forth and thereafter depend upon himself or such chance friends as fortune might send. When suitable homes could not be found near by for two “ not bad boys, but full of health and activity,” a report relates how they were sent for adoption to a far distant State, “ where they are apparently surrounded by helpful Christian in fluences.” However, occasional rumblings as to the need o f aftercare, super vision, or whatever else it may be called, for children leaving insti tutions were heard even in the very early years of placing out. “ Applications have also been made to adopt some o f the children, and the board of managers propose to appoint a committee on dis mission. * * * Such children should not be allowed to pass en tirely from our protective influences, * * * and the persons who adopt them should be required to keep us advised o f their welfare and progress.” Thus reads the second annual report, published in 1858, of an orphanage that from its very beginning sensed the need o f protective measures for those o f its wards who left the shelter of the institution. An annual report for the year 1876, referring to the subject o f finding homes for those who had “ overstayed their time,” states: “ When we remember that these children, with few exceptions, are obliged to go forth at 12 years o f age with no safe guards o f family life around them, * * * it becomes a constantly recurring question what to do with them as they get beyond the bene fits of a home constructed only to educate and protect them in their unprotected, helpless years.” The very marked dissimilarity between placing out as practiced in early times and the more modern conception has important im plications. It is a distinction in technique, to be sure, and a very marked one. This distinction in turn has its roots in a far more significant difference, due to the growth o f a conscious recognition https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 106 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. of responsibility for the child during later years, as well as while he is in the orphanage. Interlocking directorates. In more than one instance family-welfare and kindred social agencies have played an important though usually a quiet and fre quently an indirect part in the development o f placing out by insti tutions. Interlocking directorates, when not carried to an extreme, may make a good medium for the exchange of ideas between organi zations. The manager of a children’s orphanage who is at the same time a member o f the case committee in a family-welfare society is in a strategic position to accept and pass on views of family life that may vitally influence policies. It takes very little yeast to leaven a whole lump. Not, however, until one has personal knowledge of how strong an influence for careful and intelligent placing out an indi vidual may be, will one realize the full force of this statement. Quietly and tactfully, in instance after instance, such a committee member may bring to bear the argument for an approximation of normal family life for children deprived of their own homes until, often against its own will, even a conservative and institution-favor ing body of directors will come to see the advantage of placing out for the majority o f these children. METHOD OF INTRODUCING PLACING-OUT SERVICE. Given a recognition on the part o f a single board member of the value in principle of placing children in carefully selected and as carefully supervised family homes, plus an open-minded matron willing to cooperate in an experiment, and the time is ripe for intro ducing a placing-out service. Before actual operations may be begun formal consent to the experiment must be secured from the board, and some one equipped to carry it through must be at hand. The former requisite is usually the easier to obtain, particularly if the hypothetical board member who advocates foster-home care has been preparing the others by a tactful and judicious sowing of the seed. I f he will submit to training in the threefold art o f investigation, homefinding, and supervision and will then devote enough time to making a demonstration, this is the simplest way o f beginning, since it involves no additional expense. It is, furthermore, an admirable method of firing the imagination and inspiring the enthusiasm of other board members. I f no board member is prepared to take this training and to contribute his time to the cause, some other plan should be devised. For example, a near-by child-welfare agency may be asked to lend a worker. This is defensible cooperation to ask. Courtesies o f this nature have been cordially extended from one agency to another on the basis of a mutual interest, but such a re https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OF PLACING-OUT WORK BY INSTITUTIONS. 107 quest should be for a limited experimental period only. The third and best plan is to provide for the salary o f a trained social worker, either through the budget of the institution or through a special contribution. This person should be made directly responsible to the board, and should investigate applications for admission to care as well as provide foster homes and supervision for children who are ready to leave the institution. REQUISITES OF APPROVED PRESENT-DAY METHODS OF PLACING OUT. Careful selection o f children to be placed. The board being at least quiescent, if not enthusiastic, in its atti tude and an especially qualified person being available for the under taking, three essentials o f a good program o f placing out must be considered. The first is the method o f selecting the children to be placed. Not all children are placeable. By maintaining the oppo site some advocates o f placing out have done great injury to their own cause. I f the selection is to be made from the children already in the institution rather than from new applicants, very great care should be exercised not to lay too much stress one way or the other on the child’s reactions to the group life. Many children act in quite an opposite manner inside and outside institutions. It is wholly unsafe to predict from institutional experience alone how a child will adapt himself to the less formal life o f a family. The child’s conduct in the institution, his relations to its inmates—children and staff alike—are exceedingly valuable evidence, but their value as such is greatly enhanced when they are considered in conjunction with facts of heredity and early environment. By themselves they tend to give a distorted impression o f character potentialities. The so-called good child o f the institution— docile, obedient, and quiet under a formal régime—may prove quite unequal to coping with the emer gencies that arise in the everyday experience o f ordinary family life. His conformity may be due to retarded mental development or even to feeblemindedness. At any rate, these are possibilities to be considered. The converse o f this is the good adjustment to normal community life that is sometimes very strikingly shown in the case o f a placed-out boy or girl formerly rated as abnormal and the terror o f the institution. Careful selection o f foster homes. The second requisite, of equal importance with the selection of the child, is the choice of a foster home. A ll that has been said about care in selecting the child may be said also with reference to the home. It is obviously futile to choose a child for placement unless at least a fair chance exists that a home of the right sort is open to 72693°—26----- 8 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 108 POSTER-HOME CARE FOR. DEPENDENT CHILDREN. him. No one should be intrusted with the delicate task of adjust ing a child to a foster home* wheither it be free, wage, or board ing, who is not trained and qualified, to make a painstaking and sympathetic inquiry into its resources, moral and financial, to study the comfiaunity setting, and to appraise the character qualifications o f each member o f the family,, all in terms o f the need o f the par ticular child under consideration. A general but hazy desire on the part o f a man or woman to be o f service is o f itself no guaranty of the capacity to create a favorable atmosphere for a child’s best de velopment. Families eminently qualified to care for some children are totally unfitted to receive others. The boarding home located in an unattractive district and perhaps lacking in educational and re creational opportunities may be the one to give superior care to delicate infants, especially i f it is presided over by a woman who not only loves babies but has had experience and training in their eare; the home o f a couple, however intelligent, with a 16-year-old boy of their own would be wholly unsuitable for the reception o f a young girl with irregular sex tendencies. The free home eminently qualified to give permanent care to a young child would be ill adapted to one with relatives to whom he is likely to return in a few months or to a family o f children whose parents are unable to provide a home but can and should visit them frequently and help in their support. Children o f working age need as careful placing as younger ones; An institution that keeps its wards up to the age o f adolescence has the peculiar obligation o f seeing that they go into families that will give them some measure o f affection and interest and do not look on the acquisition of “ an orphan-asylum charge ” merely as a means of solving their own irritating servant problem. The desire to se cure cheap help leads many a harassed housewife to turn to an orphanage in quest o f “ a strong, willing, and capable girl, who will appreciate a good home.” The requirement o f deference, obedience, and gratitude in return for hard work, an attic room, and a picayune wage forms a sorry outlook for juveniles carefully reared in an in stitution. It is becoming common knowledge that the transition from a protected;, artificial setting to the unaccustomed freedom of community life is a difficult adjustment at best for the adolescent child, who finds himself under a heavy handicap in competing with his peers. Little wonder that many children long for the protection o f the institution, with all the attachments that it holds and the op portunities which it offers for congenial social intercourse.. Nor is it surprising that kindly matrons who have learned to love and understand these children recoil from their accounts of the bareness o f their lives outside o f the institution. The fault lies not in the fact o f allowing the girls (and the same is true in principle o f the boys) to go into family homes on a wage basis; the offense is that https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OE PLACING-OUT WORK RY IN STITUTIONS. 10& too little is known about these foster homes in the first place, and that too little oversight is provided to insure a continuing knowledge o f conditions. Adequate supervision. The third fundamental in a right development of placing out from institutions is equipment for adequate supervision afteF the child is placed. Only through intelligent oversight can placing out reach its maximum possibilities as a system o f child care. It is as chimeri cal to expect success from a method which involves the use o f many homes, often in a widely scattered area, without a personnel sufficient to cover the field, as to undertake to run an institution without a staff. I f it is true that the institution’s responsibility for its wards reaches beyond its threshold, then it follows that supervision must be given to every type of home. The boarding home which receives compensation from the organization placing the child is the one over which supervision is perhaps easiest to establish and maintain. Here, as elsewhere, the best results are obtained not by the spy and big-stick methods o f authority, but through a patient, friendly, and constructive oversight on the part o f the visitor with a reciprocally frank, cordial, and receptive attitude on the side o f the foster parents. This is a partnership job, the common business being the welfare o f the child. Allusion has already been made to the neglect o f the wage home from the standpoint o f supervision. Farmers and housewives who receive children on a wage basis have not always been looked upon by the institutions as foster parents. Many of these persons have been led by wise supervision to recognize their obligations and to take a right attitude toward their charges. Once convinced o f their responsibilities, these employer foster parents have added to the small wages opportunities for schooling, for companionship, and for ultimate advancement. The home that has had the least and might seem to need the least supervision is that o f the well-to-do and intelligent couple who have adopted a child because they are fond o f children and have none o f their own. Suppose that the character of the prospective parents is above reproach, as is their motive in adopting; that bar ring unforeseen circumstances, the financial situation is secure; and that a high degree o f intelligence exists on the part o f both the adoptive parents. Where, one may argue, is the advantage o f im posing on such a situation a follow-up which can only irritate, which hinders the absorption o f the. child into the normal family life, and which can be o f no possible benefit to either side. The child will receive precisely the same care and affection which would have gone to an own child had there been one. Unfortunately, there https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 110 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. is enough evidence on the other side to argue for very careful super vision over an extended period o f time for all children placed for adoption. It is more and more conceded to-day by the best childwelfare agencies that supervision should continue in such cases up to the time when the court actually consents to the adoption, and at least a year is insisted upon for the trial period by those who have given the subject most thought. After legal adoption takes place most agencies feel that they have no further right to continue oversight, though a minority are coming to believe that the inter ests of the child, the family, and the community require something more. Unless this is provided, in thousands o f cases, the actual re sults of adoption can only be conjectured. Some, perhaps many, of the children placed for adoption make a good adjustment, marry, and continue the line of succession without serious difficulties; others, after years o f struggle between temperaments which clash, reach the breaking point, often with disastrous results to family and child alike. No one knows what proportion of the total adoptions belong to each group, nor can this be determined except through some method o f follow-up that combines great discretion and due regard for the rights o f all concerned. Child-placing agencies get an aftermath o f unwise adoptions, un wise sometimes in a way that could not be seen at the time o f place ment. One such instance is that of a well-to-do young couple who adopted a baby boy about whose heredity little was known. Be lieving in the strong influence o f environment, they were content to receive him when assured by laboratory tests that he was free from venereal infection. As the boy approached the adolescent period he o-rew wayward and troublesome, and a complaint was finally lodged against him in court as a stubborn child. A t this critical moment he was given a psychiatric examination, which showed him to be possessed of unusually superior mentality, far above that o f either adoptive parent. Here was a case o f maladjustment, quite as extreme as though the child had been feeble-minded in the lower range. A follow-up on the part of the institution respon sible for this ill-matched adoption should have disclosed the un usual caliber of this boy’s mental equipment in his early youth and averted the subsequent tragedy o f unhappiness and disappointment. Even though it had not been thought necessary to remove the boy from the home, he might have been given opportunities for a free development o f his faculties and so provided with an outlet for ac tivities. As it was, they were dammed at the source and burst out in undesirable ways. Intelligent foster parents—boarding, free, wage, or adoptive— usually welcome advice from some one experienced in dealing with' https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis DEVELOPMENT OP PLACING-OUT WORK BY INSTITUTIONS. I ll considerable numbers o f problems similar to their own and look on a qualified visitor, as guide and counselor. There is no thought of espionage in their minds. Supervision holds strictly to account the ignorant but well-meaning and the willfully negligent, who need special treatment, and most o f whom probably ought never to have been given children in the first place. CONCLUSION. The inclusion o f placing out in institution programs has made slow but steady headway. The heavy endowments with which some orphanages are cursed, the “ absentee landlord ” methods o f trustees, and a certain timidity on the part o f managers, these, combined with direct opposition from superintendents and matrons, are some of the forces which have tended to delay its introduction. It is im portant to note that in spite o f such handicaps, however insignificant and casual the beginnings and whatever the origin (a manager, a progressive matron, a far-seeing trustee), wherever it has been given a fair trial placing out has won its way and has either been accorded a permanent position in the institutional scheme or superseded it entirely. There are still institutions which maintain a restrictive attitude to any system which goes by the name of placing out, though, curiously enough, all of them are continually putting children into families for indenture or otherwise returning them to the commu nity. The general tendency, however, is toward placing out, and illustrations are numerous. One orphanage now provides a subsidy to mothers capable of caring for their own children, thus preventing the children from ever reaching the institution stage. Another institution has re cently joined hands with a child-placing society, the former to provide immediate shelter and observation facilities for problem cases, the latter to find and supervise family homes for children suitable for placement. In numerous instances children’s institu tions have been entirely abandoned in favor o f child placing, the buildings frequently being made available for homes for the aged, for hospitals, or for kindred useful purposes. The United States census for 1910, which furnishes the -most recent figures available on the subject, lists 39,927 children—27 per cent of the 147,997 children then in charge of institutions— as being “ outside but under care.” “ The responsibility o f an institution for the well-being of a child committed to its guardianship does not cease with its place ment in a family home, except in case of legal adoption. In all other cases the institution is expected, and in some States is required, to keep a careful watch of the conditions in the family where the child is placed, with a view to change, should it seem desirable.” 2 8 U. S. Bureau o f Census : Benevolent institutions, 1910, pp. 26 and 31. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SAFEGUARDING THE DEPENDENT CHILD’S PHYSICAL AND MENTAL HEALTH .1 H ob a c e . H. Jen k s, M. D., D irec to r o f A sso cia ted M edical Clinic, Philadelphia. The lot o f the dependent child at best is rather an unhappy one compared with that, o f his more fortunate brothers and sisters. Certainly erne o f the most important things that can be done for him is to give him the best health possible under the circumstances. The first step toward this goal is a complete and. thorough exami nation o f the child as soon as he comes under the care o f the super vising agency or society. But even before this physical examination there is a. most im portant step which must be taken by the social worker in charge o f the child. She must have ready a social history of the child and his family, which should be as complete as possible. In the exam ination o f the dependent child, as in the examination o f any patient, much depends on a thorough and careful history. A t the first medical examination, therefore, there should always be submitted, an accurate family history including information with regard to the parents, the other children, and the previous medical history of the child himself. The parents’ history should include especially in formation regarding tuberculosis, syphilis, nervous disorders, men tal diseases, and moral vagaries. Effort should also be made to ascertain whether there has been exposure to any o f these diseases from the grandparents or other relatives or from boarders in the home. This point is especially important in regard to tuberculosis. The cause o f death o f members of the immediate family should also be specified. A history o f repeated miscarriages or stillbirths should be noted, as suggestive o f syphilis. The ages of the other children in the family should be recorded. Incidentally, this gives information as to whether pregnancies have followed each other too rapidly. It is often helpful to examine the other children in the family, for,, as is well known, the stigma o f hereditary disease may show in only one or two members o f a family.2 O f course, the previous history o f the child should be given in detail, beginning with the mother during pregnancy and parturition ; the condition o f 1 The observations contained in th is paper are founded largely on the work o f the A ssociated M edical C linic o f Philadelphia. 2 Stoll, H. F., M. D . : “ T he clinical diagnosis o f heredosyphilis.” Journal o f the A m erican M edical A ssociation, Sept. 17, 1921, pp. 919-924. 113 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 114 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. the child at birth, the feeding during infancy, illness, contagious and infectious diseases, and the later diseases o f childhood as chorea, rheumatism, tonsillitis, etc. In cases in which defective mentality is apparent inquiry must also be made as to when the child talked, walked, and first went to school, the history o f convulsions, etc. These facts should, if possible, be known and recorded on the history sheet when the child is sent to the physician. THE GENERAL PHYSICAL EXAMINATION. Plenty o f time should be allowed for the general physical exam ination, especially for the first examination. The hurry and super ficiality o f examinations given in the average large hospital dis pensary is entirely out of place in this work. It is often well to open the interview with the child by some casual remark as to his interests in play or school, or the ever interesting subject o f what he likes to eat. Inquiry should be made as to his grade in school. The weight and height are recorded. Then, beginning at his scalp, the child is examined from head to foot. He should be entirely un dressed as the examination proceeds. In summer a small sheet and in winter a small, easily washed blanket is placed about the shoulders. The dryness o f the hair, the presence or absence of any disease of the scalp— as ringworm or pediculosis capitis (head lice) is noted. As a practical point, it should always be recorded in the history whether or not nits are present, for occasionally foster parents (especially if they do not like the child) will assert that he has been sent to them with an unclean head. The nose should be examined for the presence of any nasal discharge, obstruction, or deflected septum; the mouth, for the condition of the teeth and gums, enlargement or disease of the tonsils, general shape and condition o f the palate. The neck is felt for the presence of enlarged lymph glands and for examination o f the thyroid gland. The chest, o f course, should be most carefully examined. Not only should the lungs be examined for bronchitis or tuberculosis, but the amount o f air entering should be roughly considered. It is astonish ing how poorly many undernourished children breathe. The breath sounds, even when the chest walls are thin, are sometimes scarcely audible. These children may need deep breathing exercises fully as much as extra milk. The heart must be studied with reference to its size and efficiency, as much as for the detection of murmurs or leakage at the valves. The abdomen should be examined with the child lying down and relaxed. Enlargement o f liver or spleen or the presence of umbilical hernia should be noted. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E DEPENDENT CHILD S PHYSICAL AND M ENTAL H EALTH . H 5 Boys should be examined for phimosis, undescended testicle and hernia, older boys for varicocele. Girls should be examined especially for the presence o f any vaginal discharge, and girls who are to be admitted to institutions or to homes where there will be other girls should have vaginal, or preferably cervical, smears made on the first visit to the clinic. Both sexes should be examined for signs o f irrita tion or inflammation o f the genital organs caused by masturbation. Next the child’s posture is studied, the condition of the spine, shoul ders, legs, ankles, arches o f the feet, and general bearing or carriage being recorded. The child is then dressed, and returns for tests o f eyesight and hearing. In babies and young children the eardrums should be examined with the otoscope. Eye and ear examinations in general are not detailed, but if any abnormality is detected the. child should be referred to a specialist for more thorough examination. It is advisable, although it is not always practicable, to secure a specimen o f urine at the first visit. It has been the practice at the Associated Medical Clinic o f Philadelphia to have blood examina tion (red and white cells and hemoglobin) if the child is 10 per cent or more underweight or if he is noticeably pale. The advisability o f performing the Wassermann test upon every . child is an unsettled question. Many believe that every child should be tested on his first visit. Others, noting that only about 2 per cent o f children give a positive blood test, would restrict the test on the younger children, as undoubtedly many young children are con siderably frightened by it and their confidence may be difficult to regain. Many o f these children have been so frightened by the abuse and so subdued by the hardships to which they have been sub jected, that it seems certainly unwise, and possibly unkind, to sub ject them to a Wassermann test for syphilis—or even a Pirquet test for tuberculosis infection—at the first visit as a necessary routine measure. A t this clinic it has been done upon the following indica tions : (а) I f the child is to be referred to the department o f child study for extensive psychiatric examination. (б) I f the child shows clinical evidence of hereditary or acquired syphilis. ( c ) I f the child shows suspicious signs o f hereditary or acquired syphilis. (d) With foundlings. ( e ) I f children are to be admitted to certain child-caring institu tions which require this test as a preliminary to acceptance. ( /) I f the child has suspicious sex history or if his parents have undoubtedly been sexually promiscuous, or when there is a his tory o f miscarriages. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 116 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. Certainly there can be no question as to the advisability of Seliick testing f or diphtheria at one o f the first visits, and children reacting positively should be immunized with toxin-antitoxin before place ment. Children not previously vaccinated should have this done, providing that they are to be placed under competent care. It is o f great advantage to the examining clinic to be closely associated with a hospital. In that case the opinion o f consultants can easily be secured and X -ray examinations made, and if a child arrives at the clinic too ill to be sent to a foster home he can be at once transferred to the hospital. Preferably all girls, and certainly those over 12 years o f age, should be examined by a woman physician. She should be a woman skilled not only in gynecological examinations but also in the psychology of girlhood. By her sympathetic questioning she may be able to bring out important facts in a girl’s history, and also, her advice may be o f inestimable help. This; will be dwelt upon later. The written record o f this examination should be made in dupli cate, one copy being kept in the office o f the physician or the exam ining clinic and one sent at once to the agency referring the child. I f possible, definite statements should be made as to the child’s condi tion, and even more definite statements as to recommendations; for the cure o f defects. Weight to height ratio (probably the most ser viceable for clinic use at the present time, always excepting certain children o f unusual size either from nationality or other eauses) should be given as “ percentage of normal,” as well as in pounds above or below the average. A definite time should be*noted for the return o f the child for subsequent examination. O f paramount importance at this first examination are the follow ing factors: General appearance, carriage and alertness, general state o f growth and nutrition, condition o f scalp, skin, and throat, the presence or absence o f serious heart or lung disease,, postural defects, and a rough estimate o f the mental caliber. THE NEED FOR MENTAL EXAMINATIONS. The definitely feeble-minded child can usually be recognized at a glance. Unfortunately, all too many o f these pass through the care o f agencies dealing with dependent children. But there are many children whose mentality at the first visit impresses the examiner only as “ peculiar.” It was probably to determine the exact mental status o f such children that psychiatric clinics originally became connected with clinics examining children. Should all children coming under the care o f child-placing agencies be given mental examination? Theoretically, yes, by all means. We are only on the threshold o f understanding the psychology o f child https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis * TH E DEPENDENT C H ILD ’ S PHYSICAL. AND M E N TA L H EALTH . 117 hood and the mental problems o f adolescence. Practically, except in the best-equipped agencies, it is impossible on account o f the cost and time involved to examine as a routine. Psychometric examina tions (measuring by set standards just how far the child’s mind has developed) by the Binet and similar scales have a certain, but very limited, value. They undoubtedly show how far the child has de veloped (provided there is no language difficulty), but that is not necessarily an indication that the child will continue to develop at the same rate. They give no idea as to the all-important point o f the child’s reaction to his environment. Examination by a well-trained psychiatrist employing all the methods known to that science, study ing a carefully worked out social history which gives the family background of the child’s life (and this is even more important here than for the medical examination), and interviewing the parents or other relatives, will yield very interesting results and not only will determine the mental age o f the child at the time of the examination but will afford grounds for a very intelligent: opinion as to what the child is best fitted for. Any child impressing the medical ex aminer as dull or unusually backward in his school work, or a child who can “ get along ” with nobody, or who has developed unfortunate moral failings— as petty thieving, truancy, or sex indiscretions— should certainly have the benefit o f mental examination by a compe tent specialist, preceded, of course, by the physical examination. I t is well worth while to give such a child this psychological examina tion, even if he has to be sent to the nearest city for the purpose. One has only to read the studies by Taft,3 Healy,4 and others to realize what valuable insight into the child’s life and what information can thus be secured. A whole new province o f pediatrics is revealed, and to those who have never ventured in, a most interesting field is opened. A complete copy o f the physical findings should be submitted to the psychiatrist previous to the child’s first visit, and conversely, a complete report o f the child’s mental examination should be sent to the examining physician for filing with the child’s record. The main facts to be brought to the mental examiner’s attention are: The state o f growth and nutrition (normal, above, or below) ; any gross abnormality o f heart or lungs; the history of a long-continned illness; the evidence o f any marked abnormality o f any o f the endocrine or ductless glands; the report o f a Wassermann blood »T a ft, J e ssie : “ Some problems, in delinquency,” in Am erican S ociological Society, vol. 16. The Need fo r P sychological Interpretation in the Placing o f Dependent Children, Publication o f the Children’s Bureau o f Philadelphia. “ M ental hygiene problems o f nor mal adolescence,” in A nnals o f the A m erican Academ y o f P olitical and Social Science* November, 1921. * Healy, W illiam , M. D . : The Individual Delinquent, a. text-book o f diagnosis and prog nosis fo r all concerned in understanding offenders, and Mental Conflicts and Misconduct» Both published by Little, B row n and Co., Boston, 1915 and 1917. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 118 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. test for syphilis; any of the so-called stigmata o f degeneration (these should be noted, but with much reserve—many high-arched palates are seen in children with- perfectly normal mentality, and many a good, honest, healthy boy has a peculiarly shaped h ea d ); and any marked over or under development o f the sex organs.5 The facts, often o f the most intimate nature, the self-revelations and confessions, which are placed upon this record should be con sidered sacred to the child and treated by all (physicians, nurses, and social workers) with the professional secrecy with which a physician keeps inviolate facts told him by his patient. Matters o f greatest importance to the child are o f course the questions as to whether feeble-mindedness is present, whether or not institutional care is to be advised, and whether the child is being pushed too hard in school or not fast enough, together with the salient points in the examina tion shedding some light on his probable mental characteristics. Is he observant, has he quick perception, is he impulsive, has he reasoning power, is he forgetful, is he careless and absent-minded, is he quick and dexterous with his fingers? These and many other points o f vast importance for the child’s future can be clearly and accurately brought out by the trained psychiatrist. THE CARE OF THE CHILD IN THE FOSTER HOME. The home. From the moment when consideration is first given to placing a child in a home until the child is definitely discharged from care, the cooperation o f the medical and social workers must be o f the closest. Neither must advance far without consulting the other. Nowhere should the interplay o f medicine and social work be finer. Children must not be thrown into the first home available and left to survive as best they may. A ll the physical examinations in the world on a sensitive, delicate little girl are thrown away, wasted, i f that child is put into a home where the foster father is coarse, or drunken, or brutal. Conversely, o f what use is it to place an overgrown, immoral, noisy boy with a foster mother o f the delicate, “ shut-in,” spineless type? These examples, o f course, are extreme, but each move in the placing out o f delicate or problem children must be thought out and studied with more than the care of the chess player. The number of children in each foster home must be restricted. The essence o f the placing-out job is to have individual or almost individual care o f the child. This is impossible i f too many are crowded in any one home. W ith babies, one child to a family is BHealy, W illiam , M. D., and Bronner, Augusta F . : Judge Baker Foundation Case Stud ies. Boston. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E DEPENDENT CHILD *S PHYSICAL AND M ENTAL H E A LTH . 119 the ideal, two at the most, unless skilled help is available as in the “ nursing homes” managed by one or more trained nurses. Even here there should be the ratio o f only two, or at the most two and one-half, children per trained adult. With older boys and girls two, or at the most three, to a home should be the absolute limit. We have advanced far from the time when children were com mitted to the first institution available and left to the more or less tender mercies o f the matron in charge. A few o f these have been fine, noble women, but many— alas for the children—not so fine. Let us in placing these children in foster homes secure for them healthy, happy homes where the natural development o f childhood may take place. Let us then not crowd children in the foster homes. The ideal is one dependent child in a family, at most two. Usually the health and often the character and happiness o f dependent chil dren are below those o f more fortunate children, and they need all the care and thought that the foster mother can bestow. Children placed in the so-called work homes need the special oversight o f visitor or nurse, and often of a physician, to see that they are not compelled to work too hard and that they have sufficient sleep and a reasonable period o f recreation. It is very important to know the hygienic standards o f the home into which a child is going. He must, o f course, have adequate air space. He must have a bed to himself, and it is far preferable that he have a room to himself. There should be running water in the house and a toilet that is decently private. The health and character o f the foster parents should be inquired into as closely as possible. The ideal condition would theoretically be the medical examination o f these foster parents, but at the present time this is obviously impracticable. The family physician should be consulted by the social worker, and it should be held no breach of professional secrecy for him to state at least in general terms whether the condition o f either foster parent is such as to endanger the child. Much can be gleaned by the trained visitor through observation of the household, but these inferences should not be too largely relied on and should be checked up wherever possible by more accurate data from the physician or hospital. It has several times happened in the Associated Medical Clinic o f Philadelphia, that foster parents who have known the social agencies and the clinic for some time have voluntarily come to the clinic for examination, when they feared the presence o f some serious disease, such as tuberculosis. Needless to say, also, an accurate appraisal o f the character o f the foster parents should be made, but this is essentially a social job. The child must not be overworked and should have the oppor tunity for an amount o f sleep suitable for his age. The foster mother must see that the younger children have a daily evacuation https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 120 FOSTEB-HOME GAEE FOB DEPENDENT CHILDREN. o f the bowels at a regular time, that they are kept reasonably clean, and that they have sufficient time for their meals. The practice o f some foster parents, especially in the country, o f demanding a vast amount o f physical work from these children in addition to their school work can not be too severely condemned. It indicates lack o f observation or carelessness on the part o f the social workers respon sible for the care o f these children. A boy o f 12 must not get up at 4 or 4.30, clean the stable, water the stock, milk the cows, and then get a hurried breakfast and go to school, and return in time for the same stable chores in the afternoon. It is difficult, o f course, to find a foster mother sufficiently in terested to supervise the hours o f recreation o f the children. And yet we should be content with nothing less. The burden o f this should, however, lie equally on the visitor. She must explain to the foster mother the reason for each step and must herself take the time to see that the children’s play hours are properly used. Many foster children are serious problem children, and it is imperative that their hours of play be healthful ones. Especially is this true when moral delinquencies are present. The foster mother must be very clearly informed of the facts in such eases, in order that she may be able to handle the situation with firmness and tact. Children who are underweight, nervous, or anemic must have their hours o f rest and play clearly outlined in writing. The question o f food in the foster homes has been too much neglected by both social worker and doctor. T o expect the foster mother to have a knowledge o f dietetics is, o f course, unreasonable, but some accurate knowledge of this subject should be required o f all social case workers. They should be acquainted with the basic facts o f nutrition and as much more, as they can absorb. Every scrap o f information on this subect should be eagerly gathered up and applied by the social worker. The great majority o f de pendent children are undernourished. One o f our greatest efforts must be to improve the nutrition. The visitor must have access to figures showing the proper ratios o f weight to height and age for boys and girls. The tables of Dr. W . It. P. Emerson 6, those o f Dr. Thomas D. Wood,* and those pub lished by the Federal Children’s Bureau,8 are all available. The visitor must have an idea as to what a balanced diet means. H olt and Fales9 have clearly, simply, and authoritatively shown that a balanced diet for a child is divided approximately as follows: Fats, 8 Table o f Average W eight and H eight Measurements at Various Ages, etc. N utrition Clinics fo r D elicate Children, 44 Dwight. St.. Boston. i H eight and W eight Tables fo r B oys and Girls. C hild Health Organization, 1918. 8 W oodbury, R obert M o rse : Statures and W eights o f Children under S ir Years o f Age. United States Children’ s Bureau Publication No* 87. W ashington, 1921. » H olt, L. E., M. D., and Fales, H. L . : “ The food requirements o f children.” Am er ican Journal o f Diseases o f Children, October, 1922, pp. 311—319. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis T H E DEPENDENT C H ILD ’ S PHYSICAL AND M ENTAL H E A L T H . 121 35 per cent; protein, 15 per cent; carbohydrates, 50 per cent. This, in a nutshell, is the theory o f the balanced diet. The visitor must know the great classes o f foodstuffs (proteids, fats, and carbohydrates) and must know in what class the commonly available foods belong and what their nutritive value is in relation to cost. She should have more than the popular smattering of information in regard to the usefulness o f vitamines. And above all she should realize how much actual fuel; expressed as food, is really necessary to give healthy children proper growth, let alone to bring up to normal the undernourished. The table appended is most valuable, stressing as it does the actual caloric needs o f growing school children, and one must not be unmindful o f the fact that the boy from 14 to 18 years o f age needs even more food than the adult man, and that the girl from 14 to 16 needs as many calories in her food as the adult man and much more than the adult woman. The healthy appetite o f the growing boy and girl must be respected, but should be encouraged in the proper direction. These facts can not be too emphatically stated. Child-caring agencies, and through them the public, must realize that this food is an absolute necessity, not a luxury, and must be willing to pay adequately for it. It simply can not be provided at the present time (in this part o f the country, at least) for the usual weekly payment o f $2.50 or $3 per child. T o the writer’s mind such figures are simply an open confession that the child is not receiving sufficient or, possibly, proper food. T otal daily calories. (Holt and Tales.1) Boys. Age. (years). Average weight. Kilos. t . .......... 2........... 3........... 4........... 5........... 6........... 7........... 8........... 9........... 10........ . 11.......... 1 2 ....... 13.......... 14.......... 15.......... 16.......... 17.......... 18.......... Adult... 9.5 12.2 14.5 16.4 18.2 20.0 21.8 24.0 26.4 29.1 31.4 34.2 33.0 42.5 48.2 54.5 57.5 59.8 68.0 Girls. Calories. Pounds. 22 27 32 36 40 44 48 53 58 64 69 75 84 94 106 120 127 132 150 Per kilo. 100 93 88 84 . 82 80 80 80 80 80 80 80 80 80 80 75 69 62 48 Per pound. 45 42 40 38 37 36 36 36 36 36 36 36 36 36 36 34 31 28 22 Total daily calories. 960 1,135 1,275 1,380 1,490 1,600 1,745 1,920 2,110 2,330 2,510 2,735 3,040 3,400 3,855 4,090 3,945 3,730 3,265 Average weight. Calories. Kilos. Pounds. 9.3 11.8 14.1 15.9 18.2 20.0 21.8 23.9 26.2 28.5 31.5 35.8 40.6 45.0 48.3 51.0 52.6 52.8 60.0 21 26 31 35 40 44 48 53 58 63 69 79 89 99 106 112 116 117 132 Per kilo. 1Holt, L. E., M. D., and Fales, H, L.: “ The food requirements of children.” Diseases of Children, January, 1921, p. 21. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis Per pound. 101 94 87 82 78 76 76 76 76 77 80 80 79 74 67 62 58 56 44 Total daily calories. 940 1,110 1,230 1,300 1,41» 1.520 , » 1 66 1,815 1,990 2,195 2.520 2,864 3,210 3,330 3,235 3,160 3,060 2,950 2,640- American Journal of 122 FOSTER-HOME CARE FOR DEPENDENT CHILDREN". Most foster mothers tend to prepare a diet too starchy and too liquid. Soups, unless prepared with plenty o f milk and such vegetables as peas or beans, are temporarily filling but not very nourishing. The child, while satisfied during the mealtime, soon feels the pangs of hunger and naturally seeks to quiet these by recourse to the nearest penny shop, where he will acquire probably more calories (as carbohydrates) from candies than he did from his bowl o f soup. The distended abdomen frequently found in much-neglected children is often due to a diet high in starches with too much poorly baked bread. Probably with proper supervision of the diet and helpful sug gestions from the visitor most foster children could have at least one pint o f milk a day in place o f the tea or coffee so often given. The foster mother should be persuaded to have the heaviest meal for the preschool children in the middle o f the day. It is astonishing to find out how infrequently this is done. The man o f the household has to have his dinner at night and it is so much easier to give the same to all. An understanding on this point should be secured previous to the placement of young children. It is a very important duty of the visitor to help the foster mother with the diet. She must encourage her to persist with the child who does not like, or will not take, milk. Often she can secure the same result by giving milk soups or milk desserts such as rice pudding, or by using plenty o f milk on cereals or potatoes, or by giving malted milk. It takes an accurate and gifted judge o f human nature to decide how often foster mothers should be visited. Some do better with not too frequent visiting, being those individuals who do their best work when fully trusted and who are sufficiently competent to be trusted. Foster mothers of this class are few, and the character o f each should be fully known before the experiment is tried. As a rule it is far better to have a pretty close follow-up system, and the foster mother will soon cease to regard it as interference. Babies should be seen at least' every two weeks by nurse or social worker, and those whose-feeding is difficult or who are delicate should be% visited once a week. Preschool children should be visited once a month. In the cases o f older children, the need, for revisitation of the home will vary according to both the child and the home; but the writer agrees thoroughly with Katharine P. Hewins. that “ as a guide, but not as a rule, any child who has not been seen in his foster home for two months is in danger o f being neglected.” 10 Visitors and nurses should be on a friendly footing with the foster mothers. It has been very interesting in the experience of the Asso ciated Medical Clinic o f Philadelphia to observe a foster mother’s i® “ Supervision o f placed-out children.” Annals o f the American Academy o f P olitical and Social Science, November, 1921, pp. 112—120. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E DEPENDENT CH ILD ’ S PHYSICAL AND MENTAL H EALTH . 123 increasing cooperation with the doctors and nurses, and it is an im portant function o f all concerned in this work to stimulate the foster mothers to continually higher ideals in child care. Most o f them are eager to learn. Sufficient interest must be shown by child-caring and child-placing agencies to render this possible. Sufficient money must be paid to the foster mother to insure adequate diet and ade quate care for the children placed with her, and adequate compensa tion must be guaranteed, especially for difficult feeding problems in babies and the care of undernourished or problem children. The child. Among the various types of children placed with foster parents, the baby probably presents the most difficult medical problem. Many times the family situation which has precipitated him into foster care has been so sudden that there is no time for gradual weaning.' Possibly more difficult, however, is the baby o f a dissipated or eveli dissolute mother, who has neglected her child so that chronic indi gestion is present, and the child consequently much undernourished. Many babies have been overfed or wrongly fed, or a child may be referred by the court, the mother being sent to jail, so that nothing is known of the previous feeding history. A ll of these problems and1 many more must be met by a clinic or a physician working with child-placing agencies. Dr. Maynard Ladd,11 of Boston, has clearly indicated the best way of caring for these babies when good nursing and social service are available. After the initial examination the report o f the clinic is forwarded or telephoned to the child-placing agency. The home for the baby should already have been tentatively decided upon so thatj barring contraindication from the medical examination, the baby can at once be taken to that home. No baby should leave the clinic without a definite milk formula in writing. I f the foster mother is new or if the home is in the country, several nursing bottles and the materials, such as sugar or barley flour, for making the mix tures should go with the baby. A nurse trained in a children’s or babies hospital should assist any new foster mother in making the formula and should show the need for cleanliness at every step in the process. Milk mixtures should be as simple as possible. I f a child is in such condition that he will need a complicated formula or un usual articles o f diet requiring special care in preparation, he had best be referred at once to the nearest children’s hospital. The foster mother for a baby must be selected with the greatest care. She is much more important than the physician. She must n Ladd, Maynard, M. D . : “ M edical supervision o f the destitute child.” M edical Journal, August 17, 1921, pp. 199-204. 72693°—26----- 9 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis New York 124 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. love the baby for himself, not merely for the money paid her. She should herself be strong and healthy. She must be loyal to the clinic and the examining physician and willing—preferably eager—to learn and to absorb gradually the ideas o f the medical staff, and to cooperate in every detail. She should be o f reasonably good mental ity ; equipped with a mind fairly evenly balanced, so that she w ilt not give way to fits o f anger; self-controlled and patient, so that she will be willing to submit her opinions to those o f the medical staff ; observant, that she may detect the early symptoms o f any illness; and conscientious, so that when alone with the baby she will do as she would if the nurse were watching her. Most foster mothers are too impatient concerning the weight o f the baby. To satisfy them he must gain by leaps and bounds. While certainly most important, the weight is by no means the only guide, and foster mothers must often be restrained from overfeeding. Sufficient clothing must be provided by the agency so that babies may be kept in the fresh air on clear winter days. There is still far too great a tendency, at least in the cities, to keep the younger chil dren huddled in hot, stuffy kitchens. W ith the increasing use o f gas for cooking the danger of carbon monoxide poisoning is added and social workers should bear this fact in mind in the preliminary investigation o f homes. It is often advisable, sometimes necessary, for the society to supply a baby coach or gocart to insure a proper amount o f fresh air. The foster mother must be told, if she does not know from experi ence with other children, what are the ordinary signs of illness, but she must also not assume too great responsibility interpreting these signs. She must be clearly informed upon whom to call in the event o f illness. She must know the necessity o f absolute cleanliness with regard to every step o f bottle feeding. She should be supplied with a good rectal thermometer and be taught how to read it. She must be instructed to reduce or stop the baby’s feedings upon the first sign o f intestinal disorder and to notify the nurse or doctor at once. That it is perfectly possible to feed or care for a large number of babies in foster homes from a central clinic has been clearly shown by Doctor Ladd,12 o f Boston, and by the Associated Medical Clinic of Philadelphia,18 and doubtless by others. Except in special homes, as those under the care o f trained nurses with adequate help, it is never advisable to place more than two babies in a home; and it is far better policy to restrict the number to one. The policy o f the Associated Medical Clinic has been as follow s: 12Idem. 18Jenks, Dr. H. H . : “ M edical care o f dependent children.” September, 1923, pp. 799-802. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A tlantic M edical Journal, TH E DEPENDENT C H IL D ’s PHYSICAL AND M ENTAL TTEAT/TTT, ^25 The babies are visited every week or every two weeks by the nurse, who carries with her a pair o f light scales. (Ill babies are visited as often as necessary.) Once a week the nurse reports at the clinic for what is called a “ baby conference.” This is believed to be a most important part o f the baby work. A t this conference are present the two clinic physicians and the supervisor o f case work in the placingout department o f the society. The nurse reports on the weight and general condition o f the baby, the weight being recorded on a chart. The condition o f the stools, vomiting (if any),appetite, sleep, amount and formula o f feedings are recorded on a special sheet. Directions as to changes (if any) in the feedings are given in writing to the nurse. O f course, if a baby is not doing well a report is made at once to the clinic by the nurse and the child is visited within a very short time by the assistant physician. Most o f the boarding homes have a telephone, and the foster mother is directed to call the nurse imme diately if the baby is at all indisposed. It has been found advisable for the society to furnish beam balance scales in two o f the homes where the more difficult cases are kept. It has been a revelation to see how well babies may do under these conditions. Many o f the babies are not seen in the clinic for months at a time, and yet their weight increases normally and they seem healthy in every way. The success o f such a plan as this depends on the intelligence, accuracy, and training o f the nurse supervising the foster home. W ith a careless or incompetent nurse it is doomed to speedy failure. Another very important feature is the training and cooperation o f the boarding mother. No one will deny that, until recently at least, the preschool child has been much neglected. This has been doubly true of the de pendent preschool child. The diet o f a large proportion o f these children has been much too loosely supervised. They have had to conform to the customs o f the foster homes as to hours o f meals and character o f food. Many have their heaviest meal or “ dinner” at night. Probably entirely from ignorance or carelessness, they will have an evening meal o f the proverbial “ stew ” and such a heavy vegetable as cabbage. The necessary rest period, also, has often been forgotten. The teeth o f children of this age have been too much neglected and the influence which diet may have on the condition o f the teeth has been until lately an unexplored field. It is most important. These children must be supplied with toothbrushes and powder, and the foster mothers must see that they use them. “ No cavity is too small to be disregarded, and the pediatrician should insist on the immediate treatment o f caries at any age. It is only by taking care https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 126 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. o f the teeth o f children o f preschool age that the teeth o f the school children and adults will be safeguarded. Conditions existing during the period from birth until the sixth year determine the future condition o f the teeth. It is not generally recognized * * * that the first years o f a child’s life are critical ones as far as structure o f the permanent teeth are concerned.” 14 Unfortunately, even in many good foster homes, the economic stress is such that by no means ideal conditions can be secured, but for the preschool child certain fundamental dietary and hygienic conditions should be required which might be stated rather dog matically as follows: The foster mother must be able and willing so to arrange her time that the child may have suitably prepared meals and definite times for play and rest. Each child should have from one to two pints of milk a day. He should have a breakfast o f milk (or cocoa), a well-cooked cereal, egg (at least twice a week), occasionally a piece o f crisp bacon, bread (not fresh), and butter; a dinner at midday o f a thick vegetable soup (pea, bean, spinach, carrot, celery, or po tato) or chicken or rice broth, meat (carefully cut up) two or three times a week, vegetables (for the younger children preferably passed through a sieve), milk, bread and butter, and a simple des sert. The evening meal should be more of a supper and should con sist of milk, bread and butter, cooked cereal or milk toast, occa sionally an egg, and cooked fruit, such as baked apple, apple sauce, stewed prunes (sieved), and stewed peaches. There should be a rest period either before or after the midday meal o f at least an hour, and longer for undernourished or unusually active children. Plenty o f good drinking water must be supplied between meals. The foster mother must train the child to a daily evacuation of the bowels, pref erably immediately after breakfast. He should be tucked in bed for the night by 6 or 7 o’clock, not dragged off to the movies. Where many children o f the preschool age are placed in one locality, it is advisable to assign one worker to that group alone; when a worker is engaged with older problem children she may readily spend too much time on these, neglecting the younger group. Children o f school age require an ample diet. It has been shown on page 121 that these children require much more food than is usually allowed them. These boys and girls should have, if pos sible, a quart o f milk a day, or at least a pint. They will probably require the heavier meal in the evening. Certainly the older ones will. Owing to school hours many children have not the time to return home for a midday meal. Foster mothers should put up a good nutritious lunch for children who must eat at school. This is 14 Cohen, S. A., M. D . : “ Oral disorders in pediatries.” o f Children, August, 1922, pp. 160-170. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis American Journal «sf Diseases TH E DEPENDENT C H ILD ’S PHYSICAL AND M ENTAL H EALTH . 127 often preferable to a hurried trip and a meal eaten in haste in order to be back in time for school. Dependent children, unfortunately, do not always cease being dependent children when they outgrow the grammar school, and the problems o f adolescence do not lessen the difficulties in their placement. For these older boys and girls especially the foster mother should be a woman who has successfully brought up boys and girls o f her own. It is an experience for the lack o f which all the books in the world on how to bring up children can not cònipensate. She must know what the child is (at least as far as4t is known) before she accepts him. She must be acquainted with his problems. Above all, with a child o f this age she must not nag. She must have a keen insight into boy and girl nature. She must know the peculiarities o f boys and girls as they grow into maturity. She must have ample patience and yet be firm. Fortunate is the boy with a foster father who can set forth in a proper manner the great facts of life as a growing boy should know them. It is hard enough for any o f us to do this. PROBLEM CHILDREN. Almost all dependent children might come under this heading, for practically all have their problems. But the term in this paper is restricted to the three following groups: (a) The physical, (b ) the mental, (c) the social. Under the physical, will be considered briefly only two groups; in the first place, the greatly undernourished child. I f a child is found to be greatly undernourished he should preferably be sent to a good country home, out o f the dust and noise of the city, but near enough to be able to return as frequently as desired. Health should be placed above education, and until he starts to gain decidedly in weight he should not attend school. The home should have a porch. The child should be treated at the start very much as are the tuber culous, spending almost the entire time in the fresh air—on the porch in the day and with open windows at night. He should have ample rest, with the hours definitely specified, all the well-cooked food that can be taken without upsetting the digestion, milk (at least a quart a day), and butter, eggs, cereals, and vegetables. This extra diet must be compensated for by extra payment to the foster parent, and the visitor must satisfy herself that the child really has what is ordered. We must not forget, as Emerson,15 Veeder,10 and others have shown, that what many of these undernourished children need is not only 15 Emerson, W. R. P., M. D. : “ Malnourished child in the public school.” . Boston Medi cal and Surgical Journal, June 24, 1920. Also “ W eight and height in relation to malnu trition.” Archives o f Pediatrics, August, 1920. 18 Veeder, B. S., M. D. : “ R ôle o f fatigue in malnutrition o f children.” Journal o f the American M edical Association, Sept. 3, 1921. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 128 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. extra food but more rest, both o f mind and body. F or a child with no evidence o f chronic disease such as syphilis or tuberculosis, the weight record may be a partial check upon the foster mother. It is by no means conclusive but it should at least call for thought and examination, if successive children lose, or fail to gain, in weight in a certain home. W e should regard such a home with a question ing eye and should investigate without delay the factors entering into home hygiene, the food, the amount o f time out o f doors, the night ventilation, the utilization of the milk ordered, the life of the child in his hours o f recreation. The food may be ample, but is it properly cooked or floating in grease? Is the child getting candy, that great destroyer o f a child’s •appetite, between meals? Does he have his afternoon rest and then sit with the grown-ups for an evening movie? These are but a few o f the factors needing investigation by the social worker— and then correction. The child with enuresis affords a constant problem to child-placing societies and foster mothers. Many of these children lead a really miserable existence. Battered around from pillar to post, sent to one boarding home after another, often refused by all but those of the poorest class, continually scolded, derided, or punished, always wet at night and often in the day time too, the skin chafed and irri tated, usually quite ashamed o f themselves and discouraged, these children constitute a pressing problem for the physician and the social agent. Even to them the child is discouraging, but that is no reason for not exhausting every effort to effect a cure. Two factors stand out in the effort to cure the nocturnal bed-wetter. One is the avoidance o f all fluid after 4 p. m., and the other the awakening o f the child at stated intervals in the night. This de mands a truly devoted foster mother. The urine, o f course, should be repeatedly examined, thread worms eliminated if possible, the presence of stone in the bladder or defect in the spine ascertained as far as possible by X-ray. Certain drugs ordered by the physician may be o f assistance. In persistent cases the bladder should be examined by the cystoscope. Even i f no abnormality was found, the passage o f the instrument (under an anesthetic for smaller children) has been of benefit to a few o f the children coming to the Philadelphia clinic. Every effort should be made to secure the cooperation o f the child. Much has been written during the last few years about the mental problems o f childhood. They are certainly very real. Repeatedly children are referred to physicians in the hope that a physical basis may be found for their backwardness or peculiarities o f mind or behavior. It has been a great disappointment to the parents or child-caring agencies and to the clinics to find in the majority o f https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E DEPENDENT CH ILD ’ S PHYSICAL» ANI> M ENTAL H EALTH . 129 these children no curable physical defect to account for the behavior. I f syphilis is present treatment is at once instituted, of course, and considerable benefit may ensue. Occasionally the mere relief o f a mental worry by analysis and explanation may be successful.17 There is still another group to which relief in varying degrees may be brought, and that is the children with marked disturbance o f the so-called endocrine system (the ductless glands). ' But in only one o f this class are the results really brilliant—in those with the thyroid secretion diminished, the cretins, or those with hypothy roidism. It is well worth while, if it can be done carefully and accurately, to have tests o f basal metabolism made on subnormal children showing any signs o f glandular deficiency. In those show ing symptoms o f pituitary disturbance an X -ray examination o f the skull and a test for sugar tolerance, by means o f blood sugar esti mation, are helpful. A ll o f this work is technical and must be done by one trained in it, and with the greatest care j otherwise the results are valueless. The clinic has been able to help a few o f the greatly overfat children by means of glandular therapy, controlled by these labora tory examinations, and also occasionally to assist one o f the dwarf children to add a few ceptimeters to his height. No extensive use should be made o f glandular extracts unless the child can have from time to time metabolism examinations and other tests and can be under careful supervision. The drugs are capable o f far too much harm unless carefully controlled and at best have been much over rated as to the possibilities o f the cure o f abnormal children by their use. Only a word will be said in this paper in regard to the social problems o f delinquent children. A ll those who are engaged in work with dependent children must remember that the social prob lem may have a physical basis. This latter should always be elimi nated before the problem is assumed to be entirely a social one. A child may be doing poorly in school from defective eyesight or hearing or from many other causes. I f he is a difficult problem in the home because he is always tired and cross, a physical examination may disclose a chronic kidney condition with albumin or pus in the urine. Such a child will have ample cause to be chronically tired and unhappy. Other examples will doubtless suggest themselves to all readers. Conditions not present in the child at his first ex amination may develop while he is in a foster home, and a child who at any time is not active and well and happy is entitled to, and should have, a thorough physical examination and the necessary treatment. 17 See citations in notes 4 and 5, pp. 117 , n s . https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 130 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. REEXAMINATIONS, As stated before, when a child is examined for the first time and malnutrition or other defects are found a definite time for a return visit should be stated on the record. Both the examining clinic and the child-placing agency should keep a dated check list for these reexaminations in order that there may be no slip-up. I f the child has been placed in a country home too far away to return to the original examining physician, he should be carefully examined by a local physician and the findings sent in writing to the placing agency, which should at once send a copy to the clinic. I f these findings show that the child is not doing so well as was expected the country doctor should be communicated with in regard to treatment, or if necessary the child should be brought to the city. The Philadelphia Associated Medical Clinic has come to believe from experience that it is best to consider the child as actually under the medical care of the society’s examining physician, even if the child is at a consider able distance. Except in cases of extreme Urgency it is better to haWe the child return to the city if any operative procedure becomes neces sary, and to have a thorough examination and consultation with the surgeon before reference to a hospital for operation. As a general rule it is advisable to see any child who is 10 per cent or more underweight within from two to four weeks— or sooner if there is a suspicion o f pulmonary tuberculosis. Any child at all underweight or noticeably anemic should be seen by the physician every three months at least. Every child placed in a foster home should be completely reexamined at least once a year regardless of where he is. It is preferable that he return to the examining clinic for this purpose, so that the same person may examine and records may be more uniform. This reexamination should be as thorough as the first examination. When the time comes for a child to leave the foster home and be discharged from the care o f the society he should again have a complete physical examination by the clinic or examining physician. This is necessary for various reasons, first, for the sake of the child himself. It affords a means o f comparison o f the weight and gen eral condition on admission and on discharge. I f the child lias not been seen for some months changes may have occurred, new lenses may be needed for one or both eyes, teeth may show caries or lack o f alignment, or faulty posture may have developed, possibly from a poor desk at school. Heart and lungs should always be carefully examined lest any early symptoms of disease escape notice. The condition o f skin and scalp should be noted. For the child’s sake any defects found even at this final examination should not be left unattended to, but definite arrangements should be made for him to https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E DEPENDENT CHILD S PHYSICAL AND M ENTAL H EALTH . 131 liave competent medical attention, either by a physician or at a hos pital. Especially is this true for children with chronic defects of such far-reaching importance as chronic heart or lung disease, rheu matism, nephritis, or congenital syphilis. The last-mentioned should be treated until the blood Wassermann becomes persistently negative. The written records o f the final examination are or should be of value to the child-placing agency and should, of course, be filed with the child’s history. THE ADVISABILITY OF A CENTRAL EXAMINING CLINIC. Most o f the facts in the previous sections of this paper have been written from experience gained at the Associated Medical Clinic of Philadelphia. This is a medical examining clinic supported by agencies doing child-placing wort, and to a less degree by agencies otherwise concerned in child welfare. The Philadelphia Children’s Bureau, the Children’s A id Society o f Pennsylvania, the Seybert Institution, and the Pennsylvania Society for the Prevention of Cruelty to Children have been the main societies contributing to the clinic’s support. In addition to examining children from these societies, the clinic examines, children from various other organizations and also a few entire families from the Philadelphia Society for Organizing Charity. Children are examined before placement in several institutions in or near the city. The advisability o f a central examining clinic for these children can scarcely be questioned. It is difficult, if not impossible, in most hospitals to secure the time o f the dispensary physician for thorough and complete examination of children who are not ill. The time of the physicians in these clinics is already overtaxed by the large num ber of sick children needing careful examination and treatment. Alao, it is most inadvisable to place these presumably healthy chil dren in contact with children presumably ill. Again, it is a great waste o f the foster mother’s time to wait in a clinic for a long time even before her turn for examination will come ; and finally the rotat ing service in the hospital means that upon subsequent visits the chil dren will probably be examined by different doctors who may pre scribe entirely different treatment, or, in the case o f a baby, different feeding. In a clinic organized and conducted for the sole purpose of ex amining dependent children, many of these difficulties can be over come. The clinic starts at 9 o clock, when the children from neigh boring districts can easily be brought in by caretakers or social workers, and continues until all the children are examined. There are no set hours, although the examinations are usually completed https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 132 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. by 12 or 1 o’clock. The physicians remain the same from month to month, so that they know the previous condition o f each child, his social history, and his problems. Children are examined in the order in which they arrive at the clinic unless there is some special emer gency, in which case a child may be examined at once. Each child is given ample time for his examination, and there is not the hurry to finish the clinic that there usually is in large hospital clinics. The organization of such a clinic is o f course capable o f wide variations. The staff should include first, a physician in charge o f the clinic who has had considerable experience in pediatrics, espe cially in infant feeding. There must be an assistant physician, who should be on a full-time salary basis. Either the physician in charge or his assistant should be a woman, well trained not only in medicine but in gynecology, and if possible in the psychology of girlhood, and'with a personality attractive to girls. She should have entire charge o f the examination o f girls and mothers. Her afternoon time should be given to the examination o f children who may be ill in foster homes. She should be provided with an automobile, as most foster homes are far from the center o f the city and considerable distances must be traversed. During the morning clinic hours a nurse or' a well-trained assistant must be present to assist the doctors, sterilize instruments, and see that children are carefully weighed and measured and that the children and their histories are ready in the proper order. The number of trained nurses should vary with the number o f babies under care and the distances to the foster homes. The nurse should be a graduate o f a hospital where she will have had a good course in infant feeding, examination of sick children (especially infants), and competent instruction in child-welfare work. She must have an absorbing interest in and enthusiasm for baby-welfare work and must be able to arouse this same feeling in the foster mother. The nurse visiting in the homes and reporting to the clinic and the societies is the connecting link between all three and the child, and it is she who will secure the cooperation o f the foster mother. A stenographer who is capable of taking accurate medical dic tation is, o f course, necessary. It is advisable in a large clinic to have a half-time worker to take care of filing records, notifying the various agencies o f the return dates o f children, making appoint ments for the dentist, supervising the children, and seeing that chil dren who have been examined are returned safely to the proper agencies. I f the volume o f work is sufficiently large the dentist should pref erably be on full time, or he may be on half time with a half or full-time dental hygienist. Both o f these should be selected with https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis T H E DEPENDENT C H ILD ’S PHYSICAL AND M ENTAL H E A L T H . 133 a view to their fondness for and ability to get along with children as well as their technical skill. It is advisable also to have an oculist on a salary basis. The volume o f eye work in such a clinic is large. The work must be care fully done and carefully followed up afterwards. Many children can not attend an afternoon eye clinic, and the number o f children referred for eye examination on some days would overwhelm an ordinary clinic. Moreover, the societies must be furnished with written reports o f the eye condition and what treatment will be necessary—reports difficult to secure from the average hospital clinic. Finally, workers in charge o f these central clinics must not waste time waiting their turn in a large hospital dispensary. The Associated Medical Clinic o f Philadelphia is fortunate in being granted unlimited laboratory service. The physician in charge o f this work is connected with various hospitals as pathologist and serologist and is on a part-time salary basis at the clinic. He makes all examinations o f blood, urine, sputum, milk, etc., Wassermann tests, metabolism tests, vaginal smears, diphtheria cultures, etc., and renders reports in writing. The clinic also has the advantage o f a consulting pediatrist and a consulting dermatologist and o f an X -ray technician who is the technician for the Children’s Hospital o f Philadelphia. The clinic is advantageously placed in a building on the Children’s Hospital grounds, and use may be made o f any o f the hospital clinics. Chil dren under 12 years o f age who are too sick for placement in foster homes are usually admitted at once to the Children’s Hospital for bed care. This close association with a hospital is very beneficial to the children. SUMMARY. The contents o f this paper may be very briefly summarized as follow s: The lot o f the dependent child at best is an unfortunate one, and it should be our duty and our privilege to make his life as healthy and as happy as possible. Every dependent child who is to be placed in a boarding home should have a thorough physical and, if possible, mental examina tion before placement, and at certain definitely stated intervals thereafter. Defects found in the physical condition must be remedied as promptly as possible. Due attention must be paid by child-caring agencies to the physi cal findings and to recommendations in regard to securing the proper boarding home for the child. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 134 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. Supervision o f the diet, rest and play periods, and the general hygiene o f the boarding home should be carried out by the visitor from the child-placing agency. Adequate payment must be made for the child’s proper care. With proper nursing supervision babies may safely be cared for in foster homes. Children with unusual physical, mental, or social handicaps should have these findings and the necessary treatment clearly explained to caretakers before the children’s acceptance. Written records of all the social, physical, and mental facts con cerning the child should be made in duplicate, one copy to be kept by the child-placing agency and one by the examining physician or clinic. Examinations of dependent children from all child-caring or child-placing agencies should be made preferably in one central examining clinic, exclusively for the study o f these children and their problems. There must be the: closest relationship and cooperation between the child-caring agency, the clinic, and the foster home. Each one needs the others, and all must work together for the benefit o f the child. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE RELATION BETWEEN SOCIAL WORK WITH FAMILIES AND CHILD-CARING WORK. R ev . J o h n O ’ G rady , P h . D ., Secretary, National Conference of Catholic Charities and Editor, Catholic Charities Review . ' , ATTITUDE OF CHILDREN’S AGENCIES AND THE PUBLIC TOWARD FAMILY CASE WORK. In their zeal for the welfare o f children, children’s agencies and in stitutions have many times overlooked the obligations o f parents. They have assumed that they were in a position to provide higher standards o f care for children than poor homes could offer. They have been very well aware that when children were referred to them for care there was invariably something wrong in the home—that a situation had arisen in the home which could not be adjusted by any outside agency. Many children’s agencies adopted a fatalistic atti tude toward home problems. They felt that if parents could not solve their own problems no outsider could help very materially. Hence children’s agencies were glad to gather up the children o f poor homes and anxious to rescue them from the vicious influences o f their, home environment. These earlier attitudes and policies o f the children’s agencies were very largely a reflex o f the conditions in which they found them selves. It is only within recent years that the possibilities of case work for the preservation o f family life have been appreciated. In most rural communities and in many small cities there are as yet no family agencies; in many large cities the work of family agencies is poorly organized; in cities with long-established and well-organized family agencies the work o f these agencies does not reach all groups in the community. In view o f the actual status o f work for families the failure o f children’s agencies to take a family case-work point of view is not surprising. It must be recognized that work for children is still more highly and more generally appreciated by the general public than work for families. The orphan or the child o f the broken home makes a powerful appeal to the sympathy and generosity o f the average person. This is undoubtedly due to the old and well-established traditions o f work for children. Therefore children’s institutions are as a rule in much better financial condition and have a much larger 135 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 136 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. and more interested clientele than family agencies. Thousands o f persons in every large city in the United States are bound to child caring institutions by the sacred ties o f family and religion. Large numbers o f families have been associated with these institutions for generations. The members o f these families look upon it as a sacred obligation to contribute to their cherished institutions during life and to remember them in their wills. A large number o f the child-caring homes in the United States were established primarily for the preservation of the religious faith o f the children. For the founders o f these institutions it was not a question o f institutional as against home care for the child. It was rather a question as to whether the child should be cared for in an institution o f his own faith or in an institution of a different religious faith. In the past many institutions have had to accept without question children who if investigation were made would have been turned over to institutions o f a different religious faith. Parents who were anxious to relieve themselves of the obligation of caring for their children seem to have mastered the art o f playing off one institution against another. In the daily round o f social-work experience are still found parents who are ready to practice the same tactics and institutions which are ready and willing to co operate with them. CITY-WIDE FAMILY AGENCIES AND CHILDREN’S WORK. Child-caring homes operating on a religious basis will naturally be unwilling to deny admission to children until they are assured that the religious faith o f the children can be cared for just as effec tively elsewhere. They will be opposed to surrendering the control of their intake to agencies in whose religious work they do not have confidence. This is. a serious difficulty in the way of having city wide family agencies take charge of the intake o f all children’s homes. But the difficulty is by no means universal. The writer knows o f at least one city in which a community-wide case-work agency has entered into an agreement with all the children’s homes o f the community in regard to their intake problems. A ll applications for the admission of children to homes are referred to the city-wide agency, which in this instance happens to be a children’s agency. I f on investigation it is found that the family can be rehabilitated and the children cared for in their own home, the case is turned over to a family agency. I f the children are removed from the home the agency does not lose all contact with the family, but endeavors to establish friendly relations with the parents so that they may be ready at as early a date as possible to receive their children back into their own homes. I f this policy o f turning over the intake of all https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SOCIAL WORK W IT H FAMILIES AND CHILD-CARING WORK. 137 children s agencies and institutions to one city-wide case-work agency has been successful in one city it should also be successful in every city in which all the important religious groups can unite on one case-work agency. In cities where religious charities are not well developed and where there is no hope of their being de veloped in the near future, the city-wide agency offers the only prac ticable means o f applying the principles o f case work to the work o f child-caring homes. The city-wide agency which endeavors to deal with child-caring homes must proceed with the greatest circumspection. It must not attempt to dictate policies to the institutions. It must be satisfied with presenting the facts in each case to the institutional authorities, with such suggestions or plans as it may have to offer, and must per mit them to draw their own conclusions. It must have a sympathetic appreciation o f the ideals and traditions o f the institutions if it would influence their work; if it is cynical and unappreciative it will never win the necessary confidence. The children’s institution, like the family, is essentially a case-work problem. INTAKE OF CHILDREN’S HOMES AND FAMILY CASE-WORK PROBLEMS. The intake problem of children’s homes is essentially one o f family case work. No normal parent is anxious to separate himself from his children. When a parent wants to turn over the care of his children to a child-caring home or agency there is generally a need for some adjustment in that parent’s life. It may be that the parent does not have a proper appreciation o f his obligations toward his children. Families in which the father and mother go out to work and place the children in institutions and day nurseries need the advice and assistance o f a family agency, and also need to have their moral obligations interpreted to them by their church. I f the father’s income is insufficient an effort can be made to secure a better position for him. I f the mother has not mastered the a rt'of house hold management she can be assisted very materially by a visiting housekeeper or a sympathetic and persevering friendly visitor. The problem of insufficient family income is always a serious one for the family agency : but it is by no means so serious as the problem o f the mother who has no training or taste for household management and who wants to enjoy the same freedom and the same pleasures after marriage as before. It is a well-known fact that the presence o f children in the home tends to exercise a steadying influence over the parents. Differences o f opinion and clashes of temperament which might otherwise lead to the complete disruption o f the family are frequently endured for the sake o f the children. It is most important that family quarrels https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 138 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. should not be made the occasion for surrendering the children to un agency. Some months ago the writer was called upon to deal with a case in which the mother, as à result o f a quarrel with the father, endeavored to place her six children in child-caring homes. The children’s homes to which she applied immediately turned the case over to a family agency. The investigation made by the agency' showed that the man was dissatisfied with his wife because she in sisted on going out to work. The wife stated that it was necessary for her to work in order to buy shoes and clothing for herself and the children. She stated that the husband turned over to her only about half o f his weekly income and gambled with the other half. After a long and hard struggle the father and mother were reconciled and their difficulties composed. The mother agreed to give up her posi tion and the father consented to turn over a larger share of his income for the maintenance o f the home. DISTINCTIVE FUNCTIONS OF FAMILY AGENCIES AND CHILDWELFARE AGENCIES. From the foregoing discussion it is evident that the intake prob lem of the child-caring institution or agency is primarily a family problem, to be cared for by a family agency. But should the family agency lose all contact with family and child after the latter has been turned over to a children’s agency? Here it will be necessary to make a distinction between children’s institutions that employ full-time, trained case workers and institutions that do not. I f the children’s institution does not employ full-time workers it is neces sary for the family agency to keep in touch with both the child and the family. The family agency should never lose sight o f the possi bility o f having the children returned to their own homes or to the homes o f relatives and should also see to it that the family fulfills its contract with the institution in regard to payment for the children. , In its case work for children’s institutions the family agency will be called upon to deal with foundlings and also with a number of children who can never be returned to their own homes. The ques tion will therefore arise as to whether the family agency should undertake the work o f placing these children in foster homes. The writer believes that it would be a desirable policy for the family agency to take care o f the child-placing work until such time as the institution is prepared to undertake its own child placing in an organized way. t A children’s agency or institution which is employing a trained case-working personnel should assume full responsibility for; all case work directly affecting the children under its care. W ith the https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SOCIAL WORK W IT H FAMILIES AND CHILD-CARING WORK. 139 proper safeguards it should have all the authority necessary to plan intelligently for the welfare o f the child. Whether or not it should have complete jurisdiction over the child committed by the court is a moot point. Social workers, generally speaking, are inclined to the view that the court should exercise continuing jurisdiction over children committed to private agencies, but in regard to children committed to public agencies there is a marked difference of opinion. The writer does not see any good reason for distinguishing between public and private agencies in this matter, particularly when the latter are operating under public supervision. The really important point is that any child-caring agency, whether public or private, should not return the child to his own home without reckoning with the experience o f agencies that have previously dealt with the family. Where the work of children’s institutions has been closely inter related with that o f city-wide family agencies, or where it has been made an integral part of a unit system o f social work under religious auspices, there is a question in regard to the advisability of having the institutions undertake case work on their own behalf. Insti tutions which are already engaged in case work will naturally want to continue it and should in general be encouraged to do so. It would be desirable, however, to have them confine themselves to cer tain specific types of work, such as the foster-home placement o f children, and, possibly, the aftercare of children discharged to their own homes. Since the latter type of work is primarily the work of a family agency it should be retained by the institution only in exceptional circumstances, when the family agency is unable to render satisfactory service. There is every reason for believing that comparatively little work is being done for families whose children have been taken over by children’s agencies. It is too often assumed that conditions in these families will somehow or other right themselves after the children have been removed. Family agencies no longer feel any responsi bility toward them and the children’s agencies are satisfied with a periodical reinvestigation. It should be very evident that a periodi cal reinvestigation will not remedy the conditions which necessi tated the removal of the children. Constructive family work is the only means o f remedying these conditions. The family agency should, therefore, continue its work with families from which the children have been removed. It should spare no pains to change the family situation so that the children may some day be re turned to their own homes. There is no parent, with the exception o f the low-grade mental defective, whose attitude and habits o f life may not be expected to change so that he will provide the proper 72693°— 26— -1 0 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 140 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. care for his own children, and there is always the possibility o f finding a relative willing to provide a home for the children. When children are returned to their own homes their care should become a part o f the work o f the family agency. It will not be necessary for the children’s agency to continue its supervision except in cases in which its legal guardianship is continued. In an increasing number o f rural communities which have no family agencies, well-organized children’s societies are being formed. There are a number o f state-wide public and private children’s so cieties, and a number o f States have county child-welfare boards. These state-wide children’s societies and county child-welfare boards must o f necessity undertake family work as well as child-welfare work. Their family work is, in fact, o f much greater importance than their work specifically for children. The standard by which their efficiency is measured is not the number o f children they place but the number o f families they rehabilitate. One o f the wholesome signs o f the times in rural work is that it is beginning to be thought o f in terms o f the family rather than o f the individual child, and that boards o f public welfare are being substituted for child-welfare boards. NEED OF COORDINATION IN THE WORK OF FAMILY-WELFARE AND CHILD-WELFARE AGENCIES. A great part o f the social work for children in the United States has developed without regard to the work of family agencies or the principles of family case work. This has been due in part to the lack of family organizations and to the fact that many o f the chil dren’s societies and institutions did not have confidence in existing family societies. Every social worker now feels the need o f bridg ing this gulf between family and children’s organizations. The social worker realizes that so long as children’s agencies accept large numbers o f children without any effort at family rehabilitation social work will remain very incomplete and imperfect. Those who have thought much about the problem feel that they can find a solu tion for it in a unified system o f social ease work under which no child will be separated from his own home until all the possibilities o f family case work have been exhausted. This would mean, o f course, that children’s agencies would be excluded from the field of family work, that they would no longer accept children directly from their families, and that the work of children’s and family agencies would be more closely coordinated than at the present time. This coordination o f children’s and family work is by no means an easy task, nor can it be secured by any rule-of-thumb methods. Children’s agencies and institutions have their own policies and tra https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis V SOCIAL WORK W IT H FAMILIES AND CHILD-CARING W ORK. 141 ditions. They are genuinely interested in both the material and the religious welfare o f the child. Many o f the institutions date from the time when the reception o f the child in an institution was essen tial for the preservation of his religious faith. Those who know something o f the social work o f the present time recognize that a great change has taken place in this regard. Social workers as a whole are now genuinely respectful o f religious beliefs and make every effort to conserve them. How is the work o f family and children’s agencies to be coordi nated so as to insure constructive family work before children are removed from their own homes and after they are returned to their homes? This question has already been answered in part. In cities with one city-wide family agency it should be possible to institute a close working relationship between the family society and the vari ous children’s agencies and institutions. It should be possible to get the various children’s groups to see the need o f referring all their applications to the family society. The writer believes that while this plan is the only one that is immediately feasible in a large num ber o f cities it is by no means an ideal plan. He believes that in the long run much greater progress will result if the different re ligious groups undertake their own case work, provided they are willing to adopt standard case-work methods and to work coop eratively with the other agencies of the community. It is assumed, o f course, that the different groups will confine their work to their own group members. It would be a very poor policy for any group which represents merely a section o f the community to undertake a community-wide work. For the religious institution o f any denomination the religious wel fare o f the child is paramount. Such an institution will not be willing to turn a child over to any agency until it is assured that his religious faith will be properly safeguarded and developed. There fore the religious institution has far greater confidence in the work of an agency o f the same faith than in a city-wide agency. For this reason the family agency operating on a religious basis is the best means and in most large cities the only means o f developing the proper correlation between the large volume o f work done by de nominational child-caring institutions and organized family-welfare work. While the denominational family agency is the best means of ap plying case-work principles to children’s institutions o f the same religious faith, it must be remembered that in many cities there is little hope o f organizing denominational family agencies. Many re ligious denominations feel that the community-wide agency can satisfy all their needs; and no religious agency recognizes the need https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 142 FOSTER-HOME CAKE FOR DEPENDENT CHILDREN. or has the necessary equipment for the organization o f familywelfare work on the same extensive basis as its children’s work. Over a large section o f the field, therefore, dependence must be placed oh city-wide, county, or State agencies. This means that the nonsec tarian agency must develop a close working cooperation with de nominational child-caring institutions. It means that the commun ity-wide agency must convince the superintendents and boards of directors o f the institutions that it is prepared to care properly for the religious welfare o f children referred to it by the institutions. - Many social workers feel that the efforts of the different religious groups to establish their own case-working agencies will develop endless confusion and antagonism among the different religious groups themselves. But it must be remembered that the religious organizations are already engaged in social work. A t the present time they look upon social work among their own members as one o f their essential functions. The larger religious groups in the United States have never surrendered to community-wide agencies their right to engage in constructive service for their own members. In all probability, more than 60 per cent of all the work for chil dren needing special care in the United States is done by the Protes tant, Catholic, and Jewish groups. What the Catholic Church has in mind in the organization o f case-work agencies is the coordina tion, development, and standardization o f the various charitable ac tivities in which it has been engaged from the beginning. The writer does not have any first-hand knowledge of the work o f the other re ligious groups but assumes that the same is true of them. RECENT DEVELOPMENTS IN CATHOLIC UNITED STATES. CHILD CARE IN THE There are four ways through which the Catholic Church in the United States has endeavored to apply case-work principles to the work o f its child-caring homes. In a few places the church has en tered into a working agreement with city-wide agencies. Beginning about 1890, a number o f Catholic institutions employed special agents to assist them in the reception and discharge o f children. The im portant functions of these agents were the protection of the interests o f Catholic children in the criminal courts and the supervision of children discharged from institutions. Some Catholic dioceses with a large institutional population employed one worker who was sup posed to attend to all court cases involving children and to supervise all children discharged from institutions. About 1895 a number o f leaders in Catholic charity work began to realize that the problems o f intake and discharge could not be solved by the individual institutions. They felt the need o f organizing the Catholic children’s work in every city in the United States according https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SOCIAL WORK W IT H FAMILIES AND CHILD-CARING W ORK. 143 to a unit plan. Hence they advocated the establishment o f central Catholic child-caring agencies with trained personnel which should be clearing houses for all the children’s institutions, have general supervision over the intake and discharge o f children, and also accept children directly for placement in family homes. The ideas of these pioneers in Catholic case work for children in the United States did not take hold very rapidly. A t that time Catholic organizations in the different cities were isolated one from the other. There was no literature o f Catholic charities and no Catholic charities conférence. Between 1895 and 1912 beginnings were made in the organization o f six central Catholic child-caring agencies in six cities in the United States. W ith the organization o f the National Conference o f Cath olic Charities in 1910 it became evident that Catholic children’s work could not be dealt with as an isolated unit but must be made a part of a complete and coordinated system which would include familywelfare work, health work, protective care, and recreation. The pro ponents o f this unit plan o f organization were well aware that its application to the work o f Catholic charities in the different cities in the United States would necessarily be a rather slow process. It meant the bringing together in one organization o f a multitude of institutions and organizations which for years had regarded them selves as completely autonomous and self-sufficient. It involved some very important changes in the methods and policies o f the church in dealing with the poor and the handicapped. Prior to that time the church had depended on its parish organization to care for the poor in their own homes. The new plan for the organization o f Catholic charities called for city-wide family-welfare societies with full-time trained personnel which would improve and supplement the work of the different parish units. It proposed a rather complete coordina tion and standardization o f the work o f Catholic children’s institu tions and a close correlation of the work o f these institutions with Catholic work for families, and it also provided for the standardiza tion and development o f Catholic hospital dispensaries and socialservice departments and Catholic protective and recreational work. It could not be expected that this unit plan o f organization would be adopted by the Catholic charities in every city in the United States in the short period o f 13 years. The extent to which the plan has been adopted, however, is encouraging. In at least 25 cities the various Catholic charitable institutions and organizations have been brought together under the direction o f a central “ bureau o f Catholic charities.” These bureaus are in reality central case work agencies with special departments devoted to family welfare, child welfare, health, and protective care. The writer has referred to the movement in the Catholic Church for the organization o f bureaus o f Catholic charities, or bureaus https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 144 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. o f social service, as they are sometimes known, in order to emphasize their significance in the field of child welfare. Their most important contribution has been their influence on Catholic child-caring institu tions. One o f the first tasks which most o f the bureaus set before themselves was the regulation o f the intake and discharge o f the child-caring institutions. They have also brought the institution superintendents together for the purpose o f discussing and formulat ing common standards. In connection with Catholic children’s work in the United States there is another movement to which reference should be made in this paper. In 1920 the various Catholic sisterhoods engaged in child-welfare work in the United States formed a national organiza tion for the purpose o f exchanging opinions in regard to their work and developing their own literature and standards. This organiza tion has already held three- annual meetings and has recently pub lished a set o f standards under the title, “ A program for Catholic child-caring homes.” The annual meetings o f the Catholic sister hoods and their program for child care are bound to exercise a profound influence on Catholic child-welfare work in the United States. They will give Catholic institutions an opportunity o f profiting by the best experience in child care. Heretofore those in charge o f Catholic child-caring institutions have been loath to write or talk about their work. This traditional attitude, is now fast disappearing. The sisterhoods as a whole are showing a great will ingness to discuss their work and to study and profit by the experi ence o f other agencies and institutions. As a result o f the work of the recently organized bureaus of Catholic charities and the National Conference o f Catholic Sister hoods, Catholic children’s homes are coming to think o f the child in terms o f the fam ily; they are coming to recognize that effective work for children presupposes good family-welfare work and are therefore willing to make themselves a part o f a unified system of social case work which assumes as one o f its fundamental postulates that no child should be removed from his own home until every effort toward preserving the family unit has been made and which assumes further that efforts toward family rehabilitation should be continued after the child has been turned over to the institution with the hope of returning him to his own family at as early a date as possible. CONSTRUCTIVE FAMILY SERVICE THE BEST MEANS OF INFLU ENCING CHILDREN’S AGENCIES. No matter what method o f correlating family with children’s work is adopted, its success will depend on the service rendered by the family agency* Many children’s workers are genuinely skeptical as https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SOCIAL WORK W IT H FAMILIES AND CHILD-CARING W ORK. 145 to the claims o f family agencies. They feel that the actual results secured by family agencies bear no proportion to their claims. This attitude is common among institutional workers and is by no means confined to them. It can not be changed simply by pointing out that much o f the work which the children’s workers are doing at the present time belongs to family agencies or simply by developing new agencies or developing a higher type of cooperation between existing agencies. The work o f the family agency will continue to be judged by deeds and not by plans and programs. It will be looked on as an experiment the value of which remains to be demonstrated. The agencies will not make much progress with the children’s institions simply by stating that under ordinary circumstances the child is better off in his own home than in an institution. The Workers in the institution feel that the child receives fairly good care under their direction. They know that there is something wrong with his home. The family case worker must show the workers in the institu tion that he is capable of righting whatever may be wrong in the home so that the child can be properly cared for there. The application o f case-work principles to the intake of children’s agencies and institutions is, therefore, a real challenge to the family case worker; and it is not a challenge that can be met merely by pensioning mothers with dependent children or by pouring out relief in any form. It must be met by changing the attitude and habits of life o f large numbers o f parents, and if the family worker is to change the attitude and habits o f life o f parents he must be prepared to interpret for them the meaning and purposes o f life; he must hold up before them proper standards o f behavior and he must be able to explain the motives for observing these standards. Every time he changes the attitude o f the careless and shiftless parent toward his family responsibilities, every time he gets a nagging wife or a brutal husband to adopt a more kindly and sympathetic attitude, every time he induces a gambler to change his manner o f life and turn his earn ings over to his family, every time he gets quarrelsome parents to solve their difference for the sake o f their children, every time he induces one or both parents to give up vicious sex relations, he is extending the sphere o f family work and narrowing the sphere of children’s work. NEW ATTITUDE TOWARD THE PRESERVATION OF FAMILY LIFE. Institutional care has been the traditional method o f providing for children deprived o f the support o f one o f their parents by death, desertion, or permanent disablement. When the father died or de serted while his children were in their minority the mother usually https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 146 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. felt that her only course was to place the children in institutions and go out to work. Within recent years it has come to be recognized that the loss o f one parent should not necessarily mean the break-up o f the family. Family agencies have accepted as a part o f their responsibility the care o f families deprived o f one of the parents. The enactment o f mothers’ pension legislation by the various States has relieved family agencies o f a large part of this burden. Mothers’ pension legislation has also reached a large number o f families who could not be reached by the ordinary family agencies. A survey of the population of children’s agencies and institutions would show, however, that family case-work agencies and mothers’ pension legis lation are not reaching all the cases that should be reached. Such a survey would undoubtedly show that large numbers o f children are being cared for by children’s agencies who with the application of proper case-work methods might be taken care o f in their own homes. With the morally delinquent parent social workers tend to give up hope prematurely. Such parents should be given every oppor tunity for reformation before their children are removed. Social workers should beware o f the Pharisaical attitude. They should be slow to condemn the careless and delinquent parent even after he has fallen seventy times seven. They should model their actions after those o f Christ, whose great heart went out in sympathy and com passion even to the greatest wrongdoers. Even in the best families there is sometimes found the proverbial “ black sheep,” a boy or a girl—most frequently a boy—o f whose training the parents have made a complete failure. When the parents o f such a child appeal to a social agency it is usually for the purpose o f securing institutional care for the child. In four years’ experience with cases o f this type the writer has found that it is usually a better plan to give the boy another chance o f making good in his own home. The cooperation o f an outside agency with proper understanding and sympathy as a rule has a good effect on the boy. At least it has the effect of giving the parents a better understanding o f the child. A ll educators, as well as all social workers, recognize that no agency can take the place o f the parents in the training of the child. The best institution and the best foster home are after all only makeshifts. No person can give the child the same whole hearted sympathy, can develop that same self-sacrificing love for the child as his own parent; and the child must have sympathy and love if he is to develop these same virtues in his own life—these virtues which are the basis o f family life and o f the highest ideals and noblest institutions o f the race. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis SOCIAL WORK W IT H FAMILIES AND CHiLD-CARING W ORK. 147 TYPES OF CHILDREN TO BE CARED FOR BY CHILDREN’S AGENCIES. No matter what social arrangements may be devised to protect families from the economic hazards due to the premature death o f the breadwinner or to industrial accidents, sickness, or unemploy ment, it will still be necessary that some children be taken care of by others than their own kith and kin. The attack on breaking up the home for economic reasons is meeting with considerable success, and one is fully justified in looking forward to the day when parents will not longer be compelled by the stress o f poverty to turn their children over to others. But even after the economic factors in broken homes have been eliminated or at least greatly minimized there will remain the moral factors in home destruction. It will still be necessary to deal with the parent who has not acquired the virtues o f self-sacrifice and o f self-effacement necessary for family life and the parent who is anxious to be rid o f his children in order that lie may be freed from the cares and the obligations o f parenthood. It is the duty o f the church and o f social work to do everything pos sible to prevent such shirking o f parental responsibilities. But no matter what social or religious influence may be brought to bear on parents there will be some who by reason o f mental or moral defects will be unable or unwilling to provide reasonably adequate care for their children. W ith the low-grade mental defectives no head way can be made. They should be segregated in farm colonies and not permitted to bring children into the world. When they do have children there is nothing to do except to take the children from them. CONCLUSION. The fundamental purpose o f this paper was to consider ways and means o f making the separation o f children from their own homes increasingly difficult by a more intelligent and systematic coopera tion between children’s and family agencies. The writer has en deavored as far as possible to take situations as he found them and to discuss the various drifts and tendencies that are pointing the way toward a solution o f the problem. Two important methods of developing a closer alignment between children’s and family agencies have been treated at some length: First, the possibility of a close working agreement between children’s agencies and institu tions and city-wide family agencies under which the latter will assume complete charge o f the intake o f the children’s agencies and institutions and also o f all children discharged to their own homes; second, the unit plan o f organizing social work under religious auspices as illustrated by the bureaus o f Catholic charities. It has not been assumed, however, that the work o f family agencies can https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 148 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. by either o f these programs be made to parallel the whole field of children’s work. Many children’s institutions will in all probability follow the same lines o f development as children’s aid societies. They will want to undertake their own case work. While this would by no means be an ideal social policy, it would at least insure the application o f social case-work methods to institutional work; and when the children’s institutions apply case-work methods there is every reason for believing that they will develop wholesome, co operative relationships with the family and other agencies o f their communities. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis COOPERATION BETW EEN THE CHILDREN’S AGENCY AND OTHER COMMUNITY RESOURCES. C. V. W i l l i a m s , Superintendent, Illinois Children’s Home and Aid Society. Child neglect had been widely tolerated in one o f the great indus trial States. Children were born and allowed to grow up amid vicious influences. Many o f them suffered great physical neglect. There were a few children’s homes caring for a relatively small group o f children, but this service was very limited. Nearly every alms house in the State was used as a shelter for some neglected and de pendent children; others were sent to county jails. A small group o f persons organized a state-wide program for the placing o f dependent children in family homes. They developed strong local advisory committees in many sections o f the State. They removed from most o f the almshouses the children who were not mentally defective, provided wholesome home life for large numbers o f children who had been living in unfit homes, and also carried on extensive educational propaganda in behalf of the State’s neglected children. Then, after several years o f this service, the State woke up and began to recognize its responsibility for the care o f these children. A t this time a most surprising thing happened. Another small group o f citizens genuinely concerned for the welfare o f the neglected and homeless children o f the State, believing that the voluntary organization had outlived its usefulness and that the State should henceforth undertake to care for such children, sought legislation by which the State would take this work entirely out of the hands o f private organizations. The result was a bitter fight which lasted for several years. A large group o f persons who had given their service and their money for the development o f a work which was already demonstrating its effectiveness, demanded its conservation. Another influential group, with just as great zeal, insisted that the care o f neglected children demanded service o f such character and permanency as could not be achieved by private organizations. Each group was in error, each lacked perspective. The tragedy o f the situatiol. lay in the fact that the penalty for the misunderstand ing, and for the lack o f cooperation—then as now—was borne by the very children whom each group honestly sought to serve. The serv149 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 150 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. ice that was given by the private agency was pathetically inadequate and at times crude. Its standards of service had not been well de veloped. The financial limitations of the organization permitted the care o f only a small group o f neglected children, leaving the great State problem unsolved. The group which demanded State care for dependent children and the abolition o f much private initiative was as greatly in error. It failed to appreciate the unlimited pos sibilities o f service through the development and utilization of ma chinery already brought into being by the private agencies, and the value o f conserving their initiative for further work. And so while these two groups opposed each other and succeeded to a large degree in blocking each other’s plans, little children suffered. Certain conditions existing in the field of child caring seem to demand an examination and explanation of thé motives or the in telligence o f the individuals responsible for movements in this field. Though not always manifested as in the above incident there appears in the conduct o f some agencies a greatly distorted idea as to the character and the volume o f service they should render, and a greater interest in the perpetuation o f the organization than in the solution of the community problems pertaining to children. The struggle by an organization for its maintenance as a separate entity is fre quently out o f proportion to the efforts it puts forth to provide the best possible service for its children— a service that can not be ren dered adequately without the closest possible cooperation with every other social force in the community. COOPERATION AS A SOLUTION OF CHILD-WELFARE PROBLEMS. The cooperation o f existing agencies would solve the child-welfare problems of many communities. The development o f child-caring agencies throughout the country has been rapid, and in every State a vast amount o f service is available to children in need, but the ramifications o f this work suggest enormous and undeveloped coop erative possibilities. Some States have succeeded in developing public departments for child caring which not only maintain a high degree of service but set standards that are followed by other organizations. In many States the conditions are reversed, and it is left to the voluntary organiza tions not only to develop methods and set standards but also to carry the great burden o f providing for the State’s dependent children. There are public and private home-finding agencies occupying the same territory, caring for the same types of children, and at times competing with each other. There are State, county, and municipal institutions for the care o f dependent and delinquent children. There are institutions for the care o f handicapped children—the blind, the deaf, the crippled, and the feeble-minded. There are https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE CHILDREN S AGENCY AND OTHER C O M M U NITY RESOURCES. 151 detention homes, receiving homes, orphanages, shelters, and day nurseries. There are protective and children’s aid organizations with state-wide activities, and in addition to these and many others there are numerous public and private State and national organiza tions designed to render highly specialized service to needy children. And yet in no State has the full coordination o f these agencies func tioning in behalf o f children been accomplished. The types o f service now available through these agencies are so varied and the volume is so enormous that in many communities the child-welfare problems could be practically and economically solved through their concerted action. The establishment o f addi tional agencies would not be necessary. It is fitting that the social workers of the country should honestly face these facts. The terms u coordination ” and u cooperation ” are used with complacency in our State and national conferences; yet the surprising and pathetic fact is that with a few outstanding exceptions child-caring agencies have not yet learned how to coop erate, and the greatest general criticism that can be made concern ing social organizations is their failure to render reciprocal service to each other. REASONS FOR FAILURE TO COOPERATE. Some o f the reasons why social agencies do not cooperate are : (a) Executives lack information; (b) competition o f agencies to secure money from the same territory frequently prevents friendly relations; (c) some agencies are satisfied with their work and con sider any interruption o f present plans o f organization and adminis tration an intrusion. (a) The technique of social service for children has had tardy development. The courses o f training offered have been available to but a small proportion of the men and women in the country who are actually engaged in children’s service ; consequently only a com paratively small percentage of these persons, including many execu tives, have had any special training. In hundreds o f institutions splendid men and women, technically untrained, are rendering a heroic and a faithful service to their charges. Some o f them never attend a State or a National conference, and do not inform them selves concerning other community resources. Their entire time is given up to what seems to be the immediate problem—the care of their children. Because of their lack o f specialized training many o f thèse overworked and underpaid persons will never be able to appreciate properly the inadequacy of their work, and in consequence o f this absence o f information children are sadly negelcted. This is especially tragic because some o f these devoted workers are prac https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 152 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. ticing great self-denial in their effort to serve the children. How long shall the sacrifice o f helpless children, due to the ignorance of well-meaning but uninformed persons, continue? (&) Possibly a more obvious cause for lack o f cooperation among child-caring agencies is the struggle for financial assistance. In the effort to attract the attention o f possible givers, the agency must, at times, advertise itself to the exclusion of other organizations. In the economic struggle a sense o f values is lost and the competition o f kindred child-caring agencies to secure money from the community leads to unfriendliness or even actual hostility. The average annual report o f a child-caring agency would hardly invite the friendly cooperation o f kindred organizations in the same locality. The ex perience o f a number of community “ financial federations ” has demonstrated the ease with which the functional activities o f child caring agencies may be coordinated when the competition to secure financial aid is removed. ( c) Other causes are more subtle and intangible but quite as vicious as those already cited. There are agencies—-both public and private—that are steeped in complacency. They will not cooperate with other organizations because they are self-sufficient and quite satisfied with their work. They maintain the standards o f a gen eration ago. The rules and regulations o f some o f these agencies are “ sacred institutions;” they are not altered to meet progressive social ideals, and in their application the changing needs o f the children are given only secondary consideration. WASTEFULNESS OF INDIVIDUALISTIC EFFORT. Consequences o f lack o f cooperation are: (a) Duplication o f e f fort; (b) lack of service for certain needy types; (c) low standards o f service; and (d) inadequate and incomplete service to the children. . ( a) The lack o f cooperation on the part o f child-caring agencies is costly both in effort and in money. New agencies are created for the care of children which duplicate work already accomplished, and their maintenance becomes a needless burden. L ofty motives some times accompany lack o f information. Persons who spend vast sums o f money for buildings to house alleged dependent children without engaging in a suitable inquiry to find out why the children should be thus cared for, may be not only committing a needless extra vagance but doing an injury to the community. The erection of an orphanage or the creation o f a new agency is not the one answer to the big problem o f child welfare. A group o f persons connected with a certain state-wide organiza tion, desiring to engage in some form o f social service, decided to establish a “ children’s home,” and were able to secure funds suffi https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE CHILDREN*S AGENCY AND OTHER C O M M U N ITY RESOURCES. 153 cient to buy a building for this purpose. They were without infor mation as to the need for this particular kind o f institution, but following the example o f many other groups adopted their program and then went out to find the children whom their program would fit. The children whom they selected could have been better cared for through existing agencies. This incident is mentioned to show the manner in which needless agencies are foisted upon the com munity. Lack o f cooperation is not confined to private agencies. In one o f the large States, which has much social legislation, numerous de partments o f the State had been given duties of inspection. Though they dealt with the same institutions their work was not at all co ordinated. Agents from the board of health, the department of charities, the fire marshal’s department, the bureau of uniform ac counting, the building-inspection department, and sundry other de partments o f the State, might travel to the same institution on the same day. The duplication o f travel expenses alone was enormous, and there was repeated overlapping o f service. One of the ridiculous features o f the situation was the failure o f the departments to co ordinate their findings, which in some cases were contradictory and brought the inspection service into contempt. For example, a child caring institution which operated with impossible standards and was criticized by the charities board was commended and favorably re ferred to by the accounting bureau, because of its low per capita cost. In the same State a strong department o f public instruction dictated the standards for the public educational institutions throughout the State but exercised no authority over the education o f children in the State child-caring institutions; and in some of these institutions mediocre or inferior educational standards pre vailed. Through cooperation the social forces o f the community could, without doubt, meet existing needs. A knowledge of existing re sources would result in the abolition of the foolish, shameful, and ex travagant duplication of effort, and there would be substituted a development o f activities which would be o f actual constructive ser vice to needy children. (b) The practice o f establishing additional agencies for the care o f children without a knowledge of actual needs not only results in frequent duplication and consequent extravagance but— of even greater importance—leaves large groups of children without care. Either there is no plan o f treatment for these children, who are not eligible for care by the existing agencies, or such agencies are with out sufficient resources. It often happens that institutions can not function in behalf o f really needy children because they are filled with children some o f whom have been needlessly removed from their https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 154 FOSTER-HOME CARE FOR DEPENDENT: CHILDREN. homes. In numerous communities with abundant facilities for the care o f normal needy children no provision whatever has been made for certain types o f difficult but misunderstood children, who because o f that lack are sent to penal or custodial institutions. For example, not many communities make provision for the care and education of children suffering from syphilis and gonorrhea, though in every State there are such children in dire need o f attention. One o f the first advantages o f a cooperative movement would be the development o f a program taking into consideration the needs of every child and not’ confined to activities in behalf o f special groups. (<?) The self-satisfied, individualistic child-caring agency which does not cooperate with other organizations generally maintains low standards of service. It may be unconscious of this fact, but the most casual study of such agencies throughout the country reveals primitive customs and practices that are generally due to ignorance growing out o f their isolation from other agencies. No child-caring organization “ can live unto itself.” The things that happen to chil dren in the care of these agencies do not make pleasant reading. Some juvenile-court judges prefer to confine their wards for pro longed custodial care in detention homes which lack facilities for separating the dependent from the delinquent children, rather than accept the service of standardized agencies which would seek family homes for these children. Many children who should not have been removed from their own homes are kept at great expense for many years and then returned to the same environment from which they came. Other children are placed by agencies in unfit foster homes where they are subjected to harmful influences ; some o f them are practically abandoned by the organizations that assumed their guar dianship. In many institutions unfortunate mothers, at the time neither physically nor mentally in a condition to know their own minds, are persuaded to surrender their children for adoption. This cruel practice—robbing mothers of their children in the name of charity—-still needs to be abolished in many localities. In some chil dren’s institutions the children are physically neglected; they are crowded together in cheerless rooms ; they are subjected to that in vention of the devil— a silence regime that crushes out their indi viduality. Their wistful eyes tell the story o f their great hunger for the individual care which they will not receive. ( d) Lack of cooperation is further costly to the child because no one agency in a community is equipped to meet all his needs and practically every specialized welfare activity, directly or indirectly, affects child life. The agency that is satisfied with its exclusive service o f detention or foster-home care, and neglects to avail itself o f resources o f service through other kindred organizations is not meeting fully its obligations. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE CHILDREN 7S AGENCY AND OTHER CO M M U NITY RESOURCES. 155 In some o f the most highly specialized services there is danger that the agency will lose its perspective. The agency may succeed admirably in providing a superior foster home for a child, but if it has failed to see the needs o f that child in the light of the needs of his entire family it may rob him o f his birthright. For it is some times better that brothers and sisters be left together under supervi sion in their own home, even though that home be inferior, than that the fragments of a broken family be scattered in many excellent institutions. The problems o f the neglected child are much broader than those involved in his immediate care. What facts concerning his family are sought? What is known of his parents, his brothers and sisters, and his other relatives? What are the peculiar environmental con ditions that have brought him to the attention of the agency ? What has been done, or will be done, to correct the conditions which have been responsible for the family breakdown ? Children’s agencies have almost universally failed to take the family o f the neglected child seriously. Case investigations have been made; they have revealed causes and results, and physical and mental conditions that are of value in planning for the child. But the conditions responsible for the vermin, the neglect* the immorality, and the obviously unfit home life have not always been remedied. It may be rather interesting for the agency to tell the story o f the rescue of the poor children from the “ impossible ’’ parents. In their great zeal to serve neglected children they have lost sight o f the spiritual values which demand the conservation, if possible, of the child’s home. This fatal blunder has affected the lives o f thousands of chil dren. No physical condition which may later be brought into their lives will quite satisfy the infinite longing they have for association with their own kin; and many o f them will ask in vain for informa tion concerning the scattered members o f their family. No agency can successfully treat the child under its care without knowing his family background and the conditions that have de stroyed his home or rendered it unfit. No agency in the country is sufficiently well equipped to meet adequately all the needs o f all the children whom it serves. And no agency can function with maxi mum success without an understanding of, and a cooperation with, the forces affecting the health and happiness and general welfare o f the children of the community. An appreciation o f this fact places upon children’s agencies everywhere the imperative obligation to enlist the service and secure the assistance o f as many other organizations and as many individuals as possible. Children’s agencies may be able to exist without this cooperation, but the result is costly. It is costly to the groups especially concerned, and to the 72693°—26----- 11 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 156 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. children who, in this way, are deprived o f the most constructive service. The children always pay the bill. SOME METHODS OF COOPERATION. It is the purpose o f this discussion to consider fundamental prin ciples and some of the methods adopted by agencies that seek to do their full duty by their charges. Methods which have met with success in one community may fail elsewhere. The question as to how child-caring agencies of any State may be welded into a real unit still offers a challenge to the social architect. Though little is known o f any form o f coordination which organizes the community forces so as to secure the most thorough service, attempts to federate agencies having a common purpose have been made and have met with substantial success. Councils of social agencies, or similar organizations, are effecting group movements in welfare activities. In some communities agencies are now getting a vision of the service that should be available to every child. W ith the growing recog nition o f its own limitations, an agency eagerly seeks the assistance o f others. Cooperation in various cities. In one o f the large cities there were a large number o f children’s institutions with standards o f the ordinary variety. Each carried on its own program in most cases with little concern for community needs. The executives o f some of these agencies hardly knew one an other. A series o f conferences to bring them together was arranged at different institutions. These conferences were well attended by persons connected with the children’s organizations, who in this way began to get acquainted with one another. This acquaintance de veloped into good fellowship and confidence, and soon the group began to plan for the care of children whom none of them had been able to reach. Then followed a survey o f the child-caring activities o f the entire city— a study which, though directed by experts, was participated in by the agencies themselves. This revealed much waste and numerous misdirected activities. The wards of one large institution, with few exceptions, were found to be needlessly de tained, having parents or relatives able to care for them. These children were removed, and the institution became available for the reception and study of difficult children who previously had not been reached. For the first time this institution was placed in a position to render its greatest.service not only to the coordinating agencies but also to the children o f the city who were most in need of it. In another large city six well-equipped and highly standardized private children’s agencies were engaged in the same general type of work. Many years ago these agencies prevented duplication o f effort https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E CH ILDREN’ s AGENCY AND OTHER C O M M U N ITY RESOURCES. 157 through their reference to a confidential exchange. In order to give better service to the community, they later agreed among themselves as to the geographical district for which each o f them would assume a major responsibility, and furthermore developed phases o f in tensive service made possible by the existence o f so many agencies. Obviously this refinement o f specialized service, as well as the dis trict to be occupied by each agency, could not be generally known to applicants for aid. To meet this situation each of the six agencies agreed that when approached with a request for relief for a child it would take the responsibility o f locating the case with the proper organization. Through this close cooperation service of high quality has been developed and duplications o f effort have been reduced to a minimum. An old, well-established, and influential children’s home had for many years been placing children in foster families. The investiga tions by the institution had been casual. Beyond written indorse ments, which could be secured by any person, little was known o f the fitness o f many o f the homes. The visitation o f the placed-out chil dren was delegated to the haphazard volunteer service of board mem bers. Some o f the children were visited, others were not. Several o f the directors were led to examine into the history and development o f foster-home placements and the dangers incident to them. They suddenly awakened to the fact that they had practically ignored one o f their greatest responsibilities, and that in consequence o f their failure adequately to supervise their wards in foster homes, some of the children had been neglected. They did not possess the resources for the development o f a comprehensive home-finding and placingout program. Instead o f going to the expense o f building up ma chinery for this purpose within their own institution, they accepted the services o f a state-wide home-finding agency. This organiza tion employed trained workers who were experienced in developing foster homes and in determining their fitness to receive children, and who knew something o f the technique of adjusting children to adapt able homes and o f exercising supervision over these children after placement. Through an arrangement by which this society assumed the responsibility for placement and supervision high-grade service was secured and economies were effected. It is much more satisfac tory for a properly standardized state-wide agency, employing work ers who are trained in this type o f service and having the entire State as a field for home finding, to assume such an additional task than for the small agency to set up makeshift machinery to accom plish, at a great cost, a lesser result. In still another city there are a large number of children’s organi zations. The enormous resources o f these agencies are not generally known, with the result that a limited number o f them have been https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 158 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. carrying most o f the burden. These agencies are now forming a joint application bureau, which will be maintained in a separate office by the participating organizations. It will inform itself con cerning all the community’s resources for service to needy children and will classify cases and distribute them to the appropriate agencies for care. In its investigations the bureau will seek pri marily to establish the need and to ascertain to what agency the case should be sent. The development o f the plan for the full treat ment o f the case will be left to the agency. Any person may refer to this bureau any child in trouble. This will save many a poor parent from being sent from one agency to another without finding help. The development of this plan not merely will secure a more systematic service in behalf o f children in need, but will permit the obtaining of specific information concerning groups o f children for whom no resources are available. As a further aid to coop erative service one of the large children’s institutions associated with the bureau will operate as a receiving home, giving emergency and short-time care to children pending their acceptance by other agencies. The child-caring agencies of several of the large cities have been able to effect functional combination. Through joint application bureaus, joint purchasing, and joint home-finding and medical serv ices a much improved and increased volume of service has been secured, with a commensurate reduction of administrative costs. In many communities, in order to facilitate further cooperative move ments, different social agencies are taking offices in the same building. The subcommittee on dependent children of the National Confer ence of Social W ork outlines as follows a tentative program for child-caring agencies located in the same city : Following an establishment of an accurate understanding between the agencies of work plans, the council should turn its attention to the “ funda mentals and elements in case work,” which will include: (a ) Social investigation of problems or cases. (b ) A case diagnostician. (c) The reference of cases or problems by one agency to another. (<Z) Interagency case conferences, when more than one agency is interested. ( e ) Uniformity and standards of records and their making. ( f ) Working out and understanding by all agencies the specific character of case treatment necessary to be followed by certain individual or kindred groups of agencies. {g) An arrangement to administer cooperatively, and it may be centrally, such service as may be common to all agencies, or to agencies in kindred groups. In this arrangement may be worked out plans such as represented by children’s bureaus in joint investigation of cases for care, decision as to their ‘ final disposition, medical examination, etc .; central registration schemes, central pur chasing o f supplies for institutions, joint bureaus o f volunteer service are sug gestions of common activities vital to many agencies. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis TH E CHILDREN’ S AGENCY AND OTHER C O M M U N ITY RESOURCES. 159 Cooperation through State agencies. In one community a state-wide home-finding agency took an active part in organizing a local children’s Service bureau. The State agency had been “ covering” this city and had rendered some valuable aid in behalf o f children who needed temporary care. It was obvious that this service could not be commensurate with the need. The State agency therefore helped to develop a local organi zation, which had a much stronger financial appeal in the community than the State society. This made possible the setting up o f special machinery for the treatment o f local cases and the employment of persons to devote their entire time to it. A ll the ordinary protective, diagnostic, supervisory, and general aid service in behalf o f children in their own homes is now under the direction o f the local bureau. The State organization confines its service in this city to the care of children who are removed by court order from their parents and aie in need o f permanent or adoptive homes. The local organization lacks the machinery for this type of service. The case investigations concerning the children who need permanent care and the supervision o f the State agency’s wards in foster homes in that community are supplied by the local agent, who is compensated for her service by the State agency. Thus the cooperation is made effective, and the community receives a vast amount of service which the State agency could not give. , One State department, in addition to its inspectionaT responsibil ities, is required by statute to develop throughout the Commonwealth a placing-out plan for dependent children. It has aroused compla cent trustees and directors to a sense of the inadequacy o f their serv ice by visiting their wards and then presenting to them specific facts. Some o f these trustees and directors have been amazed to learn in wj^iat pitiable condition some o f the children for whom they are 1 esponsible have been found. This State department, recognizing the financial limitations and the difficulties under which many institu tions are operating, has made a practice o f offering its highly special ized home-finding and supervisory service to such agencies as care to accept it. Owing to this constructive cooperation the work for children in some of the counties o f the State has been literally trans formed. Children detained for years in institutions have been given physical examinations and corrective treatment, have been mentally studied, and have then been placed in carefully selected homes under constructive supervision. Space has thus been released in the institutions for the care o f other children. Cooperation in rural communities. The rural problem presents different aspects. The first problem o f the city is to bring together and to cause to operate as an entity https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 160 POSTER-HOME CARE FOR DEPENDENT CHILDREN. a large group o f children’s agencies. The rural problem is not less complicated. It entails the bringing together o f all available socialwelfare activities, and the physical difficulties o f this task are not readily overcome. In many States the county is proving the logical unit for this type o f service. In effecting an organization o f the community’s resources the following groups should be considered: (a) The re ligious; (b) the civic and fraternal; ( c ) the social and educational; and ( d) the medical. The governing board, to be democratic, must include representa tives o f each o f these groups. The religious organizations should everywhere be called upon to participate in social programs. The greatest forces that can be found for accomplishing family recon struction are too frequently ignored. In some localities superb serv ice is being rendered by the civic and the fraternal organizations. These organizations can readily be interested in the community needs. The public schools and other educational activities will func tion increasingly in the program o f the future for neglected children. A ll the social-welfare agencies, both public and private, that operate in a county should have a place in the county organization. The medical resources of many rural communities have yet to be socialized, but in order to protect the community health— a social problem—the cooperation o f the medical profession is needed. The outstanding need everywhere is for information—informa tion concerning all the children in the community who are in dis tress; and, o f even greater importance, information concerning the needy families who have not yet reached the breaking point. A survey o f all the available welfare forces o f the community should be followed by their organization for the carrying out o f one definite program in which the responsibilities of each unit wilLbe clearly defined and the activities o f the entire group coordinated. The organization o f these forces under suitable leadership would establish a superb form o f service meeting the need of every mem ber o f the community. W ith an organization like this, the children’s agencies could render their service with a directness not heretofore known, for one of the results growing out o f such organization would be the rehabilitation o f homes and the saving o f parents to their own children. In a community with such an organization homes would not be needlessly destroyed. RESULTS TO BE OBTAINED THROUGH COOPERATION. Every community has unused resources. The needless admission o f children to children’s homes and day nurseries could be prevented through cooperation with case-working social agencies now exist https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE CH ILDREN’ s AGENCY AND OTHER CO M M U N ITY RESOURCES. 161 ing in nearly every urban, and even in most rural, communities. The hideous consequences o f placing children in unfit homes could be avoided through the use o f proper agencies that specialize in home finding. The physical treatment o f children who have remedi able defects could generally be accomplished through the use of exist ing medical organizations. Only when the children’s agencies, actually cooperate, will there be an approach to the meeting o f the communities’ real needs. Then there will be emergency receiving-home service available for im mediate use, Institutions will no longer be “ dumping grounds,” but each will accept for care children whom it can best serve. Pro vision will be made for neglected groups, such as the venereally in fected and the psychopathic. Special vocational training will be given to children who need it. Family-home care for children who may properly be placed at board will be developed. The protective agency will have cooperation in seeking to compel parents to protect their own children, and the agency that places children in. family homes for adoption will serve all the others. The unmarried mother and her child will no longer be shunted from one agency to another, but will be given such service as the circumstances justify. The institutions that seek to give special industrial and educational opportunities to children will not be im peded in this work by a large feeble-minded population. Mothers in maternity hospitals will not surrender their children to irrespon sible guardians. Infants in need o f special pediatric service will receive it. An understanding service will be rendered to children physically or mentally sick, and the days will have come to an end when delinquent, dependent, defective, and venereally infected chil dren can be herded together in the same building, the treatment of each class interfering with service to the others. THE RELATION BETWEEN PUBLIC AND PRIVATE CHILD-CARING AGENCIES. In many States a public department, in addition to inspectional and licensing powers, is required to carry on a general child-caring program, accepting the guardianship o f children and providing for their care in institutions or ^family homes. The wisdom o f extend ing supervisory powers to an agency that engages in the same type o f work in which it supervises others is questionable. In some States the public child-caring departments do not maintain high standards and need the assistance o f a constructive State supervisory body as badly as the private organizations. The attitude shown by State departments in their relation to private agencies varies in different States. It may be sympathetic https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 162 FOSTEB-HOME CABE FOB DEPENDENT CHILDBEN. and helpful or it may be unduly critical. In some States the public departments are developing broad, cooperative programs and seeking to conserve the interest and the initiative o f the supervised agencies. In others the State agencies tend toward an autocratic régime— an attitude that does not encourage cooperation. A certain State department charged with the supervision of children placed in family homes visited the wards o f a private chil dren’s home-finding agency. Following this visitation the superin tendent o f the society made repeated but futile efforts to secure from the department the report concerning this “ service.” -More than a year later a public report was issued in which the State agent, after exalting the ~7ork of his department, severely criticized the private agency and told o f finding some o f its wards in undesirable homes. I f the State agent had been really interested in the welfare of these children, it would appear that he would have taken immediately the logical steps to have the condition corrected, by reporting it to the responsible guardian. State supervision of this nature is not hearten ing to the supervised agency. Public child-caring departments, like private agencies, may operate with mediocre standards or may lead in developing high standards. Some State departments o f the latter type have rendered a conspicu ous service, in placing the State program o f child caring on a high plane. The lines o f demarkation between the responsibility of the State and that o f the voluntary agency in the care o f children are not readily drawn and will vary in different States. It is gen erally conceded that public funds may be sought for that which has been demonstrated to.be practicable and economical, the field o f ex perimentation being left to the private organization. There are ex ceptions to this rule. The establishment within State departments of research bureaus for the psychiatric study o f children is a striking illustration o f the willingness of some legislatures to undertake new and undeveloped work. The private agency can choose the work it wants to do, but it will always render a limited service to a relatively small group of children. It has a peculiar opportunity to explore new fields. It can blaze trails, discover methods ; and when the wisdom o f such service is established, it can seek to place upon the public department the responsibility o f serving the much larger group through the methods it has proved to be effective. In one State where public service for children has been developed on a large scale the State accepts for care all cases o f ordinary de pendency and all types that require long-time custodial care. The private agencies, on the other hand, are called upon to render in tensified service o f a more costly nature to specialized groups of children and to provide temporary care for children in whose cases there are possibilities o f early rehabilitation. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis THE CHILDREN S AGENCY AND OTHER CO M M U N ITY RESOURCES. 163 In another State the burden o f service is borne by a few private agencies. The State department charged with the task o f child car ing makes little or no provision for the care o f children who can not be helped by the existing private agencies and much o f the work of the department is a duplication o f service available elsewhere. Departments charged with the responsibility o f developing a State program for children should recognize that their great opportunity lies in rendering constructive aid to all existing agencies, rather than in the exercise o f the police power. Some o f the agencies now op erating with low standards are capable o f great development, but they should be given proper assistance. The private child-caring organizations, whether they are working with high or with low stan dards, represent forces that, properly organized, could insure the welfare o f many children. The State can not afford to spoil the in itiative o f these groups o f men and women who are giving both their service and their money. The State department, through its power to pass upon new incor porations, can prevent the establishment o f needless duplicating or ganizations, and with a knowledge o f needs it can direct new agencies to the desired type o f service. A State supervisory department should develop a staff personnel trained in social case work and in institutional administration. They should be able to diagnose and to treat in a constructive manner the ills common to many children’s agencies. They should secure uni formity in record keeping by passing upon or by preparing standard forms and by assisting in their installation. They should be able to make population studies, to develop home-finding propaganda, and to assist the agencies in securing suitable supervision for placed-out children. They should know how to assist the agencies in problems affecting the physical, social, religious, educational, and cultural life o f children. Enormous resources are at the command o f the State department which should be available to the agencies it supervises. Some State departments are carrying on special educational work by calling dis trict or regional conferences o f representatives of children’s organiza tions. I f the geographical district is not large this affords an op portunity to develop friendly contacts—a first step toward coopera tion. When child-caring agencies realize the terrible consequences of the lack o f cooperation in welfare activities, the great multitude o f unfortunate children who are not reached, and the inadequacy and incompleteness o f the work that is accomplished for needy children by the best organizations in the community, their individualistic ef forts will give place to a cooperative program. Only then will the rights o f neglected children be conserved. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis STATE SU PERVISIO N OF PLACING-OUT AGENCIES. E llen C . P o t t e r , M . D ., State Secretary of Welfare, Pennsylvania. THE REASON FOR STATE SUPERVISION. Long before organized government recognized that any responsi bility devolved upon it for safeguarding the dependent child, men and women as individuals and as religious and fraternal groups had assumed the responsibility, and in many communities the child bereft o f parental care was speedily and adequately provided for. Indi viduals and associations, however, could not keep pace with a problem which, if it had involved the normal child only, would have been diffi cult, but which, involving the mentally and physically handicapped child as well, became impossible for them to handle. Local govern mental units were naturally called upon to take up the task, being im pressed by the appeal of the individual helpless child. And to this day there can not be found a director of the poor who will permit a child to lack for bread. A ll too often, however, this is the beginning and the end o f service. It was inevitable that in its beginnings the work o f child-helping should be based upon sentiment, upon religious motive, and upon an abstract philanthropic impulse. It could not therefore be ex pected that a comprehensive program to include all dependent chil dren would be an early development, neither could it be expected that constructive methods calculated to prevent dependency would be evolved. As a result, the problem o f the dependent child became too vast and too intricate to be handled by private philanthropy or local government alone. Pressing with ever-increasing force upon the State, it demanded attention and solution if the burdens o f taxation incident to the care o f the dependent, the defective, the delinquent, and the criminal were not to become overwhelming. The modern movement in the field of public welfare indicates that the time has arritqd when the State must assume not only its share o f the burden o f the dependent child but a position o f leader ship in the development o f comprehensive plans, policies, and methods which shall include not alone custodial care for the de pendent but prevention o f dependency as well—plans which shall insure to all needy children the protection o f the State. 165 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 166 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. State departments concerned with child care enter the field at this time under a definite handicap. They are late in undertak ing a task which to many persons has seemed their obvious but neg lected duty for many years. They find already in the field private and local governmental workers committed to a great variety o f methods and to no method, and accustomed to absolute independ ence of action in their own territory, with no thought as to the result o f their actions upon the plans or actions o f others. The State department also finds itself suspected o f political motives in all its undertakings and its staff on trial. Under such circumstances, is it desirable for the State to under take the supervision o f placing-out agencies ? Is it possible for it to do so without a miniature revolution? I f so, how can this be accomplished ? It is desirable that the State undertake such supervision. Only so can there be an orderly development of an effective program on a state-wide basis which will eliminate overlapping and cover the entire field of child need with a minimum of expense. Only so can minimum standards as to method be arrived at and maintained. HOW SHALL STATE SUPERVISION BE UNDERTAKEN? Staff. There is no field of public service in which it is more necessary that politics should be kept out than in the field o f public welfare, if the activities o f such a department are to demand and hold the respect and secure the cooperation o f the public. Therefore, to avoid or to minimize friction and revolt on the part of child-placing agencies already in the field, the only safety for a State department lies in the appointment o f an absolutely non political staff, the members of which are in truth trained workers capable o f rendering a consultation service in the various problems which are likely to arise in the work o f any agency. Not only is training necessary, but the staff must possess personality, maturity, and experience, if their supervision is to be accepted by the agencies already in the field. There must be no sham about what the State has to offer. The child-placing agencies involved. In looking over the field from the point of vantage of a State department, one finds child placement in the hands o f a great variety o f individuals and agencies—the directors o f the poor, the courts, the private incorporated agency for child placement, the private incorporated institution for child care, the unincorporated agency and institution—these private incorporated and unincorporated groups being further subdivided into religious, fraternal, and philan https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 167 STATE SUPERVISION OP PLACING-OUT AGENCIES. • thropic sections. In addition, there is the large but as yet unknown number o f placements made by physicians, nurses, hospitals, ma ternity homes, and “ interested persons” o f all sorts; and last, but by no means least, in a few instances the State itself serves through one o f its divisions as a board o f children’s guardians, including child placement as one o f its activities. Added to these individuals, agencies, and institutions within the borders o f a State, the State department is beset on every boundary by irresponsible individuals and moire or less responsible agencies and institutions which place dependent children over the State line and all too often disappear without trace, leaving the helpless ohild a charge upon an alien community. How then is a State department to approach the problem o f locat ing the agencies and individuals placing children ; o f standardizing placement method and supervision ; o f eliminating undesirable place ments; and o f insuring to all the dependent children of the State adequate care ? On the part o f a State department there should be frank recog nition at the outset that there is much for it to learn from the agencies and individuals already in the field. A ll knowledge is not suddenly acquired by a State department through its mere creation. Methods in use in a given locality frequently represent the accumulated ex perience o f 50 years and more and are rooted in racial characteris tics which can not be overlooked if work is to be successful. Policies and methods which may appear technically correct in theory may prove absolutely unworkable in a given community. THE KEY TO SUCCESS— PARTNERSHIP AND UNDERSTANDING. The key to a successful undertaking in this field of governmental endeavor is to be found in a spirit o f partnership and mutual de pendence between the public and private agencies ; between State, county, and municipal governments; and between the State depart ment and the county courts. The initial move toward such a part nership must come from the State. The* survey. It follows that the first step to be undertaken by any State depart ment created for purposes o f child care must be in the direction of a careful survey o f the agencies and institutions already existing in the State. The word “ survey ” has been seriously overworked in the last few years and has fallen into disrepute, so that the word “ study,” perhaps, may be substituted. This study should not aim to secure “ impressions,” but rather should assemble and record facts as they exist in relation to institutional and agency equipment, https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 168 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. m finance, staff, trustees, method, records, and—most important of all— results as evidenced by the children in care and passed from care. A t the end of such a study there should be on file at the central State office an accurate record and as complete a “ picture ” as pos sible o f every agency in the State purporting to help children. This provides a point o f departure from which can be measured subse quent progress. It will include children’s orphanages and homes, child-placing agencies, juvenile courts and their probation service, the work of the poor board as it relates to children, maternity homes and hospitals, and juvenile correctional institutions. In Pennsylvania it has been found an advantage to have, in addi tion to the recorded facts, one analysis sheet devoted to incidental “ impressions ” noted in the field as to certain important elements of equipment and method. Are they “ very good,” “ good,” “ fair,” poor,” or “ very poor ” Ì These same factors are also given a numerical rating, based on 1,000 points—a system similar to that used by thè Council on Medical Education of the American Medical Asso ciation in its rating of medical colleges.1 Such a system makes it possible to convey a fairly accurate idea o f the quality of work done, and the substantiating facts are at the same time available. This study o f agencies will require a number of months for its completion and the individual contacts made by the staff members during that period with superintendents, matrons, trustees, judges, probation officers, and directors o f the poor will make for a friendly understanding of the purposes o f the department. Incidentally the personalities o f members o f the staff, if wisely chosen, will “ sell” the department policies to what would otherwise be a skeptical public. Education of trustees, superintendents, and the public. It is not sufficient that the study of the individual institution or agency should end with the mere recording of facts. Out o f it should come a definite statement to the board o f trustees as to points of excellence noted (if any), and specific suggestions as to needed im provements in equipment, method, and staff, and even as to the policy of the trustees themselves. By such a method the leaven o f a new spirit in child care will be given an opportunity to begin its .work long before the State is in a position to set up definite standards. In addition, an exhaustive study o f this kind will bring to light, often in the most unexpected quarters, unusually good bits o f work done in this or that field, the example of which can be made immediately available to all agencies doing similar work. Thus the State childhelping department becomes at once a clearing house for good methods and standards o f work evolved by the private agencies themselves and not dogmatically imposed by the State. 1 See forms of rating sheets, p. 185. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis STATE SUPERVISION OF PLACING-OUT AGENCIES. 169 It should be thoroughly understood throughout the study that information as to defects found, even though they are glaring, is to be considered confidential and made available only to those who have an official right to it. Newspaper publicity is to be studiously avoided, and the board of trustees o f each institution and agency should be given every opportunity to make corrections within a reasonable time. During the period o f the survey a valuable opportunity is pre sented for crystallizing public sentiment in favor o f improved methods, higher standards, and State supervision in the field of child care. The bulletins o f the department can be used to broadcast its ideas and plans; the various clubs and other organizations for men and women provide receptive audiences, before which the staff mem bers may speak; the daily press is always a willing carrier o f news, especially news involving the welfare of children; and the State conventions o f many organizations provide a platform ip be coveted by anyone with a program to promote public welfare. I f the general public is converted to the need o f adequate standards of child care it becomes a relatively simple problem to develop such standards in institutions and agencies, whether public or private, since boards of trustees as well as public officials are amenable to public opinion. During the months of study o f institutions and agencies an oppor tunity is presented for the education of superintendents and trustees in regard to certain fundamentals o f child care—the diet and nutri tion o f children, methods o f record keeping and the reasons for keeping records, the social study o f the child and his environment before the breaking up o f home ties, and so on. Possibly most im portant o f all, is bringing home to the trustees themselves their great opportunity not only to serve the individual child but to serve the State, and making them aware that the work done by their agency or institution is part o f a great whole and not a complete unit in itself. Perhaps one o f the most disillusioning facts which a State official faces is the bitter jealousy discovered to exist between certain private agencies supposed to be working for the welfare o f children and not for their own glory. This educational work can be promoted by means o f the inter county institute, held for a day on invitation of the State, which brings together trustees and superintendents of jnstitutions and agencies within a radius o f 50 to 100 miles. In Pennsylvania it has been found desirable to arrange institutes at strategic points in re lation to transportation facilities, dividing the State into districts and bringing together representatives from agencies in several counties. Admission to these institutes is by certificate issued by the department o f public welfare, and so a premium is set upon atten https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 170 FOSTER-HOME CAKE FOB DEPENDENT CHILDREN. dance; A luncheon, at reasonable cost, gives the needed hour for social intercourse. The program at the first series o f conferences strikes at funda mentals : First, the social study o f the child and his environment in order to conserve home ties, if possible, and to make certain what is the most satisfactory plan for the chiM’s future; second, the duties and opportunities o f trustees, with the spiritual values which attach thereto; third, the vital importance o f adequate records, and the contrast too often found between the financial and the social records o f an agency. The speakers chosen are the best that the State or country can provide and are persons constantly in touch with the practical problems of administration in the child-caring field. These institutes not only serve an educational purpose but are actually the first step toward a program of standardization and unification o f effort. The mere fact o f getting together, seeing the faces o f one’s fellow-workers, and “ speaking one’s mind,” goes a long way toward ironing out misunderstandings and removing prejudices. THE DEVELOPMENT OF “ REASONABLE ” STANDARDS. “ Powers are derived from the consent o f the governed.” The power of the State to erect and enforce standards o f child care rests upon the consent and cooperation o f the agencies and institutions functioning in that field plus an educated general public sentiment. It is, therefore, suitable that the agencies should share in the formu lation o f such standards. More will be accomplished if the State approaches the subject o f standardization with the assumption that the standards shall be “ reasonable,” the minimum being such that the child’s physical, mental, and spiritual welfare will be secured. It is useless to evolve ideal paper standards, desirable as they may be in every particular, if they are impossible o f realization except by a few heavily endowed institutions or agencies. The reaction from such a procedure defeats its purpose, which is to level up to a reasonable height the whole field o f work in child care. One does not class a family home as “ poor ” and seek to disrupt it just because it lacks money and material equipment. It may be rich in character and love and discipline, which no amount o f money could buy. The establishment of minimum standards for child care must be approached with the same sense of discrimination as to values. It is not the things which furnish a home, but the parents, that make the home worth while for the child. It is not the plant and its equipment, but the staff, that makes an institution or agency a constructive force in the life o f a child, in the community, or in the State. How far is it “ reasonable ” that the State should go in the enforce ment o f standards o f child placement and supervision ? https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis STATE SUPERVISION OP PLACING-OUT AGENCIES. 171 To one who contemplates the situation in a State in which there has been no State supervision and standardization of child-caring agencies for a hundred years and more, it is obvious that certain bed rock principles must be established before permanence and progress; in the work .can be assured. In the first place no charter should be issued to any institution or agency organized for the purpose of child care, whether in institu tions, in family homes, or otherwise, without the consent and ap proval of the State department of public welfare, children’s bureau, or similar body, the approval being based upon the “ eight points o f excellence ” enunciated in the laws o f Oregon : ? a. The good character and intentions of the applicant. b. The present and prospective need of the service intended by the proposed organization. c. The employment of capable trained or experienced workers. d. Sufficient financial backing to insure effective work. e. The probability of the permanence of the proposed organization or insti tution. f. That the methods used and the disposition made of the children served will be in their best interests and in the interest of society. g. W ise and legally drawn articles of incorporation, institutional charters, and related by-laws. h. That in the judgment of the said State authority the establishment of such an organization is desirable and for the public welfare. As a result o f the lack of any such check upon the establishment o f institutions and agencies for child care in Pennsylvania, institu tions for the care of the normal dependent child have been pro vided in excess for the State as a whole but so badly distributed that there is congestion o f institutions o f this sort in one or two looalities and absolute dearth o f such provision in other localities, while pro vision for the crippled and especially handicapped child remains most inadequate. In many cases an isolated child-placement agency is seeking to operate on a county basis with inadequate funds and no trained supervision, while over the county line an excellent agency is doing placement work with a competent staff, under trained super vision, which could readily be extended to the advantage of both agencies. Still farther afield will be found another child-placement agency rendering what might be called a “ light cavalry service,” making a foray into a county and departing with the cream of the children for placement—and incidentally with generous contribu tions—but leaving the day-after-day routine o f placement and super vision and the study o f the problem child to another agency, to which the field normally belongs. • Oregon, Laws 1920 (Olson), sec, 9820, 72693°—26---- 12 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 172 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. There are, also, numerous institutions and agencies in the State, started in enthusiasm without counting the cost and now without funds or with funds so meager that the children in care actually suffer want or are without adequate supervision if placed in family homes and lack all those things which go to build up healthy bodies, minds, and spirits. Other institutions for children apparently pro vide an easy living for individuals or even communities. Frequently large sums o f money are tied up to no purpose because the dead hand of the donor has placed so many hampering restric tions about the proposed benefaction. Pennsylvania is most unfortu nate in this particular, and in the interests o f the children and of the State it is inevitable that the State itself should provide a measure o f guidance to those intending to promote child care by bequests. It is reasonable that this should be so. In the second place, all institutions or agencies engaged in the care o f children, whether in institutions or placed out in family homes, should be required to secure an annual license or certificate o f approval from the designated commission or bureau, the issuance o f the certificate to be based upon the “ points o f excellence ” noted above, with especial reference to the standards of work, and suitable penalties should be imposed for continuance o f work without a license or certificate. Until laws governing these two essentials are on the statute books, a State department is helpless to enforce standards. Such laws are not needed for the control o f the high-class institution, but they are essential i f the child is to be safeguarded in the institution or agency which is operated with “ good intentions” but with lack of knowledge and lack o f vision and often lack o f funds. Certification should also apply to public officials doing childplacement work. In the State o f Pennsylvania, over 20,000 de pendent children pass annually through the hands o f the poor boards alone. By no means all these children are subjects for placement; but many hundreds are in such need, and all are potential candidates for such care and should be safeguarded by constructive family case work and by proper methods o f child placement. It is reasonable that such safeguards should be placed about the granting o f charters and the annual granting of a license to operate, and when the public and the agencies themselves are assured that the commission or bureau which has the matter in hand is not § in politics,” there can be no opposition. The license fee should be so small as to impose no financial burden. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis STATE SUPERVISION OP PLACING-OUT AGENCIES. MINIMUM STANDARDS OF ORGANIZATION, METHOD. 173 EQUIPMENT, AND The sixth o f the eight points of excellence provides that the com' mission or bureau must be satisfied “ that the methods used and the disposition made o f the children served will be in their best interests and in the interest of society.” It is at this point that the State, county, municipal, and private agencies should come together with a view to establishing those “ reasonable minimum standards ” upon which State supervision is to be based, the conference being called by the State authorities. The precise terms o f requirements in any State must be worked out by those concerned. Granting a mutual confidence in the good intentions and concurrent aims o f the State and private agencies, there should be no difficulty in arriving at minimum standards. In the case o f the placing-out agency, the points on which agree ment needs to be reached include: A. Organization: Trustees, superintendent, B. Temporary care o f children : 1. Receiving home. 2. Temporary boarding home. C. Study of child : 1. Social study. 2. Physical examination. 3. Mental examination. D. Foster home: 1. Standards. 2. Method of selection. E. Supervision o f placed-out children as to 1. In free homes. 2. In boarding homes. 3. Other. F. Records : 1. O f children. 2. O f homes. 3. Financial. G. Reports: X. Annual. 2. State. H. Adoption. staff. health, education, morals. A. Organization.—It would seem reasonable to reach an agree ment, and to require as a minimum, that the board of trustees o f a child-caring agency should be composed o f not less than five mem bers; that it should be responsible for selecting the superintendent, determining policies, and raising funds for the maintenance o f the work; and that it should provide such committee support as the superintendent may need to enable him (or her) to carry out the policies agreed upon. I t is the writer’s personal belief that there https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 174 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. is a distinct advantage, especially for a child-caring agency, in having a board composed of both men and women. The “ father ” and “ mother ” points o f view are both needed. An auxiliary o f women with no vote on policy is not sufficient. It is premature, however, to include such a provision at first in minimum requirements for agencies already established. The superintendent (or matron) should be qualified by training or experience for the duties of the office and should sit upon the board ex officio but should have no vote. He should not be responsible for raising funds to pay his own salary. He should have authority to engage the staff and employees, subject to the approval of the board, to discharge any member of the staff and any employee, and to initiate action for carrying out the purposes of the board. The staff should be composed of experienced or trained workers; they should not devote any part of their time to raising funds out o f which their salaries are to be paid. B. Temporary care of children.—I f temporary care is provided in a receiving home, the home should fulfill the requirements laid down for any institution for children as to general sanitation, general hygiene, housekeeping, upkeep, etc., and should conform to the re quirements of the building code o f the State or municipality. I f temporary care is provided in a boarding home, this should conform to the standards for foster homes. G. The study of the child.—Granting that in an emergency a child may o f necessity be received for temporary care, it seems reasonable to require that within one week a social investigation shall be initiated with a view to determining the proper disposition to be made of the case in the best interests o f the child, and that this study should include, in addition to the father’s and mother’s history and cir cumstances, those o f the grandparents, the uncles and aunts on both sides o f the family, and the child’s own brothers and sisters. It should be the primary aim o f the study to conserve family ties— to do family case work, in other words. Such a study may be made by a cooperating agency; by a representative whose services are shared jointly by several agencies, if the intake o f each is small ; or by a properly qualified volunteer worker, under competent direction. A complete physical examination should be made within the first week after the child is accepted by the agency, and a mental examina tion within two months, if the child shows mental retardation or behavioristic problems. Facilities are probably as yet too inadequate throughout most States to make it possible to suggest as a minimum standard the mental examination of every child committed to care. Pennsylvania is making plans, through its bureau o f mental health in the department o f public welfare, to establish mental-health clinics within the reach o f all county agencies, so that in this State https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis STATE SUPERVISION OP PLACING-OUT AGENCIES. 175 such a requirement will not be unreasonable at some time in the not distant future. I f the insane and feeble-minded are legitimate charges upon the State government, then in self-defense a State must establish a mental-health program which will include mental-health clihics, located within reasonable distance of all the people o f the State, for purposes of diagnosis and advisory treatment. Until a State makes such provision it is not reasonable to require routine mental examinations o f all children coming under care. D. The foster home.—It is reasonable to require that foster homes used by the agency, whether boarding or free, should conform to cer tain minimum standards, and that their conformity should be ascer tained through personal inspection by the agency staff and through the statement of satisfactory references. These minimum require ments should include suitable location (residential or farming rather than industrial or commercial); restriction o f the number o f children to be accommodated; conformity to the building and sanitary regula tions o f the State or municipality ; other visible means of support besides the board o f children, and exclusive of adult male boarders, who should not be permitted to form part o f the household; diet suit able to the growing child, inclusive o f at least one pint of milk daily for each; separate beds and sufficient air space (45 square feet per bed) with cross ventilation; proper medical supervision; education in conformity with State requirements; religious education in con formity with the faith o f the parent, when possible; proper clothing; individual toilet articles, and training in their daily use; orderly housekeeping in the home; and proper health supervision (the agency holding itself responsible for cooperation with the foster home in this matter). Unless the home demonstrates those characteristics which will tend to develop, by daily example, a spirit of kindliness, helpfulness, order liness, and thrift in the child it can not be considered satisfactory. It is worth repeating that no home should be accepted until it has been visited by a staff representative and found to be satisfactory. E. Standards of supervision.—Having agreed upon the minimum standards to be required by the State o f all child-placing agencies, relating to administration, temporary care, study o f the child, and foster-home standards and selection, we come to the standards which should obtain in the supervision o f the placed-out child. Upon this phase o f the work depends the vindication of the theory that the child placed in a family home has the best chance for normal development. Shall the free home receive the same type o f supervision as the boarding home? How often shall the homes be visited? What shall be the nature o f the visit? These are questions which need consider ation and to which a dogmatic answer can not be given. Granting, https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 176 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. however, that the State’s only interest is the safety and well-being o f the child and that the agency involved is equally concerned for the child, and also because o f a desire to protect its own reputation, it would seem reasonable to require at least one visit each month for the first three months, followed by quarterly visits until the agent is absolutely certain that the home and the child are adjusted to each other and that the child’s personality and individuality are assured a real opportunity for development. The free home should be visited with the same frequency as the boarding home until the agent is assured o f the adjustment o f the child to the family, after which the interval between visits may be materially lengthened. This is not the place to discuss the technique o f such visiting, f t should be broad enough in its scope to include, not only the home and the child, but the teacher, the pastor, and others in the com munity who can throw side lights upon the situation. Needless to say, the utmost tact is necessary. The supervisory visits should continue until the child is adopted, becomes o f age, or is returned to his parents or guardians. What shall be the standard as to the number o f children in the care of the individual agent? There can be no arbitrary standard, so far as the State is concerned. Urban and rural conditions vary widely. Transportation difficulties loom as a very large obstruction to frequent visitation in the country, and there must be a great degree o f elasticity in this particular in a State program. Pennsyl vania has had a very happy experience in the supervision o f its families under the care o f the Mothers’ Assistance Fund, Pennsyl vania State Department o f Welfare, through unpaid county boards o f trustees under skilled supervision. The scope o f the work o f a children’s agent in the rural districts could be materially widened by such an arrangement with an increase in the number of children cared for and in the frequency o f visitation. For a city agent it might be reasonable to set as a standard the figures adopted by Cali fornia—not more than 50 children under 3 years of age and not more than 100 above that age. A record of the findings at each visit should be filed at the office of the agency, and, as in the case of the State survey o f institutions and agencies, these records should be of facts, not of the impressions o f the agent. O f special importance to the visitor are the findings which relate to the child himself. Is he happy, is he well, is he properly housed, clothed, and fed, and is he showing the best char acter development? Answers to these questions are the ultimate test o f the agency’s work, and it is with this that the State is concerned. F. Records.—As yet not all people appreciate the importance of records. Many deem it sufficient that the work is done and the child https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis STATE SUPERVISION OP PLACING-OUT AGENCIES. 1 77 cared for; or that the money is spent and receipted bills show it. The State and the public at large have a right to accurate knowledge as to what has been done, how it has been done, and what it has cost. The child has a right to all the information which it is pos sible to gather in regard to his past and also the right to a record of his current development along all line«. It is part o f the obligation which rests upon the State to bring to the realization of the trustees and superintendents their duty in this matter. It would seem reasonable to require that for every child there should be filed at the agency or institution a special history, nor less complete than that called for in the blank illustrated in schedule 2 (p. 186), which Pennsylvania supplies without charge to those who will use it. To this should be added the preliminary physical ex amination blank (schedule 3, p. 189), and a current record o f develop ment inclusive o f any illness, accident, and operation should be kept up. I f a mental examination has been possible its results should be included in the record. In these days o f the ubiquitous kodak, it is reasonable to require that a photograph be taken o f each child when he first comes into care and every two years thereafter until dis charge, these photographs to be part o f the history record. The records o f homes, whether approved or disapproved, should be kept on file available for ready reference, with reasons for and against acceptance. Financial records should be uniform for all agencies, or at least capable o f analysis after a uniform method in order to show com parable costs o f operation and actual income. The public and the State have a right to this information in order to be guided prop erly in their benefactions. Individuals and organizations purport ing to render a public service are proper subjects for public scrutiny, and any agency or individual doing an honest job welcomes it. Financial and social records kept with a reasonable degree of uniformity provide much material needed for research purposes and a program o f economy, efficiency, and prevention of dependency may prove to be a result o f such studies. In the present state of record keeping in Pennsylvania (and, no doubt, in other States), it is im possible to arrive at accurate and comparable per capita costs, and except in a very limited group o f agencies no social studies could be undertaken. G. Reports.—It is reasonable to require that each agency shall pub lish annually a concise report covering finances and the intake and outgo o f children, together with data on supervisory visits. Such a report may be amplified as the finances and the publicity policy o f the organization may dictate, but an extensive report should not be required. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 178 FOSTER-HOME CABE FOR DEPENDENT CHILDREN. The report to the State is discussed under the general heading o f State supervision. H. Adoption.—No agency should give consent for the adoption o f any o f its wards until the child has been satisfactorily adjusted and under supervision in one home for at least six months. Such a provision places a check upon hasty and possibly unwise adoption proceedings and is a “ reasonable ” requirement for the sake o f both the child and the family. The law should provide that upon the filing of a petition for adoption, by consent o f an agency, o f parents, or o f a guardian, the court shall notify the State bureau o f children (or similar agency), whose duty it shall be to investigate the conditions and submit a re port to the court, with recommendations, within a specified time. The requirement o f six months o f residence in the home should be waived by the court only when good cause is shown. HOW SHALL THE STATE APPLY THESE STANDARDS? Private and semipublic agencies. The minimum reasonable standards having been agreed upon, the State should proceed to issue the annual license, or certificate o f approval, to those agencies which already conform to those stand ards, as evidenced by the study made by the State agents. Such institutions as fail to conform to the minimum requirements should be notified as to their defects and a definite recommendation should be made as to possible steps to be taken to reach the required stand ard, the services o f a member of the staff o f the State bureau being placed at the disposal o f the agency to assist it. I f at the expiration o f the probationary period sufficient progress has not been made, the right to care for children should be withdrawn, or a penalty should be imposed by law for continuing to function without a license or certificate. Annually thereafter, agencies should be visited by the State bureau representatives; records should be checked up, and a certain number o f home placements investigated, as a method o f sampling the agency’s work. The agency should render to the State. bureau, on blanks fur nished by the State, a monthly report o f all placements and replace ments o f children, and a live index o f all children placed out in the State should be kept at the central office. Annually, on forms supplied by the State, each agency should fender financial and social reports o f its activities. Such blank forms should be as simple as possible, but should call for the neces sary data from which to compile a summary o f the activities of the entire State and on which to base social studies looking to the https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis STATE SUPERVISION OP PLACING-OUT AGENCIES. 179 prevention o f dependency, etc. Reports should be required whether or not the agency receives financial assistance from the State. Annual regional institutes on various phases of child care will be o f service in the development o f standards and o f methods o f work and should be continued under the auspices o f the State. Educa tional and general service bulletins should be issued from time to time. It is desirable that the visits o f the State representatives be not limited to “ inspections.” I f the representatives can come in con tact with the officers and staff o f an agency in the spirit o f friendly consultants, rapid progress will be made in the development of in creasingly high standards o f service. The central State office should also serve as a clearing house for information as between agencies and when necessary as the medium for the transfer o f a child, unplaeeable in one region, to a more promising territory. Licensing of boarding homes. It is perhaps necessary to enter further into the question of the practicability o f State license for the individual boarding home. For purposes o f discussion let us define the “ individual boarding home ” as one in which not more than five children are received for p a y; and a “ semi-institutional boarding home ” as one receiving more than five children for pay. It would seem undesirable for a State which has licensed agencies to place children in family homes, and for one which has established standards regarding the type of home and method o f selection, to interfere through the licensing o f the individual boarding home. The agency itself should stand or fall on its selection o f these homes. On the other hand, the semi-institutional boarding home is in need of very definite supervision by the State, as are all institutions caring for children, and should be subject to license by the State, as is any child-caring institution. I f desired, the sanitary provisions o f the home might be subject to the inspection o f the local health authori ties; but the social, economic, and moral conditions o f the home and the type o f training it is equipped to give should be subject to the scrutiny o f the State, and actual license (or certificate) to function should be granted or withheld by the State, the licensee being subject to penalty i f the conditions o f the license are disregarded. Public agencies. The vast majority o f dependent children pass through the hands o f the poor boards (or the equivalent officers). In Pennsylvania in one year more than 20,000 are subjects for “ outdoor relief,” and many hundreds pass in and out o f the doors o f the poorhouse. It is hot expedient that the State should take out o f the hands o f the local https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 180 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. authorities their obvious moral and financial responsibilities; but in justice to the child it is necessary that the State should be assured that the type o f work done is up to standard and that reconstruction of families and conservation o f the child—in an institution or in a family home—should be the policy. In these days when “ centralization of authority ” is the battle cry which is raised in almost every State against the effort to bring standards in any field up to a reasonable level, it is a very delicate matter for the State to approach the minor governmental units on such a subject. But the appeal o f the dependent child is strong. Public opinion is very easily aroused for his protection, and the economies which can be demonstrated, if the problem o f child de pendency is handled correctly, make a further strong appeal to the taxpayer. \ A concrete example o f economy in one county o f Pennsylvania may be cited. In a period o f four months a trained children’s worker re duced from 50 to 20 the population o f a semi-institutional boarding home which had been utilized by the directors of the poor as a home for dependent children. This meant an annual saving to the direc tors in board alone o f over $3,000, plus about $700 in school tuition, not to mention the saving in clothing, doctors’ bills, and overhead ex penses. This was accomplished with an expenditure o f $900 (plus transportation), this being one-half the salary o f the worker selected and supervised by the Children’s A id Society o f Pennsylvania. "It is therefore reasonable that the State should require public officials in the minor governmental units to make such provision for administering their work for family or child welfare that it shall conform to the minimum standards adopted by the State. Finan cially, this is easily possible; the poor boards are empowered to employ the number o f persons necessary to carry on their work successfully. It is merely a question o f convincing them as to the type o f individual required. Shall the worker be trained or not, and shall she (or he), as a prerequisite, be a native o f the county? The major consideration should be given to the training. Nothing less than training by ex perience under competent supervision should be accepted, and if a suitable person can be found who is also a “ native son,” so much the better, since this disarms local criticism. In a sparsely settled district with few problems o f dependency, a full-time worker may not be needed. Combination o f districts may then be possible under one worker, or the public and the private agency may cooperate, sharing expenses and work. When such a combination is effected, i f it also includes supervision of the local work by a staff supervisor o f the private agency there are numerous https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis STATE SUPERVISION" OP PLACING-OUT AGENCIES. 181 and great advantages, not the least o f which is the wider field for help in the placement of children and in solving their problems j which can be done through the central office o f the private agency. ■ The stimulus which such supervision brings to »the local worker insures a high standard o f service. When such supervisory service through private accredited agencies ■ is lacking the conclusion is inevitable that is should be supplied by | the State. We have accepted banking regulations and supervision,, regulations in the insurance field, weights and measures, drug control,! contagious-disease control, and quarantine—sometimes under protest, always to the advantage o f all the people. Are the lives and hap piness and future usefulness o f dependent children to be less care- j fully watched over? I f the poor board considers neither o f the proposed plans favorably ! (that is, employing its own trained worker or sharing in the employ ment o f such a worker), there is still the alternative o f delegating all its work for children to an accredited agency. It would seem reasonable that the State should make the adoption o f one o f these three plans, or an equivalent, a condition o f the grant ing o f a license to engage in the work o f child care. The same argument may be presented in connection with the juvenile court and its probation officer doing child placement. Un less the probation officer is qualified to undertake this delicate task, the court should delegate it to an accredited agency or should employ on full or part time the type o f officer that the State can license. There is no reason why a juvenile probation officer should not be employed in cooperation with other agencies. Agencies outside the State. Perhaps one o f the most baffling problems confronting a State bureau is that involved in the placement o f children over the State line by irresponsible organizations and individuals. The attempt to control these placements, up to this time, has been for the most part ineffectual. It would appear that a solution may lie in this suggested pro cedure : 1. No individual or agency should be permitted to bring or send any dependent child into the State for the purpose o f placement in an institution or family home without first obtaining a license so to do from the public-welfare department, or similar body, o f the State in . which it is desired to effect the placement. 2. This license should not be granted unless the application is accompanied by legal evidence that the applicant is licensed (or certified) to undertake child placement in the State from which the child is to be brought. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 182 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. 3. A blanket bond should be furnished the State into which the child is to be brought by the agency or individual, which would be forfeited in case o f failure to remove a child who has become depend ent or delinquent within a specified time limit. 4. A penalty should be imposed upon any native of the State receiving a dependent child from an unlicensed source either within or without the State. 5. State funds should be made available for the return to his legal residence o f any child who may have become a public charge or delinquent within a specified number o f years after placement from outside the State. These provisions should not be so construed as to make it im possible for relatives of the first and second degree to make suitable provision for children of their own blood. I f the checks upon child placement and adoption as previously indicated (namely, license to undertake the activity; penalty for engaging in it without license; penalty for receiving a child from unlicensed source) seem to. leave a loophole for irresponsible place ments, an additional legal precaution might be added, as in the laws of Oregon, which specifically forbids “ private individuals, including midwives, physicians, nurses, hospital officials, and all officers o f un authorized institutions ” to engage in child-placing work and exacts a penalty for their so doing. SUMMARY. 1. It is desirable that there should be State supervision o f placingout agencies (agencies to be interpreted as individuals and organiza tions) . 2. Such supervision should include both public and private agencies. 3. Supervision should be based upon minimum standards o f ex cellence agreed upon in conference between the State bureau and representatives o f the private agencies and the minor governmental units engaged in child care. 4. The State should utilize every available educational channel to create on the part of all the agencies concerned a desire for and acquiescence in the highest minimum standards obtainable. 5. The power to license (or certificate) all agencies and individuals engaged in child placing should be vested in the State, and penalties should be imposed by law upon those engaging in placement without license and upon those receiving a child from unlicensed sources. 6. No charters permitting agencies or institutions to engage in child care should be granted without the approval o f the State https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis STATE SUPERVISION OP PLACING-OUT AGENCIES. 183 bureau, that approval being based upon certain enumerated points o f excellence. 7. A ll petitions for adoption should be referred by the court to the State bureau for investigation and report with recommendations before final action is taken. 8. State departments concerned with public welfare should be kept absolutely free from the taint o f political control, and the staff o f the bureau of children should be composed o f individuals with personality, training, experience, and maturity, capable o f render ing constructive service to any agency in need and in an emergency to any child in distress. Only on such a foundation can a successful structure o f State supervision of child-caring agencies be erected. FORMS USED BY THE PENNSYLVANIA DEPARTMENT OF WELFARE. The child’s record and physical-record schedules used by the Pennsylvania Department o f Welfare, which are printed here, are self-explanatory, but some explanation of the system o f numeri cal rating used in the agency schedule (Schedule 1) may be de sirable. It will be noted that the numerical value placed upon the trustees and superintendent is small, though the success or failure o f the institution or agency is dependent upon the character and ability o f these individuals. It is desired to minimize, by not weight ing this factor, the personal reaction o f the State representative to the individual superintendent or the trustees. A very favorable personal impression might be made by an individual who was so poor an administrator that the work o f the agency would be much below par. Moreover the superintendent and trustees are rated not only on their own numerical count but over and over again on the various factors which go to make up the technique o f administration. The rating “ very g ood ” (V. G.) on the first schedule would count as 25 on the numerical basis for factors not weighted (trustees, supervision o f staff, adoption proceedings, e tc.); “ good ” ( G ) , as 20; “ fa ir ” ( F .) , as 15; “ poor ” (P .), as 10; and “ very poor ” (Y. P .), as 5. For “ records ” and other items for which the total number of points obtainable is 50, any o f the above ratings would be multiplied by 2; for “ selection o f homes ” and “ supervision,” by 5; for “ place ment methods,” by 4. Thus a rating o f “ fair ” in selection o f homes would be 75 (15 multiplied by 5 ); a rating o f “ poor ” in discrimina tion in intake would be 30 (10 multiplied by 3). https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 184 FOSTER-HOME GARE FOR DEPENDENT CHILDREN, S C H E D U L E 1.— A G E N C Y S C H E D U L E . I m p r e s s io n s op the V . G. Administration : Trustees______ ______ ____ Superintendent and staff__ Finances and bookkeeping. _ Records__________________ Agency technique: Discrimination in intake___ Supervision of staff ______ Distribution of work_____ Investigation of cases— Family history________ Personal— Social______ Physical__ Mental ____ Temporary care in institu tion_____________________ Temporary care in detention hom e_______________ ___ Supervision in own home__ Other provisions. ________ Foster-home care: Selection of homes________ Placement methods_______ Supervision_______________ Other matters_____________ Adoption proceedings ____ Working homes— indenture. Community service: Relations with other agen cies_____________________ Influence in community___ https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A gency G. as F. a W hole. P .t V . P. Remarks. 185 STATE SUPERVISION OP PLACING-OUT AGENCIES. SC H ED U LE 1.— A G E N C Y SC H ED U LE— Continued. N u m e r ic a l E v a l u a t io n op A gency, Sco red N A M E O F A G E N C Y ..................................... on Scale op 1, 000. DATE. Administration__________ ____________;__________ ____ Points 125 Trustees_____________________________________________ 25 Superintendent and staff________ 25 Finances and bookkeeping__ _________________________ Records___________ 25 50 Agency technique................................ ............_........... . . . Points, 400 Discrimination in intake_________________________ 75 Supervision of staff_______________________ Distribution of w ork..__ _____________;______________ Investigation of cases (175)—- 25 Family history.____________ , ________ ___________ 50 25 Personal— Social. ____________________ 25 Physical_____ _________________________ 50 Mental_______ ___ _________________ ___ 50 Temporary care in institution_____________________ 25 25 Temporary care in detention home____________________ Supervision in own home.. . . ________________________ 25 Other provisions_________________ ._____________j______ 25 Foster-home care.............. ..............................................Points, 425 Selection of homes________ ___________________________ 125 Placement methods__________________________________ 100 Supervision____ ___________ I 25 Other matters_________________________________________ 25 25 Adoption proceedings._______________________ W orking homes— indenture _ _ ;______ _______ _________ 25 Community service................... ..........................................Points, Relation to other agencies. __________________ Influence in community______________________ Grade. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 50 25 25 186 FOSTER-HOME CARE FOR DEPENDENT CHILDREN, S C H E D U L E 2.— C H IL D 'S R E C O R D . (Use separate sheet for each child.) Name of child___________________________ ¡---_____________ Sex_ Date admitted. ___------------------------------------Color______ ______ Date of birth___________ ______ ____________ Place of birth.----City______ ______________ _ County _ _ _ — ----- — - — State. _. Religion __________________________ Legitimate _ _ _ _ _ .................................. Surrendered _____ ___________ Address at time of admission------- Legal settlement______________ _— :_____ ofiBcer ÎCourt Director of poor! IRelative School district.___ (Address.) (Name.) (Title.) REASON FOR COMMITMENT. [Put X before number in proper column.] Because neglected. Because dependent. 1. Both dead. 1. Lacking physical and medical care. parents 2. Mother dead. — 3. Father dead. 2. Morally neglected. 4. Parents living; unable to sup port. 3. Ill treated. Because incorrigible. 1. Declared by court not to he amena ble to control of parents or guard ians. Father of child. Ful Country of birth (if in U. S. . Las . . Rei (1) Time in U. S. A. (2) Tim Cit: Occ Weekly wage or other incom< Em Ph psical condition (disease o Me , If dead—date and cause of de https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 1. Convicted in court for violation of a State law or a local ordinance. 4. I l l e g a l l y em p l o y e d . Ex hibited. 5. Abandoned. Date and place of mania Because delinquent. (1)........... (2).......... Mother of child. 1)........... (2).......... STATE SUPERVISION OF PLACING-OUT AGENCIES, 187 SCH EDULE 2 — C H IL D ’ S RECORD— Continued. OTHER RELATIVES, INCLUDING BROTHERS, SISTERS, STEPFATHER, STEPMOTHER, ETC. Name. Address. Relation ship to child. Age. Occupation or school grade. • Physical or mental defect. CHILD’S RECORD AT FIRST ADMISSION TO INSTITUTION. Family conditions which necessitate commitment of child? W hat kind of help is asked? W hat kind of home and family does child come from? I f mother is unmarried what court action against father has been taken? Investigation of home conditions and recommendation for admission was made by : How was investigation made, by personal visits, letters, or telephone? W hat other institutions or agencies have been interested in child or its fam ily? Give dates of previous care by other institutions. Physical health and habits of .child? Education, mental ability, and school grade of child? Personality, characteristics, interests, and behavior of child? https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 188 FOSTER-HOME CARE FOB DEFENDENT CHILDREN SCH EDULE 2.— C H ILD 'S R E C O R D — Continued. RECORD OF ADMISSIONS. AND DISCHARGES, Second. First. Third. PLACEMENTS AND REPLACEMENTS IN FREE, BOARDING, WORKING, OR INDENTURE HOMES OR OTHER INSTITUTIONS.Placed with. Address. Date placed. Rate of Date removed. board. Reason removed. RECORD OF SUPERVISION. Date. Give facts about child’s mental and physical development or changes in circumstance. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis Visitor. STATE SUPERVISION" OF PLACING-OUT AGENCIES. 189 SC H ED U LE S.— P H Y S IC A L RECORD. Date of examination Name of child. Date birth. Sex. Family history (cause of death). Nationality. Date Date dis admitted. charged * * * * or meotal \ berculosis, syphilis, alcoholism / Father Mather Children CHILD'S PHYSICAL HISTORY". Birth: Term........ mo. Delivery: Spontaneous. Operative. Condition: Normal. Abnormal. Feeding:: Breast until........ mo. Bottle until..........mo. ¿Cross out words not applying.) PREVIOUS ILLNESS. (Check (x) those applying and state accident or operation.) Accidents Erysipelas Operation Scarlet fever Inf. paralysis Tonsillitis Chicken pox Malaria Pneumonia Chorea Mumps Rheumatism Typhoid Convulsions Measles Rickets Whooping cough Diphtheria Meningitis Smallpox Wassermanu...................-- Vaccinations and tests Schick.......... — Vac. smallpox................ ............. I Tuberculosis ----!----“— Immunization typhoid Date. Von Pirquet. . . . Other PHYSICAL EXAMINATION.. Scalp Neck Eyes, right Left Ears, right. Urination Lungs Nose Heart Mouth Murmurs Lips Teeth. Bladder Thyroid Chest left No. Upper Lower Cavities. “ Irregular “ “ Hutchinson’s Tongue Inguinal glands Skin Orthopedic condition Shoulders Blood pressure Spine Abdomen Liver Hips Extremities Anatomical stigmata Spleen Right tonsil Kidneys Left tonsil Stomach Speech Date................ Genitals Rate Gall bladder Throat Genito urinary Cervical glands Nervous disorders Intestines Height............... Weight................ (10% below average or 7% above needs attention) In making physical examination child should be stripped to the waist, Height should be measured with shoes off. Weight may be taken with Child in regular indoor clothing. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME CARE FOR DEFENDENT CHILDREN 190 SC H ED U LE R.— P H Y S IC A L R EC O RD — Continued. CONTINUOUS HEIGHT AND WEIGHT RECORD. Date. Age. Height. Per cent or Weight. above below average. 1 - Date. Age. Height. Per cent or Weight. above below average. • HEIGHT AND WEIGHT TABLE FOR BOYS. 5 yrs. 6 yrs. 7 yrs. 35 39........ 40........ ' 37 4 1 ...... 39 41 42........ 43 43........ 44........ 47 46........ 48 47........ 48........ 4 9 ...... 50...... . 51.. ... 52...... 53........ 54 .. 36 38 40 42 44 46 47 49 51 53 55 37 39 41 43 45 46 48 50 52 54 58 58 60 62 Height, inches. 8 yrs. 10 yrs. 44 46 47. 48 49 51 50. 53 52 55 55 57 58 60 59 61 62 64 63 66 • 67 70 69 73 77 56 57 58 59 60 61 62 6 3 ....... 64 65 67 68 69 70 71 72 73 74 75 76 9 yrs. 54 56 58 60 63 65 68 71 74 78 81 84 87 91 11 yrs. 57 59 61 64 67 69 72 75 79 82 85 88 92 95 100 105 12 yrs. 62 65 68 70 •73 76 80 83 86 89 93 97 102 107 113 13 yrs. 71 74 77 81 84 87 90 94 99 104 109 115 120 125 130 134 138 14 yrs. 78 82 85 88 92 97 102 106 111 117 122 126 131 135 139 142 147 152 157 162 J 15 yrs. 86 90 94 99 104 109 114 118 123 127 132 136 140 144 149 154 159 164 169 174 17 yrs. 18 yrs. 91 96 97 101 102 106 108 111 113 115 117 119 Ü120 124 125 128 129 133 134 137 138 141 142 145 146 150 151 155 156 160 161 165 166 170 171 175 176 110 116 119 122 126 130 135 139 143 147 152 157 162 167 172 177 16 yrs. Prepared by Dr. Thomas D. Wood. ABOUT WHAT A BOY SHOULD GAIN EACH MONTH. Age. 5 to 8.......................................... 6 oz. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis Age. 12 to 16..................... ............ 16 oz. 8 oz. STATE SUPERVISION OF PLACING-OUT AGENCIES; 191 SCH ED U LE 3.— P H Y S IC A L RECORD— Continued. HEIGHT AND WEIGHT TABLE FOR GIRLS. Height, inches. 5 yrs. yrs. 7 yrs. 8 yrs. 9 yrs. 10 yrs. 39. 40. 41. 42. 43. 44. 45. 46. 47. 48. 49. 50. 51. 52. 53. 54. 55. 56. 57. 58. 59. 60. 61.. 62. 63.. 64.. 65.. 11 yrs. 56 58 60 63 66 68 71 74 7882 86 90 94 99 104 109 66 . . 67.. 68.. 69.. 70.. 71.. 72.. yrs. 13 yrs. 61 64 67 69 72 75 79 83 87 91 95 70 73 76 80 84 12 101 106 III 115 117 119 88 93 97 102 107 112 117 119 121 124 126 129 15 yrs. 14 yrs. 77 81 85 89 94 99 104 109 113 118 86 90 95 100 106 111 115 119 122 120 124 127 130 133 136 140 145 122 126 128 131 134 138 16 yrs. 91 96 102 108 113 117 120 123 126 128 132 135 138 142 147 17 yrs. 18 yrs. 98 104 109 114 118 111 124 127 129 133 136 139 143 148 125 128 130 134 137 140 144 149 121 103 115 119 122 Prepared by Dr. Thomas D. Wood. ABOUT WHAT A GIRL SHOULD GAIN EACH MONTH. Age. 5 to 8......................................... 6 oz. 8 to 11..................... ................... 8 oz. 11 to 14......................................... 12 oz. Age. 14 to 16.......................................... 8 oz. 16 to 18.................................... 4 oz. Weights and measures should be taken without shoes and in only the usual indoor clothes. Child Health Organization of America. Courtesy of the Child Health Organization of America. Copyright 1918, by Child Health Organization N o t e .— For children under five years see Statures and Weights of Children under Six Years of Age bv Robert Morse Woodbury, Federal Children’s Bureau, Publication No. 87. b y Date. Subsequent examination. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis Treatment. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis PSYCHOCLINICAL GUIDANCE IN CHILD ADOPTION. A rnold G esell . D. D irec tor o f Y a le PsycTwelm ic, Y ale U n iversity, N e w H a ven , Conn. P A R T L — T H E A D O P T IO N O F IN F A N T S . The general problem. The problem of child adoption continues to assert its great social importance. Approximately a quarter o f a million children de prived o f parental care are at this moment under guardianship of public and private child-caring agencies in the United States. There is a constant turnover which greatly augments these figures. Pennsylvania, through some 200 child-caring agencies, annually cares for 25,000 children; Massachusetts, with about 75 agencies, cares for some 15,000 children; New York, with about 200 agencies, cares for 40,000 children. Each year, for the country as a whole probably over 50,000 infants are bom out o f wedlock. Although large numbers of these children are not available for adoption, because o f the existence o f family ties which should be preserved or for other reasons, yet in planning for the future o f many of them the possibility of adoption is an important factor to be considered. Safeguarding adoptions in every possible way is seen to be an urgent social need. Moreover, large numbers of men and women who have been denied the privilege o f parenthood give serious thought to the possibility o f adoption but are deterred by a vague fear o f risks involved. To such would-be foster parents careful clinical investigation and guid ance will serve as a stimulus and a protection. Policies o f pains taking clinical control will therefore increase the number o f avail able foster homes and multiply the instances o f fortunate child adoption with its incalculable benefits and rewards. In the interests o f parents and child alike, purely impulsive adop tion should be discouraged and the whole procedure should be sur rounded with clinical and supervisory safeguards. In all cases o f adoption there should be an exhaustive inquiry into the health con dition and developmental potentialities o f the child. A thorough physical examination is essential, but no less desirable is a psycho logical estimate which will define in a general way capacity and developmental outlook. A probationary period o f a full year, with follow-up examinations, may be utilized to correct this estimate, as well as to test the compatibility o f the child and his foster parents. 193 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 194 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. It will still be necessary, however, even .when clinical procedures have become more accurate, to utilize every possible additional safe guard, including sometimes the temporary boarding home where the child can be observed, trained, and prepared for placement. But methods o f clinical control may be made to reenforce all other pre cautionary and investigatory procedures. Even the probation period loses some o f its value if it is not preceded and followed by clinical examinations. Such examinations furnish deterrent, con firmatory, or directing information. If, therefore, clinical control is judiciously exercised in relation to other methods of control, it must inevitably increase the yield of happy adoptions. Infancy is in many respects an ideal period for adoption. There is, however, no basis for the belief that native mental inferiority in a child can be overcome by early adoption, The reverse is true, even in superior homes. The present report will emphasize partic ularly the importance o f psychoclinical safeguards in the adoption o f infants. The Yale Psychoclinic makes mental examinations o f dependent children referred to it by the State bureau of child welfare and by private child-placing agencies. Its official mental-examination re port form dealing with dependent children calls for answers to the following questions: (a) What is the child’s intelligence ? Superior ? Normal ? Dull normal ? Inferior ? F eeble-minded ? (b) Educational outlook: Could the child probably complete grammar school? High school? College? Or should he (she) have special class work? Vocational training? (c) Does the child show any evidence o f epilepsy, or is there any history of convulsions? ( d) Would the child be likely to do wTell if placed in a family home ? I f so, would you recommend an ordinary home or a superior home ? These questions are exacting enough, even in relation to county home commitment or temporary family-home placement. The ques tions become very searching when made prior to adoption and doubly difficult when the dependent child is a mere infant. To what extent can these questions be answered? Fortunately, it is not necessary to answer them categorically and altogether with out qualification and interpretation. There are, of course, no diag nostic methods which permit precise prediction. The intelligence quotient must be used with great caution because it may easily lead one astray. The difficulties of prediction become greater, too, the younger the child and the more detailed the specifications o f the adoptive parents. These difficulties can not and should not be https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis PSYGHOCLINICAL GUIDANCE IN CHILD ADOPTION. 195 evaded, but a carefully considered clinical judgment o f mental sta tus, taking into account as many factors as possible, will make the work of child placement more discriminating and prevent gross error. How foster children turn out. Significant in this connection are the results o f an inquiry made by the New York State Charities Aid Association into the after careers o f 910 children placed in foster homes, who are now 18 to 40 years o f age.1 Reference will be made particularly to those findings which relate to the problem o f child adoption. The findings of this study indicate that “ the adopted subjects prove to be, for the most part, a capable group w h o manage their affairs sensibly and honorably” . O f the 910 children studied, 269 were legally adopted. O f the adopted group, 145 were found lings and 45 more came from families about whom very little was known or recorded. The fact that 222 (82.5 per cent) of the adopted children were taken by their adoptive parents when less than 5 years o f age doubtless conferred upon these children an environ mental advantage. O f 235 (88 per cent) o f the total adopted group whose present situation and ability were ascertained, 207 were found Mcapable; ” that is, they are “ proving capable of looking after them selves, o f supporting themselves and their families if they are mar ried, and o f maintaining decent standards o f living and morality.” The remaining 28 subjects (12 per cent of the group) were classified as incapable, and of these 14 were rated as harmless. This means that in this particular series of adoptions made in New York from 1898 to 1922, every ninth case was disappointing or short o f standard expec tation. One hesitates to call even these cases “ failures,” because the human factors in the situation frequently triumph and bring about an adjustment. But the fact remains that ideally there should not be a “ miscarriage” o f 12 per cent. Every good adoption home must be considered so valuable a social asset that maximum use will be made o f it. There are 217 foundlings in the New York study group. The present ability o f the foundlings to “ manage themselves and their' affairs with ordinary prudence ” was ascertained in 180 instances. “ O f these, 154 were capable o f managing their personal and social lives without coming into conflict with accepted standards o f ethics, were not a burden in any way upon society, but were for the most part sharing its work and its obligations. Twenty-six were in capable.” 2 Again the picture “ on the whole ” is favorable; but it 1How Foster Children Turn O u t ; a study by the State Charities A id Association, under the direction o f Sophie van Senden Theis. Publication No. 165, S. C. A. A. New York. 1924. 239 pp. »Ib id., p. 1-55. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 196 F O ST E R -H O M E CARE FOR D E P E N D E N T C H IL D R E N . means that every seventh foundling may prove to be a disappoint ment to his foster parents. Must not the risks of such disappoint ment be reduced ? * These figures emphasize the need for clinical control of early adoptions. For although the “ general ” results were good there was a significant minority of cases in which the outcome was not reason ably satisfactory. The report itself, while recognizing the inter acting complexity o f the varied factors involved in adoption, grants the possibility o f reducing the number of misfits by better facilities for preplacement diagnosis, treatment, and observation. In a task so complicated, we may be certain that there would have been an appreciably larger number of misfits in the period from 1898 to 1922 if the foster homes had not been selected and supervised with great care. The same general conclusion is reached when the results are studied from the standpoint o f the mental status of the child’s parents. In 155 instances the investigation showed serious mental limitations in one or both parents. The general level of develop ment of this foster group and their capacity for acquiring formal education were definitely below that o f children with more promis ing background. T o be sure, it was found “ that more than twothirds of those who had what seemed to be a most unpromising of all possible starts are rated as capable.” But again there is a siz able minority whose lower potentiality might perhaps have been discovered through discriminating clinical preplacement investiga tion. One of the most suggestive general findings and impressions which have emerged from the New York study relates to the significance of the age of the child at the time of placement or adoption. “ The children less than five years of age when placed with foster families showed a good development in every way in a larger proportion than those who were placed when five years or more.” 3 This con clusion strengthens the argument that the preschool period of child development is fundamentally the most determining. In this period o f swift growth and of ceaseless adaptation the personality make-up o f the child is in constant process of formation. The child can not be made over entirely even at this early age, but he responds more profoundly to the influence o f home life than he will later. Psychoclinical diagnosis in infancy. From the standpoint o f child adoption, therefore, the situation involves a paradox which contains an element of hazard as well as o f promise. Infancy is the best time for adoption, but in the nature •Ibid., p. 163. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis P S Y C H O C L IN IC A L G U ID A N C E I N C H IL D AD OP TIO N. 197 o f things it is also the time when developmental prediction is most difficult. Can the hazard be reduced ? It can, if the development of infancy is essentially law ful; because all lawful phenomena, even the most complex, are theoretically within the scope o f scientific formulation and forecast.- It will be a long time before astronomical accuracy is attained in this field, because a child’s orbit is not so simple as that o f the sun and the moon. But that it is necessary to remain indefinitely in the dark would not be admitted even by those students who have gained the most knowledge o f the intricacy o f living things. Infancy is the period o f most rapid growth in the whole life cycle, except, o f course, the intrauterine period of which it is but an exten sion. This very fact simplifies, more than it encumbers, the task o f developmental diagnosis. The infant to be sure is very immature, which tends to make him inscrutable; but, on the other hand, he matures at an extremely rapid rate, and this tide of maturation brings him more repeatedly and more cogently within the purview o f systematic observation. The changes which the infant undergoes from the age of 4 months to 6 months, from 6 to 9 months, from 9 to 12 months occupy chron ologically a short span o f time; but from the standpoint o f develop mental economy they may be equivalent to the progress which in later childhood it will take him a whole decade to accomplish. It is assumed, moreover, that the infant is father of the child, just as the child is father o f the man; and that the characteristics o f the infant during the heyday o f growth have some coherent relation to the characteristics which will emerge in later life. The rate and limits o f his growth may also be foreshadowed by the manner and the full ness in which he makes the first stage o f his developmental journey, say from 4 months to 12, or 18, or 24 months. In principle, these considerations have a bearing on the question whether in time the adoption o f infants may be brought under more adequate clinical control. The greater speed of growth has very practical diagnostic implications. It means that a probationary year prior to adoption may be made to yield more evidence in infancy than at any later period. In the first year o f life four periodic developmental examinations may readily be made to determine the increments o f mental growth, whereas a few years would be neces sary to observe as many comparable increments in later childhood. The older a child is the longer it takes to make a definite developmen tal advance; and so it follows that the diagnostic values o f a pro bationary year tend to vary inversely with the age o f the child. To a limited extent the Yale Psychoclinic has had an opportunity to test the application o f this principle in actual clinical examina https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 198 F O ST E R -H O M E CABE FOR D E P E N D E N T C H IL D R E N . tions of infants and young children. For several years the clinic has been attempting to determine behavior norms of infancy and to define diagnostic procedures which will permit objective estimates of developmental status in early life. Briefly the investigation has been conducted as follow s: Ten levels o f development covering the preschool period from birth to the sixth year were studied. As the embryologist cuts his speci mens by serial sections to determine the lines of growth, so has the clinic taken a series of cross-sectional views of individual capacity and behavior at 10 ascending levels—1, 4, 6, 9, 12, and 18 months, and 2, 3, 4, and 5 years.. The total investigation embraced some 500 normal children—50 at eatii level. These children were examined at the psychoclinic, at inf ant-welfare and health centers, and in their homes. The children were precisely at age. The method of approach throughout the investigation was of an observational, clinical, naturalistic type. Appropriate test situations were’ devised to bring out characteristic capacity and behavior at each age level. The psychological examination of the subject was supple mented by an analytic interview with the parent. The purpose o f the whole inquiry was to formulate concrete behavior items both charac teristic and distinctive o f the various age groups. These behavior items are objective and recordable. They relate to motor control, language, adaptive (or intelligent) behavior, and personal and social behavior. The whole array of items, over 150 in number, has been codified into a set of 10 developmental schedules, 1 for each age level studied. By means of these schedules it is possible to make a somewdiat de tailed descriptive and analytic record of the developmental status of a child in terms o f capacity and behavior. Purely numerical for mulations are avoided. A premium is placed upon descriptive, inter pretive diagnosis, and the importance of a unifying comparative approach is emphasized. In Part I I of this report several case studies are assembled to illus trate the clinical aspects of child adoption with special reference to infancy. The reader, however, must not be left with any misconcep tions concerning the automatic precision o f the diagnostic pro cedures above outlined. They do not operate automatically at all; their final usefulness hinges upon trained clinical judgment. The normative developmental schedules, however, furnish an objective basis for the construction o f a considered estimate and for a compar ative evaluation of successive examinations. In this sense they favor verifiable as opposed to intuitive appraisal. . , Finally it must be remembered that all diagnosis deals with probabilities and not with absolute prophecy. It is here the aim to https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis PS Y C H O C L IN IC A L G U ID AN C E I N CH IL D A D O P T IO N . 199 reduce the likelihood o f error in such important situations as plac ing a child in a foster home. .I n simplified instances there is a positive diagnostic probability of nearly 100 per cent and a corre sponding certitude o f prediction. Below this 100 per cent standard o f certainty there is a diminishing gradation o f probability; but here as elsewhere scientific method will steadily increase foresight and make child-placing efforts less erroneous. There is occasional danger that the demand for prediction will be pushed too far by child-placement agencies. It is also true that certain foster parents are unreasonably detailed and exacting in their specifications for their desired adoptee. Such parents should know that adoption must retain some elements of faith, adventure, and sacrifice. But neither the faith nor the adventure should be blind. The instinctive and rational safeguards o f marital mating are not present. Clinical safeguards must be supplied. When a child is given and taken in adoption the probate law decrees that he shall be u as though born in wedlock.” And adoption, like wedlock, should not be lightly entered upon. P A R T II.— C H IL D -A D O P T IO N C A S E IL L U S T R A T IO N S . The clinical aspects of child adoption can be discussed most briefly and concretely by means o f a few illustrative cases. These cases, nine in number, were selected because they are instructive and in a sense typical; they are by no means unusual. They have not been invented4 but have arisen in natural course. They are repre sentative o f those situations in which the importance of clinical Control asserts itself most clearly; but it must be remembered that so-called exceptional cases can be discovered only by incorporating clinical safeguards as a regular procedure in all instances of adoption. The cases which seem “ perfectly all right ” in the eyes o f all the well-minded adults concerned may be just the cases which need careful investigation and clinical appraisal. Perhaps the first case presented below will illustrate this point. A B lin d A doption — Child A ( age 6, 9, 12, 2h m o n th s). This child was first examined as a mere infant, at the. age of 6 months. She wras a foundling and was seen at a child-welfare station. Although she was poorly nourished, her general appearance was relatively normal. She smiled, cooed, followed moving objects with her eyes, gave transient regard to a dangling ring. But she did not reach for the dangling rin g ; nor could any object entice her to reach. Her developmental status was estimated to be at the three-month level. A diagnosis of mental deficiency was made, and the agency then supervising the child was notified. * Inconsequential disguise has been introduced into the case reports to prevent any possibility of identification. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 200 F O S T E R -H O M E CARE FOR D E P E N D E N T C H IL D R E N . Parenthetically it should he stated that from the standpoint o f developmental diagnosis a retardation of 3 months at the age of 6 months is of serious import. A t the age of, say, 3 years this degree of retardation, if measurable, would be quite negligible. Here it denoted nothing less than feeble-mindedness. The subnormality of nutrition did not cause the retardation: time could not over come nor circumvent it. Indeed, by the agg of 2 years the actual developmental retardation increased to 12 months. This, however, was but a lawful length ening of the shadow, not a deterioration- A t the age of 2 the child “ looked” more defective; but she was in reality the same child who had been seen at 6 months. When 9 months old A was reexamined. She approximated the four-month level of development. Nothing would induce her to reach even now. The dangling ring was attended to with more fixed and prolonged gaze, but there was no other reaction toward it. The diagnosis was confirmed. At the age of 12 months A was again examined. Now the behavior picture changes. She goes out with avidity to every object in her reach. She grasps the dangling rin g ; she seizes a piece of writing paper and crumbles it with lusty vigor. She is now in good nutritional trim ; she looks attractive; she bears no obvious badge of defect anywhere; and she is so reactive to the play material given to her that she makes an excellent impression. The baby is physically well developed; she evidently has a good disposition; she is alert. Surely she is adoptable! In a sense she is a fine baby— but only in tbe sense or in the equivalence of a 6-month baby. However, she is 12 months o ld ; she is still mentally deficient. It was at this time that this child was placed under the supervision of a second agency; and it was necessary to make a rather emphatic report con cerning her developmental outlook because the plans were to have her adopted. A t 18 months she was reexamined. Her developmental level consistently approximated nine months. The shadow is still lengthening. A t 24 months she was examined once more. Her developmental level was clearly 12 months. She behaved very much like a normative 12-month-old baby. The diagnosis of mental deficiency was now confirmed beyond dispute. And the moral? W ell, just before the last examination she went out of the hands of the X Y Z agency, and she was adopted very soon by a very excellent and most affectionate foster mother, who does not know what she has done. A n A ttra ctive In fa n t, ~tmt Subnorm al— Child B (a g e 26 m o n th s). This child was not seen before the age of 2 years. She was born out of wed lock. Concerning tlie mother there was only the brief annal, “ she is un truthful and peculiar.” The child was boarded in a high-grade family home where the foster mother became deeply attached to her and made plans for her adoption and education. Postponement of adoption has been urged, because the child just now seems much brighter and “ more acceptable ” than she really is. She is in the “ cute ” stage o f development which conceals her limitations. In physical appearance she is attractive; in demeanor she is smiling, re sponsive, playful. She waves “ bye-bye ” very genially and plays gleefully with a hall. She is just, the kind o f child who would smite the heart of questing adoptive parents. I f they yielded to the impulse of affection on first sight, they would then and there resolve to take her into their own home, give her every educational advantage, and rear her as a charming, refined daughter. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis P S Y C H O iilJ N IG A L G U ID AN C E I N C H IL D A D OP TIO N. 201 These parents would not be entirely disappointed, because the child is not definitely mentally deficient and her personality make-up is relatively favor able However, the examination proved that she approximates the 18-month level much more consistently than the 2-year level, and the general quality of her attention was far from satisfactory. On the basis o f all the clinical evi dence it is extremely doubtful that she will ever be able to complete a highschool education. She may have some difficulty in completing the grammar grades. In 10 fleeting years at least the educational limitations of this child will be more palpably revealed; and there may be genuine pangs of regret. The economic status and educational purpose of the parents are an important factor in this particular adoptive situation. I f at the outset the parents are not ready to relinquish their educational expectations, another child should be sought. Some parents, are quite content with a favorable, likable personality irrespective of grammar-school success. Clinical safeguards and a probationary period will help to define the issues in advance and protect the interests of both child and parents. C otteye E d u ca bility— Child G {a y e 6 y e a r s ) . This case again illustrates the problem of educational specifications. A wellto-do but childless couple, after perhaps too many years of delay, decided to take a child into their home and give this child a good college education, ih e ir preference was a girl, aged 6 months. College educability is an extremely difficult thing to predict. It depends npon personality as well as intelligence factors, and it may hinge on a motiva tion which has been built up by years o f direct and indirect suggestion in the home. However, some children are much more likely to possess this degree of capacity than others. W e were fortunate in discovering a convincingly promisng hoy, aged 6 years, alert, spontaneous, o f superior mentality, o f excellent personality and also o f superior inheritance. Here the “ chances ” of collegi ate capacity were unusually favorable. The adoptive parents met this ehild and were eager to take him on trial. They relinquished their desire for a younger child in preference for this greater educational certainty. D efectw e but Aidoytcd— Ghtld /) {a ye 12 yea^Ts). It is possible in certain instances that adoption o f a mentally deficient child may be consented to. A girl who was examined at the age of 12 years was very attractive in appearance and made an impression of normality but proved to have a mental age of 8 years and a school ability of less than fourth grade It was necessary to classify her as a high-grade mental defective. The social agency in charge^ o f this ease asked the clinic whether or not this girl was sufficiently promising to ju stify consent to adoption. The reply was as fo llow s: “ My impression after a long conversation with the mother is that adop tion m ay be quite legitimate inasmuch as your agency has urged and accom-* pushed considerable delay before approving such adoption and is in position to place all the hazards of such a step before the adoptive parents. You have rendered a service in bringing about the delay, and it m ay even be possible to prolong this delay until D is 18 years o f age. However, we can see no p o u n d on which an issue can be made under all circumstances. Mrs. _______ is apparently ready to take all risks that would go with the step. A n y other type of solution would not satisfy either Mr. or Mrs. ----------- ; and if their im pulse for adoption is as sincere as it seems to be and if they will consent to do all in their power to prevent marriage, the wise course m ay be to allow adop- https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 202 FOSTER-HOME CARE FOR DEPENDENT CHILDREN, tion. You are justified, however, in view of Our reply, in making it clear that we have very grave and well-founded doubts whether this child can ever assume and meet thè complex responsibility of making a home of her own.” N orm al hut In com pa tible— Child E ( age 7 y e a r s ). This was a normal, wholesome youngster found for a very promising foster home. The foster parents were leading people in their community. Although childless, they had done well by several boarding children. And yet this home failed suprisingly and somewhat tragically, for reasons which neither the mental examiner nor the home-placement visitor could have foreseen. The placement visitor summed up the case as follows : “ For several months E delighted her foster parents. In six months, how ever, we received a request for immediate removal. The foster father, who dearly loved the little daughter, had tried for several months to cope with a situation which was growing so serious that he finally realized he had to give up the child or allow his home to be broken up. His wife became furiously jealous of his affection for the child and considered that she was coming between them. E has never been able to see why she had to leave this very happy farm home— still talks of it wistfully— and I do not see how we could have anticipated this outcome and prevented her heartbreak.” E xa gg era ted A ffection — Child F ( age 14 y e a r s ). The foster mother in this case lost two children in early infancy, both of them dying before the age of 1. Last year she passed her menopause. About eight years ago she adopted a boy in whom she is thoroughly wrapped up. Indeed, her fondness is so exaggerated that she has lost her sense of propor tion with respect to his behavior. He is an average, well-behaved boy, but she worries about him. This exaggerated fondness is remotely compensatory for her grief over the two lost babies and for her worries over financial con ditions. For the sake of the boy as well as the mother, the attitude between them must be normalized. Here is a mental-hygiene problem in the making, which reveals the importance of a wholesome relation between the foster parent and the child. H a s ty A d option and A n tagon ism — Child G ( age J) y e a r s ). This case presents an interesting contrast. Here again is a kind foster mother, one who impulsively adopted a child of a niece but after one week pro foundly regretted this adoption, which had been promptly legalized by probate papers. Although the mother had been acquainted with this child by fre quently seeing G play with other children in the yard, the child did not re spond to the test of home life and proved to be mentally inferior. The mother has now developed a great antagonism toward the child, which weighs heavily upon them both. The situation is as serious as incompatibility be tw e e n husband and wife, and annulment of adoption presents problems com parable to those of divorce. This case illustrates again the folly of ill-considered adoption. The mental examination showed that this girl at the age of 4 years had a high-grade mental defect. This defect was concealed to ordinary observation, because G was only a little child; and did she not play around much like the other children? Yes, but she was and is feeble-minded, and this diagnosis should have been made before rather than after the decree of adoption. Moreover, a probationary period of only six months would have had a very tempering effect upon the impulse to adopt. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis P S Y C H O C L IN IC A L G U ID A N C E I N C H IL D ADOPTION, 203 Hoes this ease also illustrate the great value of annulment provisions to adoption laws? Not very conclusively. Such annulment proceedings should he very sparingly used. Almost complete reliance should be placed on pre adoption clinical safeguards and upon a scrupulous utilization of the pro bationary period. The Minnesota statute provides that the court may annul adoption and commit the child to State guardianship if within five years after adoption the child develops feeble-mindedness, epilepsy, insanity, or venereal infection as a result of unrecognized conditions existing prior to the adoption. The in stances in which feeble-mindedness would so develop are very rare. One oc casionally hears of “ potentially feeble-minded ” children, but the term is of doubtful value and of extremely limited application. The purpose of the preplacement investigation, clinical examination, and probationary test is to uncover all conditions which exist prior to adoption. Placement cgn not be raised to the n th degree through adoption if annulment is made as easy as marital divorce. P reca u tion a ry P roba tion — Child I I ( age 8 y e a r s ). This child was referred to the clinic by the State bureau of child welfare with the question* “ Is she overplaced or underplaced?” W ith a brother born out of wedlock, she did not have an unclouded family background; she had also spent an interval in a neglectful, dirty home. Her present foster parents had ' taken her into the home on trial. It proved to be a case of mutual love and com patibility on first sight. In 24 hours the parents decided that she must stay. The bureau, however, was able to prolong the probationary period to 16 months. .'The clinical examination showed that the girl had a well-developed average mentality, that she was alert, responsive, amiable, and apparently very favorably constituted from a personality standpoint. Fortunately, too, she is neither underplaced nor overplaced. She is an excellent adaptive prospect in her present foster home. There are no striking features about this case, and yet it proves a very simple point which sometimes is forgotten. Nothing was lost by the period of pro bation. “ Love at first sig h t” was well founded here; in other adoption in stances it may prove very untrustworthy. Incidentally, something was gained by the period of probation. The slight fear that they might not be permitted to adopt had if anything a wholesome, sobering effect upon the attitude of the foster parents toward the whole adoption situation. B a d B ackground but A dopta ble—-C M ld J ( age 20 m o n th s). It is not the function of preplacement clinical examination solely to dis cover the deterrents and to define the hazards of adoption, but to emphasize positive, promising constructive possibilities. A great deal is heard about poor family background in child-placement work. Social workers speak in a vague, foreboding way about the bad background of this and that child. W hat does the background mean ? Alcoholism, abuse, shiftlessness, poverty, neglect, in sanity, mental deficiency, illegitimacy, and the like. Often it is gratuitously as sumed that in some way or other this background is in the inherent constitution of the child. This does not always follow. To be sure, long residence in an incompetent home may warp a child and leave a deposit which is part and parcel of his acquired personality. On the other hand, a child may have a feeble-minded mother and still be a relatively safe placement or even adoption prospect. This .morning J, a girl of 20 months, was brought to the clinic. Her mother is so mentally deficient that she (the mother) is about to be committed 72693°— 26------14 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 204 FOSTER-HOME CARE FOR DEPENDENT CHILDREN, to a State institution. Her husband does not know the difference between a one-dollar and a five-dollar bill and is thought by the neighbors to be more defective than his wife. The actual paternity of the child is unknown, be cause the mother has been promiscuous in her sexual relations. It is not known whether the maternal mental defect is definitely transmissible or of a secondary, acquired character. W hen the child is estimated on her own merits it is necessary to consider her fully normal in her present developmental status. Her personality traits are not only normal but positively favorable. In spite, of her forbidding background, she is entitled to more than an in different or temporizing placement. She is entitled to a good placement, and she is a safer adoption prospect than many a child with an “ excellent back ground.” C O N C L U S IO N . The foregoing cases cover some of the more important psychologi cal problems which arise out o f the complicated task of child adop tion. They demonstrate that this task can not be intrusted altogether to good will or to intuitive impulse, or even to unaided common sense. There are too many opportunities for error and miscarriage, The combined critical judgment o f the social investigator, the court, the physician, and the mental examiner should enter into the regula- m tion of adoption. The greatest universal safeguard is a period of probation, but this can not be wisely used unless supplemented by clinical determinations of health conditions and development outlook. Mental examinations are particularly necessary to forestall serious errors o f selection by over-sanguine foster parents. These examinations are also necessary to reduce the number of replacements or uprootings which still figure too frequently in the lives of dependent children. Adoption is at once a social expedient and a social asset. Like education, it must be adapted to each individual situation if it is to realize the best results. Purely from the standpoint o f social economy, if for no other reason, this asset should be constructively conserved. Optimum placement consists in the avoidance of underplacement, overplacement, and misplacement and results in the great est mutual good for child and foster parent. Clinical control o f child adoption should be closely related to all precautionary and investigatory procedures. It should reenforce and direct rather than displace other methods o f control. Systematic psychoclinical examinations not only will reduce the wastes o f error and miscarriage but will serve to reveal children o f normal and superior endowment beneath the concealment of neglect, o f poverty, or o f poor repute. Clinical safeguards can not solve all the problems of child adoption, but they can steadily improve its methods and make them both more scientific and humane. Most o f all in the appealing but undefined period o f infancy do we need a clearer light for faith. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A PPE N D IX A.— CONCLUSIONS OF THE “ W H ITE HOUSE CONFERENCE ON DEPENDENT CHILDREN.” 1 S P E C IA L M E S S A G E B Y T H E P R E S ID E N T O F T H E U N IT E D S T A T E S . T o the S enate and H o u se o f R e p re se n ta tiv es : On January 2 5 -2 6 , 1909, there assem bled in this city, on m y invitation, a conference on the care o f dependent children. T o th is conference there cam e from nearly every State in the U nion men and women actively engaged in the care o f dependent children, and they represented a ll the leading religious bodies. T h e subject considered is one o f high importance to the w ell-being o f the N ation. T h e Census B ureau reported in 1904 that there were in orphanages and children’s homes about 93,000 dependent children. There are probably 50,000 more (th e precise num ber never having been ascertained) in private hom es, either on board or in adopted homes provided by the generosity o f foster parents. In addition to these there were 25,000 children in institutions for ju ven ile delinquents. E ach o f these children represents either a potential addition to the produc tive capacity and the enlightened citizenship o f the N ation, or, i f allow ed to suffer from neglect, a potential addition to th e destructive forces o f the com m unity. T h e ranks o f crim inals and other enemies o f society are recruited in an altogether undue proportion from children bereft o f their n atural homes and le ft w ithout sufficient care. T h e interests o f the nation are involved in the w elfare o f this arm y o f children no less than in our great m aterial affairs. N otw ithstanding a w ide diversity o f view s and methods represented in the conference and notw ithstanding the varyin g legislative enactm ents and policies o f the States from which the m em bers came, the- conference, a t the close o f its sessions, unanim ously adopted a series o f declarations expressing the con clusions which they h ad reached. T hese constitute a wise, constructive, and progressive program o f child-caring work. I f given fu ll effect by the proper agencies, existin g m ethods and practices in alm ost every com m unity would be profoundly and advantageously modified. M ore significant, even than the contents o f the declarations is the fa c t that they were adopted w ithout dissenting vote and w ith every dem onstration o f hearty approval on th e part o f all present. T h ey constitute a standard o f accepted opinion by which each com m unity should m easure the adequacy o f its existin g m ethods and to which each com m unity should seek to conform its legislation and its practice. T h e keynote o f the conference w as expressed in these w o r d s: “ H om e life is the highest and finest product o f civilization. Children should not be deprived o f it except fo r urgent and com pelling reasons.” Surely poverty alone should not disrupt the home. Parents o f good character suffering from tem porary m isfortune and above all, deserving m others fa irly w ell able to work but deprived o f the support o f th e norm al breadw inner should be given such aid as m ay be necessary to enable them to m aintain suitable homes fo r the rearing o f their children. T h e widow ed or deserted mother, i f a good wom an, w illin g to w ork and to do her best, should ordinarily be helped in such fash ion as w ill enable her to bring up her children herself in their natu ral home. Children from unfit hom es and children who have no homes, who m ust be cared fo r by charitable agencies, should, so fa r as prac ticable, be cared fo r in fam ilies. I transm it herew ith fo r your inform ation a copy o f the conclusions reached by the conference, o f which the follow in g is a b rief sum m ary : 1. H o m e care.— Children o f w orthy parents or deserving m others should, as a rule, be kept w ith their parents at home. 2. P reven tive w ork .— T h e effort should be m ade to eradicate causes o f de pendency, such as disease and accident, and to substitute compensation and insurance fo r relief. 1From the Proceedings of the Conference on the Care of Dependent Children, held at "Washington, D. C., Jan. 25-26, 1909. Sixtieth Congress, second session, Senate Document No. 721, pp. 8-14. Government Printing Office, Washington, 1909. 207 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 208 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. 3. H o m e finding.— Homeless and neglected children, if normal, should be eared for in families* when practicable 4. C ottage sy ste m . — Institutions should be on the cottage plan with small units, as far as possible. 5. In corporation . — Agencies caring for dependent children should be incor porated, on approval o f a suitable State board. 6. State inspection.— The State should inspect the work of all agencies which care for dependent children. 7. In spection o f educational w o r k — Educational work of institutions and agencies caring for dependent children should be supervised by State educational authorities. 8. F a c ts and records. — Complete histories of dependent children and their parents, based upon personal investigation and supervision, should be recorded for guidance of child-caring agencies. 9. P h ysica l care.— Every needy child should receive the best medical and surgical attention and be instructed in health and hygiene. 10. Cooperation,— Local child-caring agencies should cooperate and establish Joint bureaus of information. 11. U ndesirable legislation.— Prohibitive legislation against transfer of de pendent children between States should be repealed. 12. P erm anent organization.— A permanent organization for work along the lines o f these resolutions is desirable. 13. F ed eral children’s bureau.— Establishment o f a Federal children’s bureau is desirable, and enactment o f pending bill is earnestly recommended. 14. Suggests special message to Congress favoring Federal children’s bureau and other legislation applying above principles to District o f Columbia and other Federal territory. W hile it is recognized that these conclusions can be given their fullest effect only by the action of the several States or communities concerned, or of their charitable ageneies, the conference requested me, in section 14 of the conclu sions, to send to you a message recommending Federal action. There are pending in both Houses of Congress bills for the establishment of a children’s bureau, i. e., Senate bill No. 8323 and House bill No. 24148. These provide for a children’s bureau in the Department of the Interior, which “ shall investigate and report upon all matters pertaining to the welfare of children and child life, and shall especially investigate the questions o f infant mortality, the birth rate, physical degeneracy, orphanage, juvenile delin quency and juvenile courts, desertion and illegitimacy, dangerous occupations, accidents and diseases of children of the working classes, employment, legisla tion affecting children in the several States and Territories, and such other facts as have a bearing upon the health, efficiency, character, and training of children.” One of the needs felt most acutely by the conference was that o f accurate information concerning these questions relating to childhood. The National Government not only has the unquestioned right of research in such vital matters but is the only ageney which can effectively eonduet such general inquiries as are needed for the benefit of all our citizens. In accordance with the unanimous request of the conference, I therefore most heartily urge your favorable action on these measures. It is not only discreditable to us as a people that there is now no recognized and authoritative source of information upon these subjects relating to child life, but in the absence of such information as should be supplied by the Federal Government many abuses hare gone unchecked; for public sentiment, with its great corrective power, can only be aroused by full knowledge of the facts. In addition to such information as the Census Bureau and other exist ing ageneies of the Federal Government already provide, there remains much to be ascertained through lines of research not now authorized by law ; and there should be correlation and dissemination o f the knowledge obtained with out any duplication of effort or interference with what is already being done. There are few things more vital to the welfare of the Nation than accurate and dependable knowledge of the best methods of dealing with children, especi ally with those who are in one way or another handicapped by misfortune; and in the absence o f such knowledge each community is left to work out its own problem without being able to learn of and profit by the success or failure of other communities along the same lines of endeavor. The bills for the establishment of the children’s bureau are advocated not only by this con ference but by a large number of national organizations that are disinter- https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. 209 estedly working for the welfare of children, and also by philanthropic, educa tional, and religious bodies in all parts of the country. I further urge that such legislation be enacted as may be necessary in order to bring the laws and practices in regard to the care o f dependent chil dren in all Federal territory into harmony with the other conclusions reached by the conference. * * * * * * * I herewith transmit a copy of the full text of the proceedings. T T he W h it e H ou se, heodore R oosevelt. F eb ru a ry 15, 1909. L E T T E R TO T H E P R E S ID E N T O F T H E U N IT E D S T A T E S , E M B O D Y IN G T H E C O N C L U S IO N S O F T H E C O N F E R E N C E O N T H E C A R E O F D E P E N D E N T C H IL D R E N H E L D B Y IN V I T A T I O N O F T H E P R E S ID E N T IN W A S H IN G T O N , D . C „ J A N U A R Y 25 and 26, 1909. H on. T heodore R oosevelt, P residen t o f the U nited S tates. S i r : Having been invited by you to participate in a conference on the care of dependent children, held at Washington, D. C., January 25-26, 1909, and having considered at the sessions of such conference the various phases of the subject as stated in the memorandum accompanying your letter of invitation, and such others as have been brought before us by the executive committee, we desire to express the very great satisfaction felt by each member o f this con ference in the deep interest you have taken in the well-being of dependent children. The proper care of destitute children has indeed an important bearing upon the welfare of the Nation. W e now know so little about them as not even to know their number, but we know that there are in institutions about 93,000 and that many additional thousands are in foster or boarding homes. As a step, therefore, in the conservation of the productive capacity of the people and the preservation of high standards of citizenship, and also because each of these children is entitled to receive humane treatment, adequate care, and proper education, your action in calling this conference and your participation in its opening and closing sessions will have, we believe, a profound effect upon the well-being of many thousands of children, and upon the Nation as a whole. Concerning the particular objects to which you call attention in the invitation to this conference, and the additional subjects brought before us by the execu tive committee, our conclusions are as follow s: Hom e care. 1. Home life is the highest and finest product o f civilization. It is the great molding force o f mind and of character. Children should not be deprived o f it except for urgent and compelling reasons. Children of parents of worthy character suffering from temporary misfortune, and children of reasonably efficient and deserving mothers who are without the support of the normal breadwinner should, as a rule, be kept with their parents, such aid being given as may be necessary to maintain suitable homes for the rearing of the children. This aid should be given by such methods and from such sources as may be determined by the general relief policy o f each community, preferably in the form o f private charity rather than of public relief. Except in unusual cir cumstances the home should not be broken up for reasons of poverty, but only for considerations of inefficiency and immorality. Preventive work. 2. The most important and valuable philanthropic work is not the curative but the preventive; to check dependency by a thorough study of its causes and by effectively remedying or eradicating them should be the constant aim of society. Along these lines we urge upon all friends of children the promotion of effective measures, including legislation to prevent blindness; to check tuberculosis and other diseases in dwellings and work places; and injuries in hazardous occupations; to secure compensation or insurance so as to provide a family income in case of sickness, accident, death, or invalidism of the breadwinner; to promote child-labor reforms, and, generally, to improve the conditions surrounding child life. To secure these ends we urge efficient co operation with all other agencies for social betterment. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 210 F O S T E R -H O M E C A R E F O R D E P E N D E N T C H IL D R E N , Home finding. 3. A s to the children who for sufficient reasons must be removed from their own homes, or who have no homes, it is desirable that if normal in mind and body and not requiring special training, they should be cured for in families whenever practicable. The carefully selected foster home is for the normal child the best substitute for the natural home. ' Such homes should be. selected by a most careful process of investigation, carried on by skilled agents through personal investigation and with due regard to the religious faith of the child. After children are placed in homes; adequate visitation, with careful considera tion of the physical, mental, moral, and spiritual training and development of each child on the part of the responsible home-finding agency, is essential. It is recognized that for many children foster homes without payment for board are not practicable immediately after the children become dependent, and that for children requiring temporary care only, the free home is not available. For the temporary, or more or less permanent, care of such children different methods are in use, notably the plan o f placing them in families, paying fo r their board, and the plan of institutional care. Contact with family life is preferable for these children, as well as for other normal children. It is necessary, however, that a large number of carefully selected boarding homes be found if these children are to be cared for in families. The extent to which such families can be found should be ascertained by careful inquiry and experiment in each locality. Unless and until such homes are found the use of institutions is necessary. Cottage system. 4. S© far as it may be found necessary temporarily or permanently to care for certain classes of children in institutions, these institutions should be con ducted on the cottage plan, in order that routine and impersonal care may not. unduly suppress individuality and initiative. The cottage unit should not be larger than will permit effective personal relations between the adult caretaker or caretakers of each cottage and each child therein. Twenty-five is suggested as a desirable cottage unit, subject to revision in the light of further experience in the management of cottage institutions. The cottage plan is probably some what more expensive, both in construction and in maintenace, than the con gregate system. It is so, however, only because it secures for the children a larger degree of association with adults and a nearer approach to the conditions o f family life, which are required for the proper molding of childhood. These results more than justify the increased outlay and are truly economical. Child-caring agencies, whether supported by public or private funds, should by all legitimate means press for adequate financial support. Inferior methods should never be accepted by reason of lack of funds without continuing protest. Cheap care of children is ultimately enormously expensive and is unworthy of a strong community. Existing congregate institutions should so classify their inmates and segregate them into groups as to secure as many of the benefits of the cottage system as possible and should look forward to the adoption of the cottage type when new buildings are constructed. The sending of children of any age or class to almshouses is an unqualified evil and should be forbidden everywhere by law, with suitable penalty for its violation. Incorporation. 5. To engage in the work of caring for needy children is to assume a most serious responsibility and should, therefore, be permitted only to those who are definitely organized for the purpose, who are of suitable character, and possess, or have reasonable assurance of securing, the funds needed for their support The only practicable plan of securing this end is to require the approval, by a State board of charities or other body exercising similar powers, of the in corporation of all child-caring agencies, including the approval of any amend ments of the charter of a benevolent corporation, if it is to include child-caring w ork; and by forbidding other than duly incorporated agencies to engage in the care of needy children. State inspection. 6. The proper training of destitute children being essential to the well-being of the State, it is a sound public policy that tlje State, through its duly au thorized representative, should inspect the work of all agencies which care for dependent children; whether by. institutional or by home-finding methods and whether supported by public or private funds. Such inspection should be https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A P P E N D IX E S . 211 made by trained agents, should be thorough, and the results thereof should be reported to the responsible authorities of the institution or agency, concerned. The information so secured should be confidential, not to be disclosed except by .competent authority. Inspection of educational work. 7. Destitute children at best labor under many disadvantages and are deprived in greater or less degree of the assistance and guidance which parentsafford their .own children. If is important, therefore, that such children be given an education which will fit them for self-support and for the duties of citizenship, and the State should provide therefor. In' order that this educa tion may be equal to that afforded by the schools attended by the other children of the community, it is desirable that the education of children in orphan asylums and other similar institutions or placed in families should be under the supervision of the educational authorities of the State. Facts and records. 8. The proper care of a child in the custody of a child-caring agency, as well as the wise decision as to the period of his retention and ultimate dis position to he made of him, involve a knowledge of the character and circum stances of his parents, or surviving parent, and near relatives, both before and at the time the child becomes dependent, and subsequently. One unfortunate feature o f child-caring work hitherto is the scanty information available as to the actual careers of children who have been reared under the care of chari table agencies. This applies both to institutions, which too frequently lose sight of the children soon after they leave their doors, and home-finding agencies, which too frequently have failed to exercise supervision adequate to enable them to judge of the real results of their work. It is extremely desirable" that, taking all precautions to prevent injury or embarrassment to those who have been the subjects of charitable care, the agencies which have been responsible for the care of children should know to what station in life they attain and what sort of citizens they become. Only in this manner can they form a cor rect judgment of the results af their efforts. W e believe, thereforè, that every child-caring agency should—(a) Secure full information concerning the character and circumstances of the parents and near relatives of each child in whose behalf application is made, through personal investigation by its own representative, unless ade quate information is supplied by some other reliable agency. (b) Inform itself by personal investigation at least once each year of the circumstances of the parents of children in its charge, unless the parents have been legally deprived of guardianship, and unless this information is supplied by some other responsible agency. (c) Exercise supervision over children under their care until such children are legally adopted, are returned to their parents, attain their majority, or are clearly beyond the need of further supervision. (d) Make a permanent record of all information thus, secured. Physical care. 9. The physical condition of children who become the subjects of charitable care has received inadequate consideration. Each child received into the care of such an agency should be carefully examined by a competent physician especially for the purpose of ascertaining whether such peculiarities, if any’ as the child presents may be due to any defect of the sense organs or to other physical defect. Both institutions qnd placing-out agencies should take every precaution to secure proper medical and surgical care of their children and should see that suitable instruction is given them in matters of health and hygiene. Cooperation. 10. Great benefit can be derived from a close cooperation between the various child-caring agencies, institutional and otherwise, in each locality. It is especially desirable that harmonious relations be established in regard to the ■classes of children to be received by each agency, the relations of such agencies to the parents of children received, and the subsequent over sight of children passing from the custody o f child-caring agencies. The establishment of a joint bureau of investigation and information by all the child-caring. ageneies of each locality is highly commended, in the absence of any other suitable central agency through which they may cooperate. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 212 F O S T E R -H O M E C A B E F O R D E P E N D E N T C H IL D R E N . Undesirable legislation. . 11 W e greatly deprecate the tendency o f legislation in some States to place unnecessary obstacles in the way of placing children in f ^ 1 ^ y J 1^ esf 11J such States by agencies whose headquarters are elsewhere, in view of the fact that we favor the care of destitute children, normal in mind and body, m ia w f r S ^ W â e4 X Pr i " Î c h State to protect M l from vicious, disease* or defective children from other States by the enactment of reasonable pro tective legislation; but experience proves that the reception of ^ a t t h y children is not only an act of philanthropy, but also secures a valuable incre ment to the population of the community and an ultimate increase of its WfPhe1*people of the more prosperous and less congested districts owe a debt of hospitality to the older communities from which many of the“ ^a™e- . . . . . W e earnestly protest, therefore, against such legislation as is prohibitive in form or in effect, and urge that where it exists it be repealed. Permanent organization. 12. The care of dependent children is a subject about which nearly^ every session of the legislature of every State in the Union concerns itself ; it is a work in which State and local authorities in many States are engaged, and m which private agencies are active in every State. Important decisions are being made constantly by associations, institutions, and affecting auestions o f policy, the type of buildings to be constructed, the estabfishment of an adequate system of investigating homes and y1Siting children placed in homes, and scores of important matters a c t i n g ïïî^ îd g e needy children. Each of these decisions should be made with fuli knowledge of the experience of other States and agencies, and of the trend of opinion amon0- those most actively engaged in the care of children, and able to speak ?rom wideExperience and careful observation. One effective means of secur ing this result would be the establishment of a permanent or^n ization to undertake in this field, work comparable to that carried on by the National Playground Association, the National Association for the Study and Preven tion of Tuberculosis, the National Child Labor Committee, and ^ J e r similar organizations in their respective fields. It is our judgment that the establish ment of such a permanent voluntary organization, under auspices which would insure a careful consideration of all points of view, broad-mmdedness, and. tolerance, would be desirable and helpful, if reasonably assured o f adequate financial support. Federal children’s bureau. ' - _ . „ a hill i<* nending in Congress for the establishment of a Federal child P M 'A i r e a u and « S e m in a te Information affecting the welfare o f : children. In our Judgment the establishment o f such a bureau is desirable, and we earnestly recommend the enactment of the pending measure. SUu mi Z ' nrpooding suggestions may be almost completely summarized in this— that the particular condition and needs of each destitute child should be carefuliy studied and that he should receive that care and treatment which his indM dual needs require, and which should be as nearly as possible like thp life of the other children of the community. 15 W e respectfully recommend that you send to Congress a message urging favorable S o n upon the bill for a Federal children’s bureau and .the enactS “ such legislation as will bring the laws and the public administration S the District of Columbia and other Federal territory Into harmony with the p r i n c t p f i S conclusious herein state«, and we M t e r^ o m m m d that j o u tPonomiHAfi to the lïSveriior of each State ot tue union, a copy oi. the proceedings of this conference for the information of the State board of charities or other body exercising similar powers. Yours very respectfully, H astings H. H ast , E dm ond J. B u tleb, J u l ia n W . M a c k , H omes F o lks, J a m e s E. W e s t , C o m m ittee on resolutions. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPEN D IX B.— RESOLUTIONS ON STANDARDS RELAT ING TO * CHILDREN IN NEED OF SPECIAL CARE.” 1 1. General statement. The conclusions of the White House Conference of 1909 on the Care of De pendent Children are reaffirmed in all essentials. They have been guides for communities and States in reshaping their plans for children in need of special care. They are recommended for consideration to all communities whose standards do not as yet conform to them, so that they may be translated into practice in the various States. The fundamental rights of childhood are normal home life, opportunities for education, recreation, vocational preparation for life, and moral, religious, and physical development in harmony with American ideals and the educational and spiritual agencies by which these rights of the child are normally safeguarded. Upon the state devolves the ultimate responsibility for children who are in need o f special care by reason o f unfortunate home conditions, physical or mental handicap, or delinquency. Particular legislation is required to insure for such children the nearest possible approach to normal development. 2. Adequate income. Home life, which is, in the words o f the conclusions of the White House Con ference, “ the highest and finest product o f civilization,” can not be provided except upon the basis of an adequate income for each family. 3. Assistance to mothers. The poliey of assistance to mothers who are competent to care for their own children is now well established. It is generally recognized that the amount provided should be sufficient to enable the mother to maintain her children suitably in her own home, without resorting to such outside employment as will necessitate leaving her children without proper care and oversight; but in mahy States the allowances are still entirely inadequate to secure this result under present living costs. The amount required can be determined only by eareful and competent case study, which must be renewed from time to time to meet changing conditions. 4. State supervision. A State board of charities or a similar supervisory body should be responsible for the regular inspection and licensing of every institution, agency, or associa tion, incorporated or otherwise, which receives or cares for mothers with children or children who suffer from physical or mental handicaps, or who are delinquent, dependent, or without suitable parental care, and should have authority to revoke such licenses for cause and to prescribe forms o f registra tion and report. This State agency should maintain such supervision and visitation o f children in institutions and children plaeed in family homes as will insure their proper care, training, and protection. The incorporation of private organizations caring for children should- be required, and should be subject to the approval of the State board of charities or similar body. State supervision should be conceived and exercised in harmony with democratic ideals which invite and encourage the service of efficient, altruistic forces of society in the common welfare. 5. Removal of children from their homes. Unless unusual conditions exist, the child’s welfare is best promoted by keeping him in his own home. No child should be permanently removed from his home unless it is impossible so to reconstruct family conditions or build i From the Minimum Standards for Child Welfare Adopted by the Washington and Regional Conferences on Child Welfare, 1919 (Conference Series No. 2„ TJ. S. Children’s Bureau Publication No. 62, Washington, 1920), which gives complete text of standards on all subjects considered at the conferences. 213 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 1214 FOSTER-HOME CARE FOR REPERDENT CHILDREN. and supplement family resources as to make the home safe for the child, or so to supervise the child as to make his continuance in the home safe for the community. In case of removal, separation should not continue beyond the period of reconstruction. 6. Home care. The aim of all provision for children who must be removed from their own homes should be to secure for each child home life as nearly normal as possible, to safeguard his health, and to insure for him the fundamental rights o f childhood. To a much larger degree than at present, family homes may be used to advantage in the care of such children. 7. Principles governing child placing. Before a child is placed in other than a temporary foster home, adequate consideration should, be given to his health, mentality, character, and family history and circumstances. Arrangements should be made for correcting remediable physical defects and disease. Complete records of the child are necessary to a proper understanding of his heredity and personality, and of his development and progress while under the care of the agency. Particular consideration should be given to children who are difficult to place and who require provision adapted to their peculiar needs. Careful and wise investigation of foster homes is prerequisite to the placing of children. Adequate standards should be required of the foster families as to character, intelligence, experience, training, ability, income, environment, sympathetic attitude, and their ability to give the child proper moral and spiritual training. When practicable children should be placed in families of the same religious faith as the parents or the last surviving parent. A complete record should be kept of each foster home, giving the ififormation on which approval was based. The records should show the agency’s contacts with the family from time to time indicating the care given: the child intrusted to it. In this way special abilities in the families will be de veloped and conserved for children. , Supervision of children placed in foster homes should include adequate visits by properly qualified and well-trained visitors, who should exercise watchful ness over the child’s health, education, and moral and spiritual development. Periodic physical examinations should be made. Supervision of children in boarding homes should also involve the careful training of the foster parents in their task. Supervision should not be made a substitute for the responsi bilities which properly rest with the foster family. , The transfer of the legal guardianship of a child should not be permitted, save with, the, consent of a properly designated State department or a court of proper jurisdiction. In all cases involving the legal adoption o f children, the court should make a full inquiry into all the facts through its own visitor or through some other unbiased agency before awarding the child’s custody. 8. Children in institutions. The stay of children in institutions for dependents should be as b rief, as possible. The condition of all children, in such institutions should be carefully studied at frequent intervals, in order to determine whether they should be restored to their own homes, placed in foster homes, or, transferred to institu tions better suited to their needs. W hile they do remain in institutions, their condition should approximate as nearly as possible that of normal family life as to health, recreation, schooling! and spiritual, aesthetic, civic, and vocational training. 9. Care of children born out of wedlock. The child born out of wedlock constitutes a very serious problem, and for this reason special safeguards should be provided. Save for unusual reasons both parents should be held responsible for the child during his minority, and especially should the responsibility of the father be emphasized. Care of the child by his mother is highly desirable, particularly during the nursing months. No parent of a child born out of wedlock should be permitted to surrender the child outside his own family, save with the consent of a properly designated State department or a court of proper jurisdiction. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES», 2 15 Each State should make suitable provision of a humane character for estab lishing paternity and guaranteeing to children born out of wedlock the fights naturally belonging to children born in wedlock. The fathers of sueh children should be under the same financial responsibilities and the same legal liabili ties toward their children as other fathers. The administration of the courts with reference to such cases should be so regulated as not only to protect the legal rights of the mother and child, but also to avoid unnecessarv miblicitv and humiliation. J The treatment of the unmarried mother and her child should include the best medical supervision, and should be so directed as to afford the widest opportunity for wholesome, normal life.' 10. Care of physically defective children. Special care and educational opportunities for deaf, blind, and crippled chil dren should be provided in the public educational system, local or State. 11. Mental hygiene and care of mentally defective children. The value of the first seven years of childhood from the point of health education, and morals and formative habits can not be overestimated. Through out childhood attention should be given to the mental hygiene of the child— the care of the instincts, emotions, and general personality, and of environmental conditions. Special attention should be given to the heed for training teachers and social workers in mental-hygiene principles. Each State should assume the responsibility for thorough study of the school and general population for the purpose of securing data concerning the extent of the feeble-mindedness and subnormality. Adequate provision should be made for such mentally defective children as require institutional care. Special schools or classes with qualified teachers and adequate equipment should be provided by educational authorities for such defective children as may be properly cared for outside of institutions. The State should provide for the supervision and aftercare o f feeble-minded persons at large in the community, especially those paroled from institutions. Cus todial care in institutions for feeble-minded children should not be resorted to until after due consideration of the possibility o f adjustment within the community. 12. Juvenile courts. Every locality should have available a court organization providing for separate hearings of children’s cases; a special method of detention for children, entirely apart from adult offenders; adequate investigation for every case; provision for supervision or probation by trained officers, such officers in girls’ cases to be women; and a system for recording and filing social as well as legal information. In dealing with children the procedure should be under Chancery jurisdiction and juvenile records should not stand as criminal records against the children’ Whenever possible such administrative duties as child placing and relief Should not be required of the juvenile court, but should be administered by agencies organized for that purpose. Thorough case study should invariably be made. Provision for mental and physical examinations should be available. The juvenile victims of sex offenses are without adequate protection against unnecessary publicity and further corruption in our courts. To safeguard them the jurisdiction of the juvenile court should be extended to deal with adult sex offenders against children, and all safeguards of that court be ac corded to their victims; or if these cases are dealt with in other courts, the facts revealed in the juvenile court should be made available, and special precautions should be taken for the protection of the children, as here sug gested. 13. Rural social work. Work for children needing special care has been neglected in rural parts of the country. Social conditions in rural communities are often as acute as in urban communities. The principles of child care, as enumerated above, are applicable to rural needs. Agencies foy rural service should be encouraged, and should be adapted to the peculiar needs of rural communities. The county is usually the best administrative unit. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 216 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. . 4 14. Scientific information. There is urgent need of a more adequate body of scientific literature dealing with principles and practice in the- children’s field of social work, and the meeting o f this need is a responsibility resting on those so engaged. Careful interpretation and analysis o f methods and results o f care and the publishing of these findings must precede the correcting of many present evils in practice. Boards o f directors, trustees, and managers should particularly consider par ticipation in the preparation of such a body of facts and experience as being a vital part of the work of their staff members. * * * Child-welfare legislation. * * * * The child-welfare legislation of every State requires careful reconsideration as a whole at reasonable intervals, in order that necessary revision and co ordination may be made and that new provisions may be incorporated in har mony with the best experience of the day. In States where children’s laws have not had careful revision as a whole within recent years, a child-welfare committee or commission should be created for this purpose. Laws enacted by the several *States should be in line with national ideals and uniform so far as desirable in view of diverse conditions in the several States. Child-welfare legislation should be framed by those who are thoroughly familiar with the conditions and needs of children and with administrative difficulties. It should be drafted by a competent lawyer in such form as to accomplish the end desired by child-welfare experts and at the same time be consistent with existing laws; https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPEN D IX C.— SELECTIONS FROM OFFICIAL AND OTHER REPORTS. UNITED STATES.1 [National Conference o f Charities and Correction: Proceedings, 1875, pp. 78-79.] CONFERENCE OF C H A R IT IE S H ELD I N CON NECTION W I T H T H E GENERAL M EE TIN G OF T H E A M E R IC A N SO CIA L SCIEN CE A S SO C IA T IO N , M A Y , 1 8 7 5 . Resolutions presented by William Pryor Letehworth, Tice president, New York State Board of Charities, during a general discussion on methods of care for dependent children, and unanimously adopted by the conference, May 13, 1875. R eso lved , That this conference recommend that the various State boards of charities use their influence to bring about such legislation in their respec tive States as shall cause dependent children to be removed from county poorhouses, city almshouses, and common jails, and from all association with adult paupers and criminals and placed in families, asylums, reformatories, or other appropriate institutions. ,. . . R e so lv e d , That this conference also recommend that a systematic plan of visitation of dependent children that have been placed in families be adopted under legal sanction; and that officials having supervision over such children cause periodical reports to be made of them, by guardians, o f their physical condition, moral training, educational advantages, and general well-being, and by thus manifesting a sympathy in their welfare strengthen self-respect and awaken a stronger pride of character in this unfortunate class. [National Conference of Charities and Correction : Proceedings, 1877, pp. 78-79.] CONFERENCE OF C H A R IT IE S H ELD IN CON NECTION W I T H T H E GENERAL M E E TIN G OF T H E A M E R IC A N SO CIA L SC IEN CE A S SO C IA T IO N , SEPTEM BER, 1 8 7 7 . Extract from a debate following the report of the committee on dependChildren in Institutions in New York ent and delinquent children on State.” # * * * * * * T heodore R oosevelt , Vice-President, New York State Charities Aid Associa tion • * * * The institution children are not desirable. They are not able to take care of themselves so well as those children brought up in contact with the world Children should be brought up in the position they are in tended to fill in life. * * * Children educated in an institution are more likelv to fall hack into the dependent classes than children brought up outside in families, not because they are not pure on leaving the institution but because they have not been accustomed to taking care of themselves. I understand that in some counties of the State the dependent children are all placed in families. I think more stress ought to be laid on the matter. Benevolent ladies think that during early years children should be guarded from tempta tion and that this is best accomplished by keeping them in an institution. The fact is, that they are less able to bear temptation when brought up in an institution In the event of dependent children being supported by the State, a law should be passed limiting the time when the State should provide for such children in an institution. They should be transferred to families as fast as possible. R ev . J. H. B radford , representing the State Primary School of Massachusetts; report of statement: Mr. Bradford did not know how it was possible to curse children more than by institutionizing them. H e thought such a proceeding was i The chronological arrangement of the selections from sources serves, in a measure, t© indicate the development of foster-home care. 217 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 218 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. a very great erime. In his opinion, a child brought up in an institution, and kept there year after year, would not become self-supporting. * * * He spoke of the danger of taking children from the street directly into families without previous preparation and advocated the institution as being, in many cases, a preparation for family life, urging at the same time that the stay in the insti tution should be as short as possible. [National Conference of Charities and Correction: Proceedings, 1879, pp. 170-178.] , Extract from a paper by Clara T. Leonard, of Springfield, Mass., through whose activities in connection with The Hampden. County Children’s Aid Society the passage of a law was secured in 1879 prohibiting the mainte nance of children over four years of age in city almshouses, and the experi ment of boarding out the children from the Springfield almshouse was undertaken. Family Homes for Pauper and Dependent Children. It is not necessary, in a paper of this kind, to enter into a long preliminary dissertation upon dependent children— their increasing number, their condition in almshouses or in private asylums. * * * The exigencies of the time demand some new method of dealing with dependent children, which shall be more effectual in training them to be good citizens than any that we have hitherto practiced. There is a growing conviction among philanthropists that asylums and institutions of all kinds for the reception of children should be only temporary places for their detention, so far as is possible. Children can not be well reared in masses. The gradual acquirement of practical knowledge and of manual dexterity, so essential to future usefulness, is hardly possible where the number of children in a house is largely disproportioned to that of adults. In an ordinarily well-regulated family, there is such a diversity of sex, age, and ability that the younger and less capable are educated by the more experienced, imitate them, and are influenced by them, unconsciously and continually. The affections, and the moral nature also, are cultivated in family life and are suppressed and blighted in institution life. In every way the child has great advantages in an average family over children trained in large masses. In comparing results we find the smaller the institution and the more it is directed by individual and voluntary oversight the better is its work. Large public institutions under official superintendence usually,, if not invariably, turn out paupers and criminals by the hundred. Many of these children might have been made good citizens under a more natural form of life. Their failure is not so much from inherited defects as from the fact that moral stamina has been destroyed by a machine life, which creates a spirit of dependence and stultifies the affections and moral qualities. $ $ $ ^ 4: $ It is the earnest desire of many good men and women to see the wards of the State removed, before they are permanently disqualified, from the evils of institution life into respectable family homes. To do this at an early age must be chiefly by paying a small sum for board; and to secure proper care there must be, as we have said, frequent and judicious visitation, both official and voluntary. If the State primary school at Monson could be a mere depot for the temporary reception of children, there need never be more than from BO to 100 inmates at any time, instead of 500 as at present. I believe that it might be, within six months, reduced to the lower number by voluntary and official work combined. The younger - children should be placed out first. * * * The general sentiment of the more educated portion of the community is against the aggregation of children in large numbers for , a long time in institutions and is in favor of family homes under careful restrictions. Many judicious philanthropists also favor the placing out in families of juvenile delinquents of a certain class. I believe that a good number of the latter would improve in an orderly family and find the best training and reformation there. Juvenile delinquents come for the most part from wretched and illgoverned homes. Their aggregation in large numbers only increases their evil propensities. They need dispersion even more than merely dependent children do. To sum up: 1. Institution life, both public and private,. should be recognized only as a temporary makeshift or stepping-stone to a family life. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. 219 2. The younger the child when it enters the family, the more hopeful will be its future in life. The longer the child remains in the institution, the greater will be the prospect that it will be a public burden always. - 3. In order to bring dependent children at an early age into family life, it will be necessary to pay a small sum for their maintenance for a time in many cases. 4. To prevent the neglect or abuse of children by mercenary or unprincipled persons, who take them only for gain, careful supervision and visitation are indispensable. * * * * * * * 8. A small sum may be paid for board; but families who will take children without payment should always be carefully sought. The payment should cease as early as practicable, and the spirit of gain in the whole matter should be carefully guarded against. 9. Religious toleration and concession must be practiced, in order to make the work adequate to the needs of the time. [National Conference o f Charities and C orrection : Proceedings, 1898, pp. 166-169.] E xtracts from the report o f the comm ittee on neglected and dependent children on “ The Care o f D estitute and Neglected Children," by Thom as M. Mulry, chairman. The last conference of charities and correction held in New York City was probably the most representative, as it certainly was the most fruitful, in results upon the subject of child saving. W hile those taking part in the dis cussions held positive views, there was a spirit of toleration; and the inter change of ideas and the moderate expression of views proved that the dif ferences of opinion were not so great as had been at first imagined. The preponderance of opinion seemed to be in favor of placing the children in good homes, where such could be found and the circumstances warranted such action being taken. The good work accomplished by the institutions in the past was fully recog nized, as well as the fact that the institution has an important place to fill in the future on the disciplinary and educational lines and the care o f those children who are prevented by circumstances from being placed in homes. It was said that many children are kept longer than necessary in the institu tion because, having no relatives, there were no persons to claim them ; and such children, it was thought, might well be placed in good homes, provided the families were of the same religious faith as the child. The earlier they are placed in such families, the better it is for the child, as the motive which induces one to take a child of tender years is apt to be more disinterested than when they are old enough to be utilized as help. * * * * * * * Finding Homes for Children. The finding of family homes for children has been taken up enthusiastically and with excellent success in many localities. In New York State the Catholic Home Bureau has been recently organized and incorporated. Its object is to place dependent Catholic children in homes. On its board of management are gentlemen connected actively with the different Catholic charitable societies and institutions. The various institutions have shown their interest in the new organization by placing in its possession the names and conditions of the children who are fit subjects for placing in family homes. The cordial support received from them and from the public generally proves the opportuneness of this movement and the material help it will be in solving the problem of how best to care for dependent children. This assistance and encouragement is by no means confined to Catholics. On the contrary, the help extended and suggestions given by the various societies associated in the same kind of work have been most valuable in advancing the new bureau. One drawback to the placing-out system in the past was the disregard in frequent cases of the religious belief of those placed, which resulted in chil7 2 69 3°— 26-------15 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 230 FOSTER-HOME CARE FOR -DEPENDENT CHILDREN', dresn being sent to homes of a different religion from that in which they were baptized. This naturally presented the unanimous support so essential to the per manent success ¡of .every movement, but the difficulty has been overcome in most instances by providing that children be placed in homes of their own religious faith. The placing-out system needs the most careful supervision ; and those inter ested in the work realize how prone to selfishness people are and that many wish the children only for the work they can obtain from them. There is gen erally a demand for boys and girls from 12 to Id years of age. The main difficulty is to find homes for children from 7 to 11 years of age, and in large communities it will he found difficult to secure desirable homes for all depend ent children. This does not, however, mean "that any effort should be spared to place as many children as possible in good homes; and this committee is strongly in favor of renewed activity in this direction. It is the opinion of some interested in the work that the payment o f board in families would facilitate securing good homes for all children to be placed out. All workers agree that the home Is the natural place to properly develop the child. None doubt that there is a growing tendency on the part of many of the poor to shirk the responsibility of the parents, and to transfer to others the duty which is strictly their own, to hand their children to the public care. * $ * $ * ♦ * Preservation of the Home. Tour committee is emphatically of the opinion th at the ounce o f .prevention Is better than the pound of cure, and it strongly urges upon all charitable people the absolute necessity o f preserving the to m e wherever possible. Do not be in a hurry to send the children to an Institution until you are convinced of the hopelessness of preserving the home. Remember that when the home is broken up, even temporarily, it is uo easy task to bring it together again and that a few dollars of private charity, a friendly visit, ¡a kind word, and a helping hand will lift up the courage of the deserving poor; ¡and this Is half the battle, because discouragement begets carelessness. Our work should not be done fitfully but should he continuous, and not cease until a ll danger of falling ;back into original conditions is effectually removed. Tt is often through -mistaken kindness that, homes are broken up ¡and chil dren scattered, f t is a s had for1 the parent ¡as fo r the child. * Mjt 1fi * ;* * * There ¡are homes In abundance throughout our cities, our towns, our farming sections, for every orphan child, If the people will but open -their hearts and brighten their homes by studying in what way they may best Show their love for their less fortunate fellow-beings. {Second National Conference o f Jewish Charities in th e United ¡State®, 1902, pp. 107—121.1 E xtract from the report o f the committee on dependent children, by Lee K. Frank el, «hair-man. Tour committee on dependent children has deemed it wise to devote its jreport to the present conference to the consideration -of the question of caring for dependent Jewish children through other than institutional means. * * * In order that the ¡report should he representative ¡and, if possible, authoritative, It was deemed inadvisable to make it voice the opinions of any or ,all of the committee, but rather that it should express the views of the Jewish community at large, and in particular that it should ¡reflect the unprejudiced and impar tial conclusions of those who are engaged in child-saving -work. To this end, it was decided to make a study o f the subject from a historical standpoint and to obtain, where possible, information that might permit of subsequent deductions and generalizations. .[As a basis o f study ¡a questionnaire was submitted to Jewish orphan asylums and children’s institutions and to Jewish benevolent and relief societies through out the United States, and from the replies received thh committee framed its report.] https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 221 APPENDIXES. Conclusions. • Tour committee does not deem it essential for the proper treatment o f the subject to introduce any lengthy discussion o f the relative merits of the institu tion and the private home in the care of the dependent child. Both systems have their ardent supporters and detractors, while the results that have been obtained from either could be used to demonstrate Its superiority or inferiority to the other. It is begging the question to cite the example of the girl who has been made the common drudge of the family in which she was placed or to speak in unflattering terms of the boy who has become “ institutionalized ” and bears the institution brand. Like individuals, both institutions and private homes may run the gamut of virtues and vices, may be either models or awful examples. It will suffice to say that the home is a natural product, the institution an artificial one, and that, a ll other things being equal, the former Is to be preferred to the latter. From the standpoint of the conference the important question to consider is the feasibility and advisability of finding proper homes in which Jewish children can be cared for, and not whether the institution is superior to the home or the reverse. It can not be gainsaid that the problem presents great difficulties, O f the 1,000,000 Jews in the United States the large majority are residents in cities. Probably nearly 50 per cent reside in the city of New York, and no one knowing the conditions o f overcrowding and congestion that exist there would advocate any extensive effort being made to find homes in which children could either he adopted or boarded. Again, homes in the country among agriculturalists and farmers are equally impossible, owing to the exceedingly limited number of Jews who are engaged in such industries. On the other hand, the question from the Jewish standpoint is very much simplified by reason of the fact that of the 3,572 children at present in institutions, only 309, less than 10 per cent, are full orphans. It may be assumed that 50 per cent of these are above 8 years of age, and even the strongest adherents of the placing-out system do not advocate placing children over the age of 8 years in private homes, since in rare instances only are they able to overcome earlier tendencies and teachings and to adapt themselves to those intimate relationships which should exist between foster parent and the foster child and which are so necessary to a trne home. On the above assumption there are probably between 159 and 200 children a t present in institutions throughout the United States who have no natural guardians or parental ties and with whom it might be wise to make the experiment of having them boarded out or placed in free homes. In the face of evidence to the contrary, your committee is o f the opinion that sueh an experiment is worthy of a trial. * * * W hile your committee has but few figures upon which to base an opinion, it is nevertheless o f the impression that the placing of many children could be obviated, if the earnings of the surviving parent could be supplemented sufficiently to keep the family intact. This is particularly true in the cases where the surviving parent is the mother. It is Immediately after her bereavement that the poor widow in her anguish and uncertainty turns to the institution as her only refuge, whereas if she could be properly cared for until the first sharp grief has passed away she would gradually come to a realization o f her responsibilities and be willing to assume them If assured of necessary support. There is no doubt that the breaking up o f many families could have been prevented if the mother had been subsidized and had been able to give her children the necessaries of life. I f greater coopera tion could be effected between the institution and the benevolent societies most admirable results would follow. A thorough boarding-out system should first of all consider the possibility of placing children with their own parents, the natural guardians, who have relinquished their proprietary rights through causes that can, in many cases, be readily overcome. * * * * * * * Regarding children in institutions who have both parents living, your committee deem it inadvisable to attempt either placing out or boarding out. The efforts of Jewish institutions with sueh children have always been and should always be directed toward restoring the fam ily to Its normal condition at the first opportunity. I f this can be enhanced by any system o f subsidy or pension it is worthy of encouragement. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 222 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. LNew York Conference o f Charities and C orrection: Proceedings, 1915, pp. 27 7-28 6.] Extracts "from the report o f the special comm ittee of the New York State Conference o f Charities and C orrection on “ Standards o f Placing Out, Supervision, and A ftercare o f Dependent C h ild ren /’ hy Hom er Folks, chair man and Ludwig B. Bernstein, Samuel Ludlow, Charles H. Johnson, Rich ard W. W allace, Jacob Basheim, W illiam J. Doherty, Florence A. Grannis, J. L Reilly, R. R. Reeder, Cecil W iener, Brother Barnabas, C. Loring Brace, Mary S. Haviland, and M. J. Fitzpatrick. * * * * * * * Standards of Placing Out. 9. W hat must we require of the children in the way o f : (a ) H ea lth .— A placing-out society should be fully informed by a compe tent physician concerning the physical condition of each child who is to be placed. No child suffering from an infectious or contagious disease, which would endanger others, should be placed. Children suffering from a physi cal defect, who are not a menace to the community, may be placed in specially chosen homes. (ft) M en ta lity .— No child should be deprived of an opportunity for family life merely because of the fact that he is peculiar, backward, retarded in school, or mentally slower than the ordinary child o f his age. I f his mental deficiency, however, results in such conduct as to be an actual danger to himself or to others under the usual conditions o f family life, he should either be placed in a family home selected for its ability to afford special supervision or in a custodial institution. Border-line and doubtful cases of mental ability should be placed in boarding homes rather than free homes, and under special supervision, pending determination of their mental status. Children pronounced by competent authorities to be definitely feeble-minded should be placed in suitable institutions. In the absence of adequate insti tutional provision, boarding in carefully selected families may be the next best alternative. (c) Character and disposition .— No child should be deprived o f a trial in a family home because of an undesirable disposition or unfortunate habits, unless such disposition and habits constitute a source of actual danger to himself or. to others in the community, which can not be overcome by home life under ordinary conditions. A child whose conduct may be an actual danger to others under the ordinary conditions of family life should either be placed in a family home selected for its ability to afford special super vision or in a reformatory institution. Border-line and doubtful cases should be under special supervision both by the family and by the placing-out agency, pending determination of the necessity of commitment. (d) H er e d ity .— A child both of whose parents are obviously feeble-minded or have been pronounced feeble-minded by competent authorities should not be placed in a free home for adoption but may be boarded in a family under careful supervision until the mental capacity o f the child is clearly established. A child, one or both of whose parents are epileptic, insane, of weak or degenerate stock, or of doubtful mentality, or who are reputed to be feeble-minded, should hot be placed in a free home for adoption unless the foster parents are fully informed as to the child’s history and are able to understand the responsibility they are assuming. I f such a child has reached an age at which his mental, moral, and physical status can be rea sonably determined, he should be dealt with on the basis of his individual capacity and not on the basis of his heredity. * * * * * * * Standards of Supervision. 1. W hat should supervision include in the nature o f : P erson al v isits hy responsible trained agents. H o w o f t e n ?— Personal visits by responsible trained agents should be made as a rule at least twice a year. In cases where there is discontent on either side, or doubt as to the desirability of the home, they should be made as often as necessary. (b ) Correspondence w ith th e fo ste r parents or the ch ild ?— Friendly and, in some cases, instructive correspondence should be carried on with the foster parents. I f the child is placed in a home when from 6 to 12 years of age, (d ) https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES, 223 friendly correspondence may be useful. In the case of a child placed when 12 years of age or older, correspondence with the child should always be maintained. (c) C orrespondence w ith school teach ers? — Correspondence with school teachers of children of school age is desirable, unless in exceptionally good homes where families prefer not to have the teacher know that the child is not their own. The school report should give a record of the child’s formal school progress, his attendance, and general position in the community. (d ) V isits b y or correspondence w ith local volu n teers? — Visits by or cor respondence with local volunteers is helpful in special cases, but under ordi nary circumstances it is best not to emphasize the fact that the child is not in its natural home. 2. W hat should be the character o f a visit of supervision? Before visiting a child, the agent should review the child’s history, and also the original investigation of the home, noting any points suggesting further inquiry. When a child is visited, the agent should observe carefully the con dition of the child, his health, his clothing, his attitude toward the foster parents, whether or not the child is happy, the amount of work he does, his progress in education, where and with whom he sleeps, his opportunities for play and possibilities for social life. The agent should also note the condition of the home, particularly as to cleanliness, order, comfort, the foster parents’ attitude toward the child, their method of discipline, their plans for the child’s future. Any changes in the home or home life should be noted. Agents should be instructed not only to gather information, but to give constructive advice to the family and child. Any child over eight years of age when placed should be interviewed alone. I f any question arises as to the home or the child, some responsible person in the community familiar with conditions in the home should be interviewed. 3. How long should such responsible supervision continue in regard to : (a ) Children w h o are n ot legally adopted? — Supervision should continue until the children reach the age of 21, unless by reason of the exceptionally satisfactory character of. a home and exceptionally close relation between foster parents and the child it becomes evident at an earlier date that further supervision can serve no useful purpose. The form and purpose of super vision gradually changes as the child grows older, involving more and more, as time passes, of friendly advice and counsel to the child in regard to matters of education and occupation. I f the supervision is skillfully done, it gradually passes over from control to friendly counsel, as it does between parent and child. When a child has been in a home for a period of five years or more, and conditions of the home and the development of the child have been satisfactory, an annual visit may be sufficient, or in a few cases in which conditions are similar to legal adoption, the supervision may consist of correspondence only. Supervision in case of older children should always include a consideration of the training of the child in regard to earning and spending money. I f the child was placed in the home when 10 or 12 years of age, some compensa tion for his labor may reasonably be suggested to the foster parents after he reaches the age of 16 or 17, provided he is not attending school. Due allowance should be made for the period of time the child has been in the home and the amount of expenditure the foster parents have necessarily incurred in his behalf. As to children placed out when less than 12 years of age, the wisdom of the foster parent granting a small allowance of spending money to be used by the child in his discretion, with friendly advice, may well be suggested. (b ) Children w h o are legally adopted? — Responsible supervision, of course, stops when, legal adoption takes place. It is desirable, however, that placingout agencies should, when practicable and when it can be done without danger of disturbing the relations between the child and the foster parents or the community, secure information from time to time as to the subsequent careers of children who are legally adopted, both for the practical reason of being able to answer criticisms as to what finally becomes of such children and for the scientific reason o f being able to form an increasingly wise judg ment, as time passes, as to the operations of heredity and environment. Placing-out agencies should therefore be careful to place on record all infor mation which comes to them in - the ordinary course of events concerning children who have been legally adopted and also, in so far as it is practicable for them to do so, with the consent and approval of the foster parents, to https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 224 FOSTER-HOME CARE FOR DEPENDENT CHILDREN*. keep Informed by correspondence with the foster parents or others, as to the welfare o f the child unto it reaches majority, or even subsequently. Nat urally, very great care must be taken to see that this is not done in such a way as to cause embarrassment either to the child or the foster parents. 4. Standards o f adoption. (a ) H o w long a tim e should elapse a fte r placing out b efore an application fo r legal adoption w ill be con sid ered? Should a n y exception to this standard period be p erm itted ? — A t least a year should ¡elapse before consent for legal adoption be considered. Some agencies require two years. In special cir cumstances, such as a change of residence or in matters o f inheritance, con sent may be given sooner if the fam ily is unquestionably a good one. (&) W h a t children, if any, should n ot be legally adopted? — It is wise to delay permission for legal adoption o f children in whose fam ily stock, on one or both sides, there is clear evidence of mental defect. However, i f the foster parents, having been fully informed o f the child’s history and being suffi ciently intelligent to realize the responsibility they are assuming, still desire to adopt the child and are willing that the placing-out agency should keep in sufficiently dose touch with the child to be able to suggest and assist in securing custodial care for the child should mental deficiency develop, con sent for adoption may be given. Special effort should be made in such cases to keep informed as to the welfare o f the child during minority. (c) W h a t standards should be required as to fam ilies to w hich consent fo r legal adoption w ill be g iv e n ? — The standards required as to families to which consent for legal adoption should be given are not materially different from those which should be required in ease o f the original placing out. Consid eration of permission for adoption should, however, include careful inquiry as to whether subsequent events have fully confirmed the judgment which approved the home originally. Consent for adoption m ay appropriately be delayed or withheld if there is lack of sufficient intelligence or income in the family to give reasonable assurance o f the maintenance ©f high standards o f training and education without supervision from the placing-out agency. Standards o f Aftercare. It is assumed that after definite, formal supervision is finished there will be, In some cases at least, an opportunity, and in others, perhaps, a necessity for aftercare. How far should this be carried out by a society which has placed out children in families in the following respects: (a ) In seeking in form ation as to th e su bseq u en t progress o f children w h o h a v e been legally adopted.— -By consent of foster parents, supervision after adoption is desirable for both scientific and practical purposes, as iu this way complete records o f the child’s development can be kept, and a study of these helps In making it possible to revise present methods of work in dealing with children who are placed and those who are to be selected for placing. (b ) I f th is should be done at all, h ow should it be done, how o ften , and until th e child reaches w h a t a ge? — It should fee done fey correspondence and, when convenient, fey friendly personal visits, but care should be taken that the fact of the adoption is not disclosed or emphasized. Such visits every second year are sufficient until the child is of age and self-supporting or married. I f after adoption is completed there is a radical change in the family life, such as the death of one of the foster parents, or if the child has developed iu any way abnormally, regular supervision should be maintained. (c) I n the case o f children w ho have not been legally adopted, but w h o are esp ecia lly prom ising in so m e line., how fa r should th e so c ie ty g o in, securing opportunities fo r special education, training, or care in th ose lin es? — A s much as possible should be done in securing opportunities for special training for promising children, even after formal supervision has stopped. (d ) I n the case o f children no longer under definite, form al supervision but w h o h ave developed w ea kn esses or tendencies to go w ron g, how fa r should frien d ly in terest and in form al su pervision continue , and to w h a t a g e? — In the case of children who have developed subnormal or abnormal tendencies formal supervision should, if possible, continue until the child has been committed to some special institution, placed iu the care of some responsible organization, or until some private individual assumes the responsibility or permanent Interest. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES, 225 [National Children’ s Home and Welfare Association: Proceedings of the Annual Conference, 1919, pp. 11—21.] Extracts from “ Standards of Child-Placing and Supervision, a Committee Report,” presented to the annual conference of the National Children’s Home and Welfare Association, by Wilfred S. Reynolds* chairman, A. H. Stoneman, and Mrs. F. B. L. Bailey. The Children’s Home Society movement started ont to apply home life, which is in the words of the W hite House Conference “ the highest and finest product of civilization ” to every child who was found deprived of it. In its enthusiasm the movement may have sought home life in the foster home rather than the slower process of developing and safeguarding home life for the child’s own fam ily or those of its relatives. But it must be remembered that many of these societies were pioneers in their given communities and States. They were compelled to proceed unguided in the more extended methods of child welfare. A vision, however, of more constructive social work, taking into its purview not only an isolated child but rather the child as a member of its family, of a, widening circle of relations and friends, an element in a neighborhood, school, church, and finally its relationship and its rights in the governmental unit o f city, county, and State— this vision has become clearer and brighter until to-day any movement in child welfare can not excuse itself if it has failed to see the light and the way. No longer can a child-placing agency maintain a position as rival to the institution but must find with the institution its complementary position; it is folly for a child-placing agency to think its service is in no way related to the service of agencies dealing with families in distress, but rather seek counsel, and many times assistance of such agencies in making it possible for the child to remain in its own fa m ily; it is most unwise for the child-plac ing agency to maintain a critical and aloof attitude toward the particular court organization and operation with which it may have contact, but better assume, the position of offering to act as an arm of the court to serve in an administra tive capacity in the care of children whose problems may be the court’s consider ation ; and finally it is safe to point out that the most serviceable child-placing agency is that agency which finds its proper place among the other social-work agencies and does its details o f work in light of the most improved case-work methods. These observations the committee makes, in view of their bearing upon standards which are later presented. Standards in Agency's Earliest Contact with Child. The foundations for the most successful child placing reach into the society’s policies in its earliest contacts with its cases. The success with which a child may meet in the foster-home arrangements may depend very largely upon the consideration given the case at the time the agency was asked to make a plan. Standards to be applied in the process of determining upon the acceptance o f cases are very important. In this regard the first task is for the society to determine upon the types of cases for which it is equipped to render service. An adequate inquiry into the social status involves: 1. Investigation of parents and other children of the family, ascer taining facts pertaining to personal history, marital life, phys ical and mental health, conduct, habits, character, education, industry, income, financial stability, etc. 2. Investigation of maternal and paternal grandparents, aunts and uncles, covering largely the same items of concern as in cases of the parents, with especial regard to ability and fitness to assist in child’s care or in a plan therefor. 8. Investigation of all secondary family resources, such as distant relatives, friends, or acquaintances, for the purpose of obtain ing resources o f care. 4. Investigation of and consultation with community resources, such as the school, church, clubs, legal agencies, public and private family-relief agencies, etc. & The social status of children born out of wedlock should be de termined by the application of the same standards of investiga tion as that o f children born of legal parents, although the manner and method of approach and inquiry may necessarily Change according to the demands o f the case. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 226 POSTER-HOME CARE FOR DEPENDENT CHILDREN. An adequate inquiry into the -personal status of the ehild involves: 1. The physical and mental health of the child. To determine this all children should have thorough physical examination by a medical person especially qualified to make the kind of exam ination so necessary in these cases. A ll infants and children whose parental or social history is such as to indicate specific physical trouble should have the Wassermann test; likewise blood tests for tuberculosis should be given. 2. All children over six years of age, whose conduct or whose parental and social history indicates possible mental defects should be given a psychological examination. 3. In cases of children of school age, there should be an under standing inquiry as to the child’s conduct at home, in school, and in the neighborhood, his school experience and record, and the experience of persons who have had a definite con tact with the child. Choosing Method of Care. It will be readily observed that in an adequate scheme for the selection of cases applying to a society, the type or method of care to be applied to an accepted case in many instances will be quite clearly indicated. Moreover, it is equally apparent that the child-placing society proposing to serve its com munity adequately must provide more avenues of treatment than the per manent free foster home. A s our societies have endeavored to meet this need of adjustment and have adapted their programs to the various types of children in various degrees of distress, there has been a modification of child placing. From the rigid policy of the use of the free foster home for adoption only, there have been developed by some of the societies all of the follow ing: 1. Use of an institutional receiving station for the intensive treat ment of children before placement in families. 2. Use of the foster boarding home for temporary or more length ened period of care. 3. Use of the free foster home for adoption and for a long period without adoption. 4. Use of institutional treatment and training for cases not re sponding to home care. 5. Rendering assistance to parents enabling them, under the society’s supervision, to retain and care for their children. The importance of the proper application of the foregoing avenues of care and disposition of cases, and the value of accurately determining the child’s social and personal status through good case-work methods, as pointed out previously in this report, now become evident. Time forbids the discussion of the various types of children and the partic ular phase or combination of phases of the foregoing avenues of care to be applied; but since this discussion is to develop standards of child placing, it is important to point out the classes of children for whom foster-home care seems best suited. Free and Boarding Foster-Home Care. The term “ free foster home ” means a fam ily home in which a dependent or neglected child lives as a member of the family, without compensation to the family for his care. , . . . The free foster home always has some inherent desire for receiving the child, which, if legitimate, is important at this point in its bearing ^upon the general tvpe •of children to be placed in such homes. These legitimate de sires may be to satisfy the natural longing of disappointed parenthood; it may be to supply companionship, or it may be to provide reasonable service to the family in return for which the child receives all the necessary elements of life, comfort, and happiness. Children to be suitable for placement in free foster homes, therefore, must, have no relationships with their parental sources that will disturb the foster arrangement, and they must be physically and mentally normal or capable of reasonably rapid progress toward a normal condition; and if apparently normal physically and mentally, there ^ should be nothing in their parental or social history that would strongly indicate a later development or appearance of serious abnormality. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. 227 The term “ foster boarding home” means a fam ily home in which a dependent neglected child lives and for whose care the fam ily receives compensation. The boarding home should be used for the care of— 1. A ll infants pending decision as to probable physical and mental conditions and development, as rapidly as this plan can be developed, except where adequate facilities are provided in receiving institutions. 2. All infants with physical defects and those whose histories indi cate mental abnormalities. 3. Physically and mentally defective children whose conditions are not so acute as to demand hospital or institutional treatment. 4. Children of temporarily broken families whose rehabilitation is probable in reasonable time. 6 Older children whose conduct indicates mental or moral difficul ties but not so acute as to demand institutional care. or . S'election of the Foster Family. • * * * * # # . It is impossible to set out in detail all the items of information that the visitor should seek, and recommend their application in every foster-home investigation, but it is possible to designate essential elements of personal and family life and their presence in their proper respective relationships in a given family that should constitute the basis for the approval of the family to receive a child. These elements of family life may be designated as follows : 1. Income or financial support and stability.— It is impossible to indicate a family budget or income that would be applicable in all parts of the country, but the family income should be sufficient to keep the fam ily in comfort, provide for education, recreation, and all family exigencies without requiring earning efforts on the part of the wife, child or children under 18 years of age, except in agriculture or domestic pursuits of the family, and in addition, there should be assurance of reasonable savings in form of bank accounts, real estate, stock, etc. 2. Health, physical and mental.— The exact state of physical and mental health of the members of each prospective foster family should be known,, and no family should be accepted as a foster family whose members, or any o f them are suffering with disease or defects that to any degree would contribute to the detriment of a child living in the family. 3. Education.— No definite amount of formal education should be required further than that the man and wife should have equivalent of at least eighth grade in public schools. The adult members of the family must show a con vincingly favorable attitude toward formal educational training and in some manner agree to provide for and encourage school attendance in accordance with the society’s requirements for the particular child assigned to the family. 4. Moral and ethical standards.— Honesty and uprightness in business and all social relationships must be assured on the part of the family group. A definite indication that the same elements will be instilled in the child must be evident. Any convincing indication that the child’s moral, spiritual, and patriotic development will be hampered or not stimulated should constitute cause for rejecting the home. 5. Temperamental qualities.— Personal peculiarities of a temperamental character should be observed and followed up to the point of evaluation ; those o f a neurotic type are likely to have a definite bearing upon the adult’s relation to a child. Families in which a member, espécially man or wife, possesses neurotic peculiarities which may be exaggerated by the care of a child should be withheld from use as foster homes. 6. Housekeeping and home making.— On this point one must be influenced not so much by what the family has in the way of household equipment as how they use it and what is made of it. The general appearance of the house and premises should indicate cleanliness and a reasonable degree of thrift, order, and comfort. The house must present adequate arrangements for living and sleeping, so that a child will be provided with his necessary demands as a member o f the household. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME CARE FOR DEPENDENT CHILDREN, 228 7. P u rpose o r desire o f th e fo ste r fa m ily .— The purpose stimulating a family to assume the care of a foreign child must he legitim ate; that is to say, what ever may be the underlying motive, the foster family must he capable and ready to give a child all its necessary requirements for life, growth, and satis factory development. Such capability on the part of foster parents is not in consistent with the desire to have an older boy or girl in the family to perform light tasks and function with a degree of value to the household ; nor is it inconsistent with the ambition of a foster mother to earn for some special reason by receiving compensation for her care of a child at board. These foster parents may be just the folks to be most helpful to their foster children. * * * * * * * Supervision. * * * * * * * Granting a favorable beginning, there are two qualifications that are primary In supervision: (1) The visitor must be qualified for her task, and (2) her volume of work as to number of families and size of territory must admit of Intensive observation and service in terms of each child. The qualified visitor, after familiarizing herself with all that has gone be fore as to child and family, must be able to sense the degree in which the foster home is meeting the fundamental needs o f its child, and likewise she must be able to measure the degree to which the child responds to the family’s offering. „ , „ „ A standard for the volume o f work per visitor in terms of number of families and size of territory is difficult to establish for universal application. Each society must work this out according to conditions throughout the various sec tions constituting their fields o f activity. A s a general statement it is sug gested that, depending upon problems involved, the number of families under supervision’ should be such as to enable the visitor to establish a real acquaint anceship with her families and reach them on the average once in each quar ter__ w hich in practice means that cases in permanent care and well established in the family may be visited once in 12 m onths; temporary boarding cases, many demanding special attention, once in two weeks or a m onth; wage-earn ing and restless older children, from one month to two months; and so on through the various degrees of special demands for supervision. Some societies have found that in sections containing families with children presenting a rather even distribution of problems, one visitor is able to care for from 50 to 60 fam ilies; in other sections, particularly the more rural, in which are families caring for children presenting less difficulty, one visitor may care for from 50 to 100 fam ilies; in certain instances where a visitor is special izing on wholly problem cases, such as a group o f wage-earning or special training arrangement cases o f older boys and girls, one visitor can be responsi ble for about 25 or 30 children. Further than the character o f suggestions regarding standards o f super vision which are here offered, it is possible only to point out that the constant standard by which a society must measure the supervision of its children is that at any given time the responsible direction of the society’s service is con fident that the children in foster families are receiving their just and reason able demands and are responding in a satisfactory degree to the families’ efforts. In concluding the discussion of this phase o f the report, it may be helpful to enumerate a few points by which the societies may “ check up ” their schemes e f supervision: ^ , , 1. Each child-placing organization should establish a department of supervision of children in foster homes and assign to that department a qualified personnel. Tlie supervision department should recognize the various types o f problems presented and endeavor to understandingly meet them. * * * 8 Visits of supervision should be not less frequent than each 12 months and as frequent as the given case may require. A visit very soon, after placement is essential. 4. A memorandum o f such information gathered from time to time as may add to or change that already on file. & Frequent consultation between visitor and director o f super vision regarding cases. 2 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES, 229 6. Occasional conferences o f visitors for discussion o f specific cases, review of standards and requirements, and for exchange o f experiences, suggestions, and questions are very necessary. 7. Correspondence with the society on the part of the family should be encouraged, and on the part of the child in cases of older children having been placed after 10 years of age. 8. Reports from school teachers should be systematically arranged for. 9. Adoption should not be consummated under six months after child is placed in the family and should be immediately pre ceded by a visit by the society’s visitor. GREAT BRITAIN. [Royal Commission on the Poor Daws and Relief in Distress: Report presented to both Houses of Parliament by eommand of His Majesty. Parliamentary Paper Cd. 4499, pp. 183-185 and 619-620. London, 1909.] Extracts from the Report of the Royal Commission, Part IT, Chapter 8, “ Historical Development and Present Condition of the Various Branches of the Poor Law : The Children,” on the boarding-out systems under the local government board. Boarding Out. 378. Many difficulties in dealing with children are avoided where guardians are able and willing to adopt the system of “ boarding out.” In this case the expense is comparatively small and involves no capital outlay ; when the system is well managed a real home life is secured for the children, and they enter into industrial life upon the same terms as the children of the independent working class. On the other hand, it is more difficult to be certain that they meet with kindly treatm ent; and they share in none of the special advantages enjoyed in poor-law schools. Moreover, under the present regulations of the local government board, the class which ean be dealt with in this way includes only children between the ages of two and ten, and upon whom there will be no rival claims to those of the foster-parent, i. e., the orphans and deserted. 379. In England a sharp distinction is made between “ boarding out within the union ” and “ hoarding out without the union.” The first system has been of long standing under the form of outrelief. The first order regulating it was that of the local government hoard, September 10, 1877, entitled “ Outrelief within tJnions to Orphans and Deserted children.” * * * Boarding out without the union w as first sanctioned by the poor-law board in 1870, by an order under which “ Committees o f ladies and gentlemen, o f no less than three in number, all voluntary and unpaid, were authorized to re ceive and place out in their neighborhood children chargeable to unions other than those in which the places where the children were boarded out were situated.” The order contained rules as to the visitation of the children by the committees, as to the character of the homes in which they were to be placed, and the number o f children allowed in each home, etc. 380. In 1885 an Inspector was appointed to visit and report upon the com mittees, the children, and their homes. Two more inspectors have been ap pointed since, and a very complete system of inspection has been elaborated by them. It is this inspection, with the greater security which it affords to the children, which constitutes the main difference between hoarding out with in and without the union. W ithin the union committees are optional and there is no inspection by the local government board; without the union both committees and inspectors are compulsory. 381. Our investigators have examined carefully the working of both sys tems and are of the opinion that boarding out within the union is liable to be very unsatisfactory owing to lack of proper supervision. * * * 384. Our investigators report much more favorably upon boarding out with out the union, as carried on under committees and inspectors: "T a k e n as a whole the supervision of the boarding-out com mittees visited in the course o f this inquiry was wonderfully good and contrasted very favorably with supervision by guardians and relieving officers.” https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME CARE FOR DEPENDENT CHILDREN, 230 . £Lg£Ul l • . 1 1 “ Boarding out, especially in country districts, is certainly the best method of dealing with the small minority of pauper children eligible and suitable for boarding out, and especially for girls. I have never myself seen children from any sort of poor-law home or institution making friends or playing with their schoolmates on terms of equality, though I was told they did so at Ponteland. Boarded-out children, on the other hand, can be just the ordinary children of the place, sharing in all its life. “ Boarding out, when properly supervised and with an active and wise boarding-out committee, is, I believe, the ideal system for both boys and girls, but especially for girls. Suitable homes, however, are not easy to find.” 385. Our medical investigator, Doctor Me Vail, reports to the same effect: ** I am strongly of opinion that as far as possible the rearing of pauper children should be done in the country, not in the tow n; and the holding of that opinion is partly why I prefer boarding out to scattered homes.” ^ ¡|( :•< jJc 4* 386. Notwithstanding the advantages of boarding out, it is but little adopted In England. The number of children boarded out without the union has dimin ished during the last 10 years, touching the lowest point three or four years ago, and on 1st January, 1908, stood at 1,876. The number of those'within the union, on the other hand, was slowly rising until the year 1907, when there was a slight decline, and on 1st January, 1908, the number stood at 6,689. A s compared with the 46,251 orphans and children “ relieved without parents.” these numbers are very small and contrast sharply with those in Scotland, where 92 per cent of the orphan, deserted, and “ separated ” children were boarded out on 15th May, 1907. The reason for the difference is not very clear. The chief inspector, Miss Mason, sa y s: “ The supply of committees and homes is still quite unequal to the demand, and there is still need for fresh ones in places where none exist at present.” In Scotland there seems to be little difficulty in finding suitable homes. The difference is sometimes attrib uted to the different characteristics of the two nations. Sometimes, again, it is said that there is too much inspection in England and that it is resented by foster parents. * * * , . . 389. W e can not say that it is proved that the existing system of supervision adds appreciably to the difficulty of finding suitable homes in England, and whilst strongly advocating the extension of boarding out as far as possible we do not recommend any relaxation in the care exercised. The present supervision within the union we consider to be as a rule quite inadequate. 390. In our opinion it would be right that in all cases the fullest inquiry should be made into the character of the foster parents and the suitability of the home, before rather than after the children are handed over. I f this were systematically done it would greatly lighten the subsequent task of supervision and not improbably tend to produce a better class o f foster parents than can be found at present. W e are o f the opinion that the principle fol lowed in the orders which regulate boarding out, whereby it is laid down that no person is eligible as a foster parent who does not profess the same religious belief as is indicated on the creed register of the child, should be applicable in cases in which persons receive poor-law children for adoption. Extracts from the report of the Royal Commission, Part IX : “ Review of Existing Conditions and Proposed Changes: The Children," on the relative places of the existing systems of caring for poor-law children. 82. W e may briefly summarize our opinion upon the different systems of dealing with poor-law children now in force. 83. First o f all, we are strongly of the opinion that effective steps should be taken to secure that the maintenance of children in the workhouse be no longer recognized as a legitimate way of dealing with them. W e put this in the forefront of our recommendations. 84. As to the other systems in force, viz : District schools grouped cottage homes, scattered homes, boarding out, we consider that each system has its merits and its drawbacks and that more depends upon ' the administrators than upon the system. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. 231 85. The district schools, established first in 1844, give an excellent education, and those trained therein do well in after life.' W e do not indorse the whole* sale condemnation of these institutions by the committee on the care of poorlaw children in 1896. All large schools have inherent evils connected with the aggregation of children of various ages, and the district schools are not free from such defects. W e would not, however, in any case, recommend the multiplication of large institutional schools, as we think there are other methods of education and training, particularly for girls, which are more adaptable and produce better results. 86. Grouped cottage homes, introduced in 1867, give an excellent education and training, but there are grave objections to their elaborate construction and equipment and the growing cost of maintenance in them. 87. The scattered homes, which have the great advantage of involving very little capital expenditure and of securing a kind of home life particularly valuable for girls, have been increasingly adopted by other unions since they were, started in Sheffield. Such homes, when closely supervised and under competent foster mothers, promise good results. 88. Boarding out is another method of training children which might and should be greatly extended. Here the expense is comparatively small and involves no capital outlay whatever, and where the system is well managed a real home life is secured for the children, and they enter upon industrial life on the same terms as the children of the independent working classes. In Scotland it is the general system for the upbringing of poor-law children and there it works exceedingly w ell; but a most careful and constant super vision over all such children is indispensable, and where such a system of inspection can not be had, boarding out ought not be attempted. So far as our evidence and special investigations go, the system of boarding out within the union has been liable to be very unsatisfactory owing to lack of proper supervision. W e have recommended that the work of supervision of boarding out within the union by the public-assistance committee should be placed in the hands of competent women officers and that special care should be taken when the boarding out is with relatives. J*®’ ^ e. Griffis also that in all cases there should be systematic records of the after life of children leaving the care of the public-assistance author- [Royal Commission on the Poor Laws and Relief in Distress: Appendix, Volume I A — Appendices to minutes of evidence. Parliamentary Paper Cd. 4626, p. 398J Extracts from the statement of evidence handed in by Miss M. EL Mason senior inspector of boarding out, local government board. [Inspector of boarding out for 21 years ; for 13 years inspector of the whole of boarding out beyond the union in England and Wales.] * •. Practical Results of Boarding Out, For many years past I have repeated that boarding out is either the best oi the worst of systems. The English system of boarding out beyond the union is the best. Its organization and administration are so complete and satisfactory that I could not offer any further suggestions for its perfection and only hope that it may not be disturbed in any way. * * * The advantages of the boarding-out system are : (a ) It is the cheapest. * * * There are no building estab lishments nor staff expenses. There are besides, only the salaries and traveling expenses of three official inspectors. ,(b) A natural life teaches the children how to mix with the world and take care of themselves. They learn the value of money by errands to the shops, and so on. And though ordi nary cottage life does not train girls for domestic service in larger houses, they learn the ordinary domestic cottage life against the time when they become wives of laborers or workingmen. (c ) As to boys, the boarding-out system is to some extent ft means of bringing laborers back to the land. * * * https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 232 POSTER-HOME CABE FOR DEPENDENT CHILDREN, (d ) In a certain really attacked and sometimes or do more for 4 * proportion of cases the foster parents become to the children, who thus gain a real home fathers and mothers who could scarcely care them if they were really their own. * * * * * (e ) But the greatest advantage of the boarding-out system is one possessed by no other, in that the child has a foothold in the world and friends, or at least acquaintances and a place to return to between situations or on a holiday when in serv ice. In this respect all poor-law and most voluntary institu tions are alike. None o f them can receive the children hack in after life as to a real home. In this respect the cottage home or “ scattered home,” however small and however home like ft Is made to appear, has not the smallest advantage over the largest “ barrack” school. But it is almost the universal rule that boarded-out children thus return in after life to their foster parents, and this is equally true whether the home be good or bad, for the child knows no other.* * * T h e fact that a child thus returns is not proof of the satis factory character of such a home, but it is proof o f the ad vantages of the boarding-out system generally; and what ever the motives of the foster parents the child still has a home of some kind. But it shows the extreme importance of placing children only in homes where the influence that is to last through life shall be good, moral, and wholesome. ( f ) And one of the principal advantages of the system is that committees, whatever their shortcomings in other respects, as a rule take the utmost trouble in finding situations for the children and looking after them when out in the world. m * * * * * * The boarding-out system, properly administered, is undoubtedly best for those children for whom it is suitable; but they are limited in number. E x perience has shown that it is not advisable to board out children under 2, as a ru le; but i f in any special eases it is advisable to do so, the local govern ment board would always consider the exception. Experience has also shown that it is not desirable to board out children over 10, except in order to keep brothers and sisters together, as older children are taken and regarded as servants and drudges. * * * * * * * It is therefore not only quite unfair but quite beside the point to compare the results of the boarding-out system with those of any other; for the board ing-out system takes only picked and selected cases, whereas the poor-law schools, etc., are obliged to deal with all, temporary and permanent, including the rejected and returned from boarding out. fRoyal Commission on the Poor Laws and Relief in Distress: The condition of children who are in receipt of various forms of poor-law relief in certain, parishes in. Scotland. C. T. Parsons, assisted by Mary Longman and Marion Phillips. Appendix, Volume XXIII. Parliamentary Paper Cd. 5075, pp. 53, 54, 102. London, 19%.] . Extracts from the “ Report on the Inquiry into the Condition of Children Boarded out in, Scotland.” Date and Scope of Inquiry. The number of children boarded out by Scottish parishes was 6 ,6 1 7 on May 15th, 1906. One thousand and nine hundred and three of these, or nearly 29 per cent, were boarded with relations and the remaining 4 ,7 1 4 were with strangers. The returns do not show how many were boarded within the area of their own parish and how many outside of it, hut broadly speaking, all those boarded with relations and a few o f those with strangers belong to the former class, while the great majority of those with strangers belong to the latter. There will, therefore, be less than 4 ,7 0 0 children boarded out in parishes other than the one which is responsible for them, and over 1,9 0 0 Within such parishes. It may further be said that the former children, un- https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 23a APPENDIXES. less in exceptional cases, are placed in rural parishes, while the latter are most numerous in the large centers of population. In a large burghal parish such as Glasgow, the policies followed in boarding out children within and without the parish are entirely different. The aim of the authorities is to place the children in their care, whether orphaned, de serted, or separated from their parents, in the healthy surroundings of the country, in homes deliberately selected for them. The children in the city are called exceptional cases and they are not examples, as the officials put It, of “ real boarding out.” In these cases the parish has not sought for the guardians o f the children, but the guardians have sought the help of the parish. The children have been left destitute, and fam ily affection or pride has made their relations desire to keep them in their homes and not let them go com pletely under the control o f the parish in Hie poorhouse or in a stranger’s home, and application has been made to the parish to have help in clothes and money. * ■* * The questions to be considered before paying for the -child to be kept with a relation or friend are whether the home is a good one in which the money paid for the child will be used for the child and where he w ill be kept clean, tidy, and well clothed, and be well trained and healthy. The inducements to leave the child with relations are those of preserving family ties, keeping the child in a home which appeals to him as a natnral resting place and o f not taking him from those who feel that their Interests and his are inter dependent, and finally the very great difficulty, and often cruelty, of parting children from grandparents or others where there is a strong personal a t tachment. For this reason children are sometimes boarded out in homes not altogether desirable. Indeed the children are often better off so, for the re lations would not give them up and the parish pay and supervision in some parishes undoubtedly keeps the child in better circumstances than he would otherwise enjoy. The guardian enters into the usual boarding-out agreement with the poor-law authority and thus control is kept over the child’s well being. * * * * * * * Children Boarded Out in Landward Parishes. * * * * * * * A ll the children, except the one special case already described belong to one o f these classes [orphans, deserted, separated]. That is to say, -the par ish has taken the responsibility for their upbringing in place of the parents who have either died, deserted the children, or shown themselves unfit to have the care of them, and by deliberately selecting the homes in which they are to be placed, it has accepted the responsibility more fully and definitely than it does in the case of children who are boarded out with their own re lations. The homes are found in various ways. Sometimes the inspector o f a burghal parish applies to the inspector of a landward parish for the names of suitable guardians, and the latter broaches the subject to any people whom he considers likely to make good foster parents. Sometimes the intending foster parent asks to be supplied with children. In Lanark, however, there are special conditions. It contains a considerable Roman Catholic popula tion, and cliildren of that creed have for many years been boarded in the} district. The priests try to find as many suitable homes as they can, and their parishioners are glad to oblige them. B y now the rearing of parish children has become almost an industry. * * * * * * * General Summary and Conclusions. * * * * * * * The number of dull children is very high in the institutions. This is un doubtedly in part due to the fact that many feeble-minded children are kept la these institutions, owing to the difficulty of boarding them o u t; but it is https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME CARE FOR DEPENDENT CHILDREN, 234 also due, .to a certain extent, to the deadening effect of institutional life, the tendency of which is to deprive children o f initiative and of individuality. I t will be noticed from the teachers' reports that these institution children do not do so badly in sehool, but they present a decidedly higher degree o f shyness and lack o f adaptability than is the case of children living outside. * * * * * * * I formed the opinion that the hoarding-out system was in most cases far better for the child than bringing it up in institutions. The poorhouse is a most undesirable environment for a child to grow up in, and it is impossible to condemn too strongly those eases in which the child lives and attends school within the poorhouse and never mixes with children outside. Quite apart from the unnatural conditions under which the child grows up and its lack of knowledge of the world, the staffing of the institutional schools is usually so small that the child must suffer considerably in its ordinary edu cation. Receiving homes should be provided for children whom it is not de sirable for any reason to board out or who are not likely to be long charge able. These receiving homes should be quite separate from the poorhouse, and the children in them should attend the local schools. [Home-Department Committee on Child Adoption : Report presented to Parliament by command of His Majesty, 9 February, 1921. Parliamentary Paper Cmd. 1254, pp. 4-5.] Extracts from Part I : “ Question of Legal Provision for Adoption in This Country,” o f the report of the committee appointed to consider the desir ability o f making legal provision for the adoption of children in England, and, if so, what form such provision should take. 9. * * * The committee are clearly of the opinion that legal provision should be made for the adoption of children in this country. W e are further of the opinion that the question is now urgent. 10. Although differences on many points of detail are manifest, there is con currence amongst the witnesses who have experience in social work that the number of persons desiring to bring up some Child or children, who would be treated in law and generally regarded as occupying the position of natural and lawful children, has very much increased. No doubt this is due to various causes, of which the loss that many families have sustained in the war is one. There is also reason for thinking that the interest in child life and child wel fare is growing both in this and many other countries. W hile some o f the wit nesses having great experience in dealing with children regard with appre hension the possible results of a widespread system of adoption without careful safeguards, all agree that some system of regular legal adoption is desirable. 11. There is no doubt that in any event adoption, whether legally recognized or not, will take place under agreements entered into sometimes unwisely and without due premeditation, though such agreements may not be legally binding. It is generally recognized that in the interests of both the adopting parent and the child, adoption should be regulated by law and definite legal effect given to it. The experience of other countries similar to our own, to which allusion has been made, points in the same direction; and the evidence which we have heard shows that as regards children for whom their natural parents provide no proper home, it is as a rule very much better to place them in some other home as members of a family under the care of a suitable and responsible person, between whom and the children a tie of affection is likely to be established, than that the children should be gathered together in an institution with a number of others. Cases of clearly marked serious physical or moral defects are generally best provided for in institutions, but family life should be the normal condition. 12. Experience has shown that in the case of many children who are placed under the care of foster parents a tie of real affection grows up between the child and the foster parents with whom it is left. This experience of social workers is borne out in a remarkable way by statistics furnished to us by Doctor Menzies, one of the medical advisers of the London County Council, which show that in the case of a large percentage o f the children who have been thus placed, the foster parents desire to retain the care of the children, in spite of the trouble and expense to themselves, from genuine love of them and interest in their welfare. * * * https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. 235 14. Most o f those who have practical experience o f the subject regard it as o f the utmost importance that the tie between the natural parent and the child should not be broken except for some strong reason to secure the welfare' of the child, but the next best thing to the care of the natural parent is that of the adopting or foster parent who takes personal interest in the child and brings it up in normal family life. In all cases no doubt the wel fare o f the child is the question of paramount importance; but it is right also to recognize that i f the natural desire o f many persons who have no children of their own to have the care and bringing up o f some child could have legitimate satisfaction, that too is a proper object to aim at. Such a desire is often one of the strongest feelings of human nature and is in itself the best guaranty for the welfare of the adopted child. 15. Incidentally, it is worth mentioning that the cost of bringing up and suitably maintaining a child at home may be very much less than the sum required for its maintenance in an institution. * * * O f course in differ ent institutions the relative cost of maintenance may vary considerably; but we have no doubt that to bring up children in an institution is both more costly and, except in the case of certain special classes, not so good for the child as residence in a family. IRELAND. [Vice-Regal Conuoi^ion on Poor-Law Reform in Ireland; Report presented to botli Homses of Parliament by command of His Majesty, Parliamentary Paper Cd. 3202, pp. 4o—47. lyOb.J ’ .Extract from Chapter X I I I : “ Children Between Infancy and Maximum Limit Age, on boarding out as a method of care for children under the poor law m Ireland. 185. As regards children to be supported out o f the poor rate, we have received evidence almost universally in favor of empowering the local poor authority to board out all children above the age of infancy, or even during infancy in special cases. These expressions of opinion rather startle those who have been accustomed all their lives to see children supported in large institu tions, and we confess that we scrutinized such evidence very closely and con sidered it most carefully. But we have come to the conclusion that practically all rate-supported children can be boarded out with advantage to the children themselves, to the community at large, to the persons who would receive such children, and to the rate payers. A t first we thought it might be necessary to keep an institution here and there for delicate children, but we believe, after full consideration, that such a provision would be unnecessary. Ordinary chil dren when ill are looked after at home or else sent to a hospital, and there does not appear to be any reason why children maintained under the poor law should^ be treated differently. There will, however, be rare cases o f children who for one reason or another (for instance, grown-up children on first appli cation for relief) can not be boarded out immediately, and we suggest that any such cases be paid for at industrial or certified schools pending boarding out. * * * . 193. W e did not arrive a t a decision in favor of boarding out until we made inquiries as to the various kinds of cottage homes and scattered homes that exist in England. The management there seems to be most kindly, but the system is so expensive that it would be quite beyond our resources in Ireland. Apart from expense, however, we prefer boarding out to any institution, either large or sm all; and we regard these so-called homes not really as homes, but as small institutions— though, no doubt, a great improvement on a “ barrack ” school. No place is a home which is under the control of an external authority and where the question o f ways and means has not to be considered, owing to the fact that a certain or uncertain amount of money is received weekly or periodically and determines the rate of expenditure, thus giving the inmates of the home some knowledge of living according to their means. * * * 194. It is o f the greatest importance that boarded-out children should be placed at a very early age with their foster parents, as they in this way grow up almost as members o f the family, and the attachment between the children and foster parents is much strengthened. Some unfavorable instances of the boarding-out system mentioned to us were of children who were boarded out at an advanced age— at, say, 12 years old. 72693°— 26------ 16 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis z m POSTER-HOME CAREFQR DEPENDENT CHILDREN-« AUSTRALIA. ["New South Wales State Children Relief Board: Report of the president tor the year •ended April ®, 101/6, pp. 14—12; 1917, pp. 14 and 16.] Extract from the report of the president, Alfred William Green, to r the year ended April 5, 1916, relative to the results of an inquiry into the operation o f ¡the system -of boai'ding out '■ “ State children” in New 'South Wales. Considerable prominence ¡has been given o f late by the press to cases of alleged ill-treatment or neglect of State children. T h e large majority o f these were found, upon inquiry, to be quite baseless. * * * It would be foolish advocacy of any system to contend that it was flawless. ¡Every system has its defects, and the boarding-out system is no exception. The contention is, however, that boarding out, as a system for the bringing up of neglected and dependent children, has fewer defects than any other system established for a similar purpose. Wherever it has been tried under reasonable condi tions it has proved successful. Its outstanding merit is that any abuse of it is readily detectable— it is practiced in the light of day ; the community as a whole is competent to inspect and criticise it from individual instances; it is not possible for neglect to occur at any time to any large number of children, nor can neglect or ill-treatment occur in any individual instance for any length of time without the whole community conniving at it. The school teacher, the clergy, the police, the neighbors all unite in cooperation with a natural system. Local visitors and salaried inspectors supply specific details. The experience of this State in securing the happiest results from boarding out corresponds to that elsewhere, and at the Congress of Workers among Dependent Children, held at Adelaide, South Australia, in May, 1909, dele gates from the six States of the Commonwealth united In passing the follow ing resolutions (amongst other) .: “ That this congress heartily approves o f the system o f providing for the children in the care of the State by boarding them out in selected homes. •< That, ia the opinion of this congress, the boarding out of children with their mothers, being either widows or deserted wives, should be carried ¡out. « That, in the opinion of this congress, steps should be taken to provide in all the States of the Commonwealth a system of pro bation for delinquent children. « That the supervision of sueh children should be entrusted to some special authority rather than the courts.” There is no doubt, then, as to the consensus o f expert opinion on the value o f boarding out. Suggestions made that this system should be replaced by a system of State boarding schools must therefore be regarded as due to general ignorance o f the whole question, as well as total disregard as to the results achieved in New ¡South Wales. The agitation in this connection, too, has had some justification and has been productive o f certain good. It has ac centuated the fact that boarding out for its best results is dependent upon the quality o f inspection, and upon the variety o f selection of homes, as well as attention to the fact that hoarding out in certain instances should be preceded by suitable training. ____ __ Extract from the reoort o f the president, Alfred William Green, tor the year ended April 5, 1920, on boarding ©ut under the State Children Relief Act. The State Children Belief Aet—Children under Control. T h is enactment provides that the children may be boarded out with strangers or relatives until they are 14 years of age, or they may be adopted up to the time they are 8 years of age (with the parents’ concurrence) ; after 14 years of age they may be apprenticed, discharged, or dealt with in any other way1 the board may determine. The board, subject to the direction of the minister, is the authority for dealing with all matters relating to boarding out. Pay ments made for the maintenance of State wards are in accordance with the rates stipulated. Special cases of sick or invalid children are specifically considered by the board, which has power to determine necessary rates of https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 237 APPENDIXES, payment. The sanction o f the minister can continue the payments after the age o f 14 is reached. The general rates now (1920) paid, are 10s. per week for Children up to 14 years of age. The total number of children placed out under the State Children Relief Act is now 15,776 (or 2,938 more than were under control during the preceding 12 months). O f the children under control, 4,979 were placed out apart from their mothers and 10,797 with their mothers. The increase in the number in the former section since last year was 898, and in the latter section 2,542. Inspection, * * * * * * * The children under departmental supervision are visited periodically by the salaried officers of the board and by honorary visitors. In the metropolitan area, State children are visited quarterly by the salaried staff ; children hoarded with their own mothers are similarly visited, unless in special instances where circumstances warrant more frequent visitation. * * * In regard to country visitation, all children are visited quarterly as far as practicable by salaried officers of the department, whose visits are supplemented by the honorary officers visiting each month in the metropolitan area and quarterly in the country. Honorary officers do not visit all children— the lady visitors visit boarded-out children only, and the honorary probation officers visit children on probation only. Lady visitors are appointed by the State Children Relief Board in conformity with the State children relief act, and honorary probation officers by His Excellency the Governor, on recommendation of the minister of education. * * * The responsibility of the welfare and treatment of infants rests mainly with the female inspectors o f the department, who are charged with the special supervision of the conditions of infant life. It is the duty o f these officers to instruct custodians and mothers, where necessary, in the dieting and general treatment of infants, arranging for the medical in spection of children periodically at one or other of the children’s hospitals, at a clinic, or by private practitioner. CANADA. [Neglected and Dependent Children of Ontario : First report of work Children’s Protection Act, 1898, p. 20. Toronto, 1894.1 under the Extract from the first report o f J. J. Kelso, Superintendent of the Department of Neglected and Dependent Children of Ontario. Children’s Visiting Committees. * One of the most important features of the act [Children’s Protection Act of 1893] is the provision made for the appointment of a children’s visiting com mittee in each electoral district. The act expressly states that all children coming under the guardianship o f the Children’s Aid Society are to be placed in family homes, and this is in accordance with the prevailing opinion and ex perience o f leading workers in other countries on behalf of dependent children. In Australia the foster-home system is officially recognized in all the colonies as the only satisfactory solution o f the problem, and on this continent Massachu setts, Michigan, and other States are in the vanguard of this great reform. Common sense teaches that to have children mingle with the world, take part in the daily strife, and face the problem of true living early is the only way to develop sterling, self-reliant men and women, and it is important to note, from an economical standpoint, that the substitution o f the foster home for the in stitution has had the effect o f checking immensely the throwing by parents on the State the maintenance of their children. Numerous authorities might be quoted showing the advantages of family training over institutional life, were this the place to do so. Having adopted this as the most desirable plan, it was necessary to provide machinery for ascertaining suitable homes and for main taining some degree o f oversight when children are placed out. In Australia the appointment of committees of ladies and gentlemen, interested in this eause and desirous o f aiding in the alleviation o f the misfortunes o f the children, proved very effective, and this plan has been incorporated in the Ontario law. When fully organized it is easy to see what a powerful network agency these https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 238 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. committees may become for the placing of the homeless children of the Province in homes where they will be willingly received and lovingly surrounded with good and helpful influences. * * * The children’s visiting committee is the most natural, effective, and at the same time economical plan of performing such work, since it enlists the active sympathy and cooperation of people in all parts of the Province, and in a cause that justly claims the sympathy and aid of the whole community. * * * [Neglected and Dependent Children of Ontario: Annual report, 1907, pp. 106—108.] Extract from a paper read by J. J. Kelso at the annual meeting of the. American Humane Association, held in Boston, November 12—14, 1907. Supervision of Children. In Ontario, when the children’s protection act was passed in 1893, it was recognized that if home-finding work was to be extensively adopted, subsequent supervision of the children placed out would be essential to success. Therefore our system provides that all children’s aid societies should be branches of one organization having its center in a government office known as the Department of Neglected and Dependent Children. There are at the present time 60 of these societies covering the different districts of the Province, and each year about 300 children ape placed in foster homes in a territory over 500 by 800 miles in extent. Whenever a child goes to a foster home through one o f these societies the full particulars are at once reported to the central office on a form provided for the purpose. The child then passes under the supervision of the government office, and I, as a general superintendent, assume its future care. Its name is entered both in a supervision book and on a card index, the latter for division into towns, cities, and counties, so as to facilitate visiting, and from that time on every reasonable effort is made to insure its proper treatment. This plan has been in operation over 14 years and there are about 4,000 children on the books. In addition, two or three of the orphanages report the children placed out by them and they are entered and visited, though this is not com pulsory. The local society or institution is expected to' keep up a friendly in terest in the child, and this can be done without any clashing with the central scheme o f visitation. Some societies are faithful in remembering the children once under their immediate care, others inquire about them occasionally, while some organizations are content to leave it all to the central office. The great importance of having all placed-out children promptly reported and recorded has been demonstrated over and over again. The smaller societies pass out of existence, there are frequent changes of secretaries or managers, and if the children were not 6n record they would in many cases be completely forgotten and lost sight of. State supervision provides for continuity and permanency, and whether the local society exists or not the children are looked after, helped, encouraged, and protected until there is no doubt that they are of age. The children recorded in the central office are visited once each year, some twice, some several times, according to the special need. Typewritten reports o f these visits are furnished without expense to the society holding the guardianship. A very mild supervision is exercised over those children who are adopted in infancy and who have become fully incorporated as members of the family. W e have many cases on our books where after the first visit an entry is made “ Very little supervision necessary,” although we do not entirely give up oversight of any child, owing to the fact already stated that home conditions are liable to change at any time and do as a matter of fact change. Those who require special attention are the boys and girls taken at '8, 10, and 12 years of age, where the consideration of work is likely to enter. Great care is needed to see that they receive a fair amount of schooling and are not overworked. W ith a system such as ours there is always some one available to be sent on short notice to visit a child, no matter how great the distance, and once all the circumstances of each child are fully understood this preparation for instant action prevents neglect and carelessness. This point is worth em phasizing. W e keep four persons constantly on the road, three gentlemen and a lady, and in addition there are six other persons who have the over sight of certain districts. Catholic children are visited by a Catholic in spector, and this is a wise and reasonable rule to follow. W e have also at least 15 or 20 persons who can be called in for special visiting or re- https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 239 APPENDIXES, porting on children in their district, and through these various agencies we believe we are looking fairly well after the young people whose names are on our books. W e do not take names off our records. Often a friendly visit is paid to young women long after they have married and settled in life. W e are then better able to judge the results of our work and the visits are appreciated and welcomed. * * * It is almost impossible for a small so ciety or institution to follow up its children in later years, owing to the ex pense and the time involved; it seems an absolute necessity that this work should be done by some parent society or government agency. [Report of superintendent of neglected and dependent -children of the Province ot Saskatchewan, 1917, p. 9.] Foster Homes—Not Institutions. The greatest work in this department and the essential note in the work carried on under the children’s protection act, not only in this Province but all over Canada, is the placing of children i n ' foster homes. Our work is absolutely opposed to keeping children for any length of time in institutions, although we sometimes find it difficult to make people realize this fact. E x perience shows that institutional children to a very great degree lose the spirit of self-reliance and independence, and therefore when they are re leased, instead of making useful citizens are quite unable to make for them selves. The aim is to place every child in a foster home, unless they are mentally or physically unfit, or perhaps for some reason they are being kept in shelters to be returned in due time to their parents. FRANCE. [La Revue Philanthropique, vol. 38 (1917), pp. 368-369.] Translation of an abstract from the Circular of the Minister of the Inte rior of July 15, 1904, commenting on the law of June 27, 1904, relative to assistance of dependent children. The traditional rules observed, in the bringing up of dependent children are boarding in families and boarding in the country. This system is ra tional and is sanctioned by experience. It will produce excellent results when the rates of pay for boarding are everywhere sufficiently high, and when the number, salary, and ability of inspectors shall everywhere assure a proper choice of foster parents and efficient supervision. The natural way for a child to be brought up is in a family, and there can be no satisfactory substitute. I f he has no family of his own the best thing that can b e . do n e. is to give him the chance to establish himself in an adopted family. Even if he finds little affection on the part of the foster parents, he will have a place at their house about which he will sa y : “A t home. ” Later he will share the labors of those whose studies and play he has shared before; he will belong to a community— the “ enlarged family.” H e will have a place to which he will be attached; he will be bound to the social group by the thousand bonds which are tied so strongly in the first years of life ; lye will be as little different as possible from his fellow citi zens. [Deuxième Congrès International de la Protection de l’Enfance, Bruxelles, 1921. II, pp. 145-146.] Tome Extract from the report by Henry Rollet to the International Conference on Child Welfare on general child-welfare measures in France. Measures for the Protection o f War Orphans. -* * * * * 0 * A d m in istra tive — The national office of the wards o f the nation in Paris, under the Minister of Public Instruction, directs ami coordinates-the work of the departmental offices and maintains control of the entire system. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 240 F O S T E R -H O M E C A R E F O R D E P E N D E N T C H IL D R E N , The departmental offices under the direction of the prefects. distribute the subsidies appropriated for the maintenance o f needy wards, place them in foster homes when necessary, and see to the enforcement of child-welfare and school-attendance laws which apply to the eases in which they are concerned. They also supervise the societies or institutions caring for the nation’s wards. W ith the departmental offices are connected the cantonal offices, the members of which come in direct contact with the children. These are men and women interested in children— members o f the teaching profession, of philanthropic societies, or private citizens. The cantonal sections see to it that the largest possible number o f children are benefited by the la w ; they ascertain the needs o f the children and put them in touch with the departmental offices. Guardianship — For cases in which the guardian is a member of the family or was appointed by the deceased parent, the law provides an “ advisory guardian.” The justice o f the peace who is chairman o f the family Council must offer the aid of the advisory guardian to the regular guardians when the latter are relatives of the minor or if they were appointed under a will. This advisory guardian, without interfering with the exercise of parental authority, must see whether laws on school attendance are observed and whether the subsidies are used for a good purpose, and must propose any measures that may be good for the child. Placing ou t .— Children who can not be brought up in their own families are placed by the departmental office in orphanages or institutional schools or in private families. The deeree of July 3, 1918, specifies very carefully the con ditions required for the taking of wards o f the nation. The moral life and the health o f the wards aré supervised very closely, also the location and hygienic condition of the quarters in which the children live. Quarterly physical examinations are required for children under 16 years old. The results of each examination are noted on a health card, which is considered confidential and is sent to the departmental office. Decisions as to placing of wards whose cases are considered unusual because of the presence of physical or moral defects are made by the prefect or Minister of Public Instruction, with the consent of the guardian. Even in case the child is placed out, the parents or guardians preserve their entire authority over their children or wards. They may always claim them back from the departmental office, and in any case their will is respected, particularly in matters of religious education. BELGIUM. IDeuxiéme Coagrés International de la Protection de PEnfanee, Bruxelles, 1921, I, pp. 617-618.1 Tome Translation of a selection from the report presented by Judge Joseph Diercxsens (o f the juvenile court) on the principles and methods o f the National Bureau for War Orphans (L ’CEuvre Nationale des Orphelins de la Guerre) o f Belgium. The fundamental idea of the National Bureau of W a r Orphans is that orphans should be aided in the place of their residence, because the bureau is convinced that the maintenance of children in the family and social environ ment in which they were born is essential to their economic and moral well being. It is because the bureau has sought to carry out this conception that it has energetically opposed the emigration of its w ards; an emigration which would constitute a national misfortune as well as an obstacle to the normal development of the children concerned. The child removed from his natural environment is not only deprived of the opportunity of making a career and living a life appropriate to his station but undergoes deep mental suffering because of being unable to see his kindred, the faces that he knew, and the companions who loved h im ; often he does not even hear his mother tongue. For this reason the bureau has assisted the child at his mother’s home, whenever possible. It is near the mother that the child is surrounded by the deepest affection and it is there that he can develop in the best way and find the greatest opportunities for happiness. The maintenance of the child in his own family is, then, the first concern of the bureau, and fortunately in the great majority of cases it has been possible to follow this principle o f bringing up children in a natural way. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. M l I f the mother is dead it is necessary to try to give a fam ily to the orphan by placing him with his grandparents or near relatives with whom he will be surrounded by sincere affection. But in exceptional cases in which bringing up in a fam ily is not possible, it is necessary to accept the cruel necessity of entrusting the orphan to an educational or charitable institution and to leave to the directors of the institu tion the task of assuring his economic existence and moral development. In cases of necessity the bureau has resorted to this method o f bringing up. Un doubtedly there are in Belgium numerous well-managed sectarian or nonsec tarian orphanages with directors whose devotion to their work is above all praise, to which the fates of some children may be entrusted without fear. But the administrative council, following in this matter the principles estab lished by all of the international child-welfare congresses and those stated by the illustrious initiator of this great social-service agency in Belgium, the late Minister LeJeune, maintained that the institution is not the ideal method of bringing up children; particularly as regards the children o f the poor, this method entails the great danger of failing to provide a training which would fit the child for the life he will have to lead la te r; it cuts him off from contact with his fellows, it does not prepare him sufficiently for the struggle for existence, and the child finds himself later thrown into life without having learned all its dangers and pitfalls. Statistics show that the executive committee of the bureau has always been guided by the principles just described. Thus, of 18,240 orphans who were in the bureau’s care on September 30, 1920, 650 ( 3.57 per cent) were placed in foster homes; 422 (2.25 per cent) in orphanages or charitable institutions; and 94.18 per cent were aided in their own homes and were enjoying fam ily life. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A PPEN D IX D.— LIST OF REFERENCES ON FOSTER-HOME CARE FOR DEPENDENT CHILDREN IN TH E UNITED STATES AND FOREIGN COUNTRIES. C o m p il e d by L auba H o od . G E N E R A L SO U R C E S . Th e Encyclopedia Americana: A library of universal knowledge. The Ency clopedia Americana Corporation, New York and Chicago, 1918. Dependent Children: The placing-out system, by Hastings H. Hart. Yol. 6, pp. 473-477. The Encyclopaedia Britannica: A dictionary of arts, sciences, literature, and general information. Eleventh edition. Cambridge, England : A t the Uni versity Press; New York, 1910. 1 Boarding-out system [in England]. Yol. 4>, p. 95. Poor Law : Boarding out children under the English Poor Law. Vol. 22, p. 76. United States: Placing out dependent children. New Vol. 32, p. 874. The Catholic Encyclopedia: An international work of reference on the consti tution, doctrine, discipline, and history of the Catholic Church. The Ency clopedia Press (In c.), New York, 1914. Orphans and Orphanages : “ Boarding-out ” and “ placing-out ” systems, by Charles F. McKenna. Vol. 11, pp. 322-325. The Jewish Encyclopedia: A descriptive record of the history, religion, litera ture, and customs of the Jewish people from the earliest times to the present day. Funk & W agnalls Co., New York and London, 1916. Charity and Charitable Institutions: Boarding Out, by Lee K. Frankel. Vol. 3, pp. 673-674. The New Encyclopedia o f Social Reform. W illiam D. P. Bliss, editor in chief. Funk & Wagnalls Co., New York and London, 1908. Child Helping : The placing-out system', p. 169. The New International Encyclopedia. Second edition. Dodd, Mead & Co., New York, 1914. Dependent Children: Foster-home care in Europe and America. Vol. 6, pp. 691-692. D avenport-H ill, Florence: Children of the State. Edited by Fanny Fowke. The Macmillan Co., London and New York, 1899. A study of methods of care for “ State children,” with especial reference to the development o f the systems of boarding out in comparison with other methods of care undertaken in Great Britain and other countries. Boarding out in Ireland and Scot land : History, methods, results, pp. 141-174. Boarding out in England : Origin of the system ; early experiments by poor-law guardians ; standards, pp. 175—214. Plac ing-out systems in the United States, pp. 215-231. Development ef the boàrding-out system in Australia and New Zealand, pp. 232—272. Systems of boarding out in Prance, Germany, Russia, Italy, Switzerland, Netherlands, and Austria, pp. 273-304. Great Britain: Royal Commission on the Poor Laws and Relief in Distress. Appendix Vol. X X X I I I : Foreign and Colonial Systems of Poor Relief. Par liamentary Paper Cd. 5441. W ym an & Sons (L td .), London, 1910. General summary : Relief of orphan and deserted children, in various countries, pp. 29-34. France: Origin and development of French system of boarding out ; boarding out “ pupilles de l’assistance” ; ages of children, selection of foster parents, rates, apprenticeship, pp. 54-58. Extracts from laws and official circulars relative to foster care c f children, pp. 273-275. Belgium : Boarding out ; supervision by “ comités de patronage,” pp. 87-88. Germ any: Boarding out orphans; guardianship; neglected children, pp. 101—103 ; laws and official circulars relative to foster care, pp. 305—309 ; Berlin: Boarding-out system, p. 118. Denmark: Boarding-out system, pp. 138, 146. N orw a y: Boarding out destitute children, p. 151, Australasia: Boarding-out system in New Zealand, pp. 159-160 ; New South Wales, pp. 164-166. The appendixes (I-X Y ), include the answers received from representatives of the various Governments in re ply to questions submitted to them by the Royal Commission on methods of care for dependent children, and extracts from laws, official circulars, reports, été,, relating to systems of care, pp. 211-445. 242 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. Hi n i r örter*)uch der Staatswissenschaften. iyio. 243 Verlag von Gustav Fischer, Jena, Haltekinder (Placed-Out Children) : An account of the situation in Gergan y^ France, Great Britain, and Denmark, by E. Loening. Voi. 5, pp. Institutional and family care for dependent children in Germany. pp. 827-828. Supervision over placed-out illegitimate children. Voi. 8, p. 41. Voi. 5. Henderson, Charles R.: Modern Methods of Charity; an account of the sys tems of relief, public and private, of the principal countries having modern methods. The Macmillan Co., New York, 1904. f S r : r^ n y : Child-Pacing system, pp. 61-63. A ustria: Guardianship and foster care Door law, Faw” pp, nnnd207-210. 2 0 7 U9 ?n ngsv «?7 H 2 - ™5’ , E n9 l? nd: The boarding-out system under the poor Scotland: The boarding-out system, pp. 264-266. Ireland: « h ^ b0£ r(Fns‘£ ut ®yst,em’ pP- 283-284. Australasia: Boarding-out systems of New South Wales, New Zealand, and South Australia, pp. 312-314. Canada: Child placing by chddren s aid societies (Ontario), pp. 328-330. N orw ay: Boarding out dependent children, pp. 360-361. Denmark: Child placing, p. 375. United States • Boardins-nnt and placing-out systems, pp. 479—482. France: Boarding out morally, imperilled children, p. 546. Ita ly : hosier care of foundlings, pp. 594-596. Bibliography, pp. 690-702. Keller, Dr. Arthur, und Klumker, Professor Chr. J.: Säuglingsfürsorge und Kinderschutz in den europäischen Staaten. J. Springer, Berlin, 1912. : Discussion of laws and regulations in regard to child placing in European counDenmark: Rules for the care of children placed out in private homes under law of March, 1895, pp. 896-897. France: Supervision of children placed in institutions Private families by the authority of thè State, as prescribed by laws of July 24 188%» April 11, 1908, and decrees of April 12, 1907, and June 13, 1910, pp 890-892 N orw ay: Placed-out children, pp. 579-581, 1072. Sweden: Care of children placed out by poor-relief authorities or by private individuals or organizations, pp. 763-765 • law of „une 6, 1902 p. 1198. A ustria: Placing out children receiving poor relief in varions Provinces, pp, 597-602. H ungary: Placing out and supervision of abandoFort Fnii3 dren, pp. 1531-632. G erm any: Orders regulating supervision of placed-out childrerlin Prussia, jfp. 1210-1211; Bavaria, pp. 1226-1227; Saxony, pp. 122 ^1229 F r ia n d Supervmmn of placed-out children by health departments o f Helsingfors and V i K ' 8 Ò1 - 8 Ó2 hunts!erland: Regulation of child placing in cantons of Zurich and Bâsel/pp. Lallemand, Léon: Histoire de la Charité. 4 tomes. Picard et Fils, Paris, 1912. Brief comparison of care of orphans in asylums and in private families Vol V £ ai't 2, Pp. 79-80. Placing of abandoned infants in private families i“ r a f districts « P’ acticed in the mam European countries in the 18th century, Voi 4 Part 2 nn 80-82. Placing out infants in France, pp. 89-109. ’ ’ • •’•pp* ---------- . Histoire des Enfants Abandonnés et Délaissés ; étude sur la protection de l’enfance aux diverses époques de la civilisation. Alphonse Picard Paris 1885. ’ I* Reicher, Dr. Heinrich: Die Fürsorge für die verwahrloste Jugend Buch druckerei der Manzschen k. u. k. Hof-Verlags- und Universitäts-Buchhand lung in Wien, 1904, 1906, 1908, 1909. Part 1 . ( 1 ) German E m pire: Family versus institutional care of neglected chil dren in Baden ; law expresses preference for family care, pp. 64-68 (2) KnalnndProvisions of child placing' of the English law of 1897 on the protection of chUrbW pp. 187-189. (3) France, Belgium, and Switzerland: Placing out of dependten^chiì: dren in France by the public charity authorities, pp. 48-50. Part 3 Familv nlacini I n d ’E n gland?1VoL* 1, ^ * 2 9 9 - 3 0 5 . the larSer German States, Switzerland, B & l f f i Deuxième Congrès International de la Protection de l’Enfance, Bruxelles 1921. Proceedings. 3 tomes. Imprimerie de l’Office de Publicité, Bruxelles! Tome I : Rapports sur les questions mises à l’ordre du jour du Congrès. Fourth section : Orphans of the war. Three reports, by Joseph Diercxsens (pp. 614-623), Eloise Fivet (pp. 624-638), U. Gombault (pp. 639-649) include discussions of the fundamental principles of care laid down by “ l’Œuvre Na tionale ües Orphelins de la Guerre,’’ an agency for the relief of war orphans in Belgium ; Maintenance of the child in the family and social relationships to which it was born; opposition to emigration; provision o f a foster home if it is impossible or unwise to keep the child with its own mother or a . near relative • institutional care when it is impossible to provide for the child in any other way! Tome II : Rapports sur l’Ensemble des Mesures Prises pour la Protection de l’Enfance. The reports presented by delegates from the following countries include brief discussions or notes on the systems of foster-home c a rl ; Belgium : Plac ng out war orphans pp 29-30. Denm ark: Child placing in families, pp. 53, 6 8 . France1 refection of orphans and neglected children, pp. 120-121; protection and niacins q 4^ 146J N orw a y: Supervision of placed-out children, ppf 233-234. Rumania : Society for the Protection o f War Orphans in Rumania pp 295-304. Sw eden: Protection of orphans, pp. 327-333. Switzerland: Children https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 244 FOSTER-HOME CARE FOR DEPENDENT CHILDREN, Deuxièm e Congrès International de la Protection de l’Enfance— Continued. 1921. Proceedings — Continued. Tome II : Rapports, etc.— Continued. placed In families, pp. 365-366. Czechoslovakia: Protection for orphans and neglected children, pp. 383-389. Great Britain: Care for war orphans, pp. 430-431. Poland: Protection of orphans in general and of war orphans in par ticular, pp. 501—514. Tome I I I : Compte-Rendu Sténographié des Séances. General discussion of methods of caring for war orphans. Emphasis is laid on the importance of maintaining the child with its mother if possible, or in a foster home rather than in an orphan asylum, pp. 561-578. International Congress o f Charities, Correction, and Philanthropy (Congrès Internationa] d’Assistance), Paris, 1889: Proceedings. G. Rongier et Cie., Éditeurs. Paris, 1889. Rollet, H. : Rapport— Des modes de placement des enfants qui sont à la charge des administrations publiques et des moyens pris ou à prendre pour assurer leur mise en valeur physique, intellectuelle, et morale, pp. 132-187. History o f placing “ assisted children ” in family homes in France, pp. 137-162 ; description of system of placing neglected children, pp. 162-177 ; brief review of family-home caçe in European countries, pp. 184-185 ; recommendations emphasizing the importance of family care, p. 187. ---------- , Chicago, 1893: Separate Report o f the Proceedings of the Second Section: The Care of Dependent, Neglected, and W ayward Children. Johns Hopkins Press, Baltimore, 1894. Balch, Emily Greene: Public provision for children in France, ppT“49-57. Statement of the organization and administration of the French system of supervised foster-home care for “ assisted children ” and for “ morally abandoned children,” and of the method of supervision of homes in which children are placed at board by their parents. Folks, H om er: Family life for dependent and wayward children. Part I : Dependent children, pp. 69-80. Part II : Wayward children, pp. 112-117. Assuming a consensus of opinion in favor of the family plan, the author out lines methods by which it may be secured for the greatest proportion of dependent children and for delinquent children whose waywardness has been caused by the lack of normal home life, and the means by which the plan may be made safe and efficient. Randall. C. D. : Importation of dependent children from other States, pp. 24r-27. Gives the theory of the Michigan law regulating child placing in Michigan by agencies outside the State. Spence, Catherine H. : Care of children in Australia, pp. 27—33. A brief account of the inception and growth of the boarding-out system as a State policy in Australia, New Zealand, and Tasmania, noting such especial features as supervision by voluntary committees of ladies, official inspection, uniform subsidies, refunds from parents, and education requirements. Public care of children in Australia (appendix to the above report), pp. 37-46. Includes a statement of the work of the State Children’s Council of South Australia and extracts from papers presented by workers experienced in the care of dependent children in different parts of Australia at the first and second Australasian Conferences on Charity held at Melbourne, 1890 and 1891. W hite, Francis H . : The placing-out system in the light of its results, pp. 81-89. Gives conclusions founded upon an investigation into the ^after lives of 690 children, placed in Kansas by the New York Children s Aid Society. Discussion on the placing-out system as practiced in the several States of the United States and in France, by representatives of public and private agencies, pp. 90-99. Congrès International de la Protection de l’Enfance, Paris, 1883. Com pteR en du des Travaux. 2 tomes. G. Pedone-Lauriel, Paris, 1884. Tomé I : Documents Préliminaires et Travaux de l’Assemblée Générale. Roussel, Théophile: L ’enfance matériellement et moralement abandon née (orphelins, enfants abandonnés, enfants de familles indignes), pp. 75-102. An examination of the problem of the care of children in France, based upon statistical reports of numbers and classes of children provided for in Institutions^ by boarding out,, and by subsidy in the child’s own, home. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES, 245 Congrès International de la Protection de l’Enfance—Continued. C om pte-R en du des T ra va u x — Continued. Tome II : Travaux Préparatoires et Annêxes. Enfance abandonnée: Assistance de l’enfant hors du domicile de ses parents, pp. 71-88. Reviews tbe debate on foster-home versus institutional care raised in the essays which were submitted in the prize competition announced in 1779 b v ! the Society of Arts and Trades of Hamburg and gives a brief survey of systems of foster care in the United States, Denmark, Switzerland. Austria^ Hungary, Sweden, and Germany, and of “ temporary homes ” in Germany and Sweden. Third International Congress fer the Welfare and Protection of Children, London, 1902 : R ep ort o f the Proceedings. Edited for the executive com mittee of the Congress by Sir William Chance. P. S. King & Son, London, 1902. Bessiêre, Georges: T)u placement familial des enfants délinquents ou vicieux, pp. 227-228. While admitting tbe advantages o f family life in the training of children with vicious tendencies, the author points out its dangers and urges study of the child, caution i* the selection of the home, and wise supervision under the direction of the State. Discussion by members of tbe Congress on the boarding-out system as compared with tbe institutional systems of England; methods of in spection; supervision by local committees; training; necessity for sup plementing boarding-out, pp. 229-235. Mason, Miss M. H. : The boarding-out system, pp. 218-225. The author presents her conclusions as to the advantages and perils o f boarding out, based upon her experience of 17 years as Local Government Board Inspector of boarding ou t; notes the distinction made in England between the existing systems of boarding out “ within the union ” and “ without the union ” ; and outlines standards for the selection of foster parents, homes, and children, and for supervision. Roy, Ferdinand: Protection away from family surroundings, pp. 225-227. Notes the established custom of hoarding out dependent children in country homes by the Assistance Publique in France, and describes work of Protestant societies boarding out “ •morally imperilled ” children in rural Protestant families. Publications of the International Association for the Promotion of Child W elfare. General Secretary’s Office, Brussels. In tern a tiona l R ecord o f C h ild -W elfa re W o rk . No. 2 (December, 1921). Silbernagel-Caloyanni, Dr. A lfred: Two noteworthy child-welfare organizations at Zurich, pp. 77-86. Includes notes on the work of P ro- Juventute in boarding out sick and needy children, p. 85. The work of the different sections o f the International Congress for the Promotion of Child Welfare, July, 1921, pp. 106-112. Summary of the recommendations of the congress relative to methods of care for war orphans, pp. 111—112. No. 3 ( January-February, 1922). Kahn, Paul ; The moral protection of childhood In France, d p 157-163. Boarding out and supervision of children in moral danger. No. 5 (May-June, 1922). Decourt, Germaine: How mothers, children, and adolescents are helped in France, pp. 342-349. Includes a description of the work of “ Œuvre Grancher ” in boarding out children from tuberculous families. General Mannerheim’s League fo r- Child W elfare (Finland), pp. 350-358. Notes the organization o f a system o f “ foster parents ” to whom the care of orphans or neglected children may be confided. International notes [References, including notes on provisions for foster-home care]. National Association for the Relief of W ar Orphans (Belgium ), pp. 389-390. A* Danish Child W elfare Bill, pp. 393-394. D raft scheme of a law to deal with child welfare (issued by International Public Health Bureau), pp. 399-400. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 246 POSTER-HOME CARE FOR DEPENDENT CHILDREN, Publications of the International Association for the Protection of Child Welfare—Continued. International R ecord o f C h ild -W elfa re WorTc— Continued. No. 8 (October, 1922). International notes. Child emigration to Australia, p. 680. Juvenile emigration from Great Britain, pp. 680-681. No. 10 (December 31, 1922). International notes. , “ Orphan’s N e st” (P oland), pp. 860-861. Ita ly : Commission for the Protection of Deserted and Helpless Children, pp. 857-858. No. 11 (January 31, 1923). Institutions and societies for the protection of ill-treated and morally abandoned children in Romanic Switzerland (Prepared by the Seminary for the Protection of Childhood at the School of Social Studies for Women,. Geneva), pp. 1-8. Includes notes on child placing in several cantons in Switzerland. International notes. • Child-welfare legislation in Germany, pp. 42-43. The activity of the municipal child-welfare bureau at Innsbruck, pp. 34-35. No. 13 (March 31, 1923). Zimmern, M m e.: Regulated infant-rearing centers, pp. 197-202. Outlines the essential features of a recently developed system of regulated - foster-home care for' infants. No. 15 (M ay 31, 1923). International notes: Child welfare in Lyons [France], ip . 464. Legalizing adoption of children [England], pp. 475-476. Supplement to the In ternational R ecord o f C h ild -W elfa re W o r k : Section dealing with legislation. Publishes the texts of the laws of different countries in the general field of child welfare. Legislation governing child placing and supervision js included in the laws of various countries. SYSTEMS OF FOSTER-HOME CARE IN THE UNITED STATES. GENERAL REFERENCES. History of Child Saving in the United States: Report of the committee on the history of child-saving work. Twentieth National Conference of Charities and Correction, Chicago, June, 1893. Geo. H. Ellis, Boston, 1893. Brace, Charles. Loring: The Children’s Aid Society of New Y o rk ; its history, plans, and results, pp. 1-34. Early activities of the society; the theory and practice of placing out destitute children in rural communities in the West, pp. 23-26. Folks, Homer : Child-saving work in Pennsylvania, pp. 138-153. Societies' for placing ou t: Methods of placement, expense, supervision, pp. 145-148. . . . Hathaway, S. J . : Children’s Homes in Ohio, pp. 131-137. Child placing by the County Children’s Homes, pp. 133-134. Letchworth, W illiam Pryor: The history of child-saving work in the State of New York, pp. 154-203. The placing-out movement: Early work of the Children’s Aid Society, pp. 171-172; the “ Children’s L a w ” (1875) providing for placing out, pp. 180-184; child adoption, pp. 184-185. Merrill, G. A .: State public schools for dependent and neglected children, pp. 204-226. Theory o f child placing underlying the establishment of the Michigan State Public School ; methods and results, tabular summary, pp. 204-214; Minnesota State School— child-placing work, with tabular summary; pp. 214-222 ; Wisconsin State School— child placing, tabular summary, pp. 223—224. Minton, Sophie E. : Family life versus institution life, pp. 37-53. Reviews the endorsement of the family system of care for dependent children in Great. Britain, France, Germany, Australia, and the United States and presents the relative merits of family and institutional care. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES; 247 History of Child Saving in the United States— Continued. Richardson, Mrs. Anne B . : The Massachusetts system o f caring for State minor wards, pp. 54—67. The Massachusetts policy of boarding out dependent children., pp. 64-67. Smith, Virginia T . : The history of child-saving work in Connecticut, pp. 116-130. Child placing by county temporary homes, pp. 122—126. W h at Dependent Children N eed ; as stated by men and women who daily live and learn with them. Edited by C. V. Williams. Child-Welfare League of America, Bulletin No. 7 (June, 1922), 130 East Twenty-second Street, New York. Report of the committee, by C. V. Williams, chairman, pp. 3-4. W hat every child ought to have, by Elsa Ueland, pp. 5-8. Definitions, by Hastings H. Hart, pp. 9-12. Standards of acceptance of responsibility for care of children by agencies and institutions: Knowledge of child’s family, by Jessica P. Peixotto, pp. 1 2 -1 3 ; Knowledge of child’s body, by Lilburn Merrill, M. D., pp. 1 4 -1 5 ; Knowledge of child’s mind, by Jessie Taft, pp. 1 5 -1 7 ; Alternative plans of care, by Ruth Taylor, pp. 18-20. Standards of care of children supplementary to that of parents or in place of parents: In the child’s own home, by Ruth Berolzheimer, pp. 2 0 -2 4 ; In the foster home, by John P. Sanderson, pp. 24-28. Public responsibility for care as related to private agencies: Historical background in law, by Sophonisba P. Breckinridge, pp. 3 7 -3 9 ; Practical relations of State to private agencies, by W illiam Hodson, pp. 39-40. Development of efficient care in the community as a whole, by W . S. Rey nolds, pp. 45—18. Children’s Bureau, U . S. Department of Labor: Child Care and Child Welfare, ♦ Outlines for Study, prepared in cooperation with the Federal Board for Vocational Education. Separate No. 1 : The Hygiene of Maternity and Childhood. Publication No. 90. Washington, 1921. Separate No. 2 : Child Mentality and Management. Publication No. 91. Washington, 1923. Separate No. 3 : Play and Recreation. Publication No. 92. Washington, 1923. Separate No. 4 : Child Labor. Publication No. 93. Third edition. W ash ington, 1924. Separate No. 5 : Children in Need of Special Care. Publication No. 94. Washington, 1921. — ------ : County Organization for Child Care and Protection. Publication No. 107. Washington, 1922. A report on the development of county organizations for dependent, defective, and delinquent children in various States. Special reports on the methods of organiza tion and the work undertaken by county units in Minnesota, North Carolina. Cali fornia, New Jersey, and New York include discussions of methods of child placing and supervision. S ee also Reports of Studies and Investigations, pp. 2 5 0 -2 5 3 , and Material on Placing-Out Laws, pp. 253-258. Bogen, Boris D .: Jewish Philanthropy; an exposition of the principles and methods of Jewish social service in the United States. The Macmillan Co., New York, 1917. The placing-out system, pp. 160-164 ; methods o f child care, pp. 167-169. Brace, Charles Loring: The Best Method of Disposing of Our Pauper and Vagrant Children. Wynkoop, Hallenbeck & Thomas, printers, New York, 1859. Early emigration policy of the New York Children’s Aid Society. Chapin, Henry Dwight, M .D .: Heredity and Child Culture. E. P. Dutton & Co., New York, 1922. Development of the systems of boarding out infants in the United •States, pp. 168-180; the Speedwell system c f regulating and systematizing boarding out, pp, 180-193; the adoption of children, pp. 194-208. Devine, Edward T .: Social Work. The Macmillan Co., New York, 1922, Children: Protection and placing out, pp. 115-123, https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis MS FOSTER-HOME CARE FOR DEPENDENT CHILDREN. Devine, Edward T .: The Principles of Relief. The Macmillan Co., New York, 1904. Dependent children: Advantages and limitations of institutional and placing-out systems of care, pp. 107—126. Folks, H om er: The Care of Destitute, Neglected, and Delinquent Children. The Macmillan Co., New York, 1911. A history of the evolution of the care for dependent children in the United States, with an analysis and evaluation of the different systems of care. Development of placing-out system: Early methods of indenturing and apprenticing destitute children, pp 8 22 39—42, 64—65 ; early policies of boarding out infants, pp. 20—21, 22—23, 6 3 ; children’s aid societies and child placing, pp. 6 6 -7 1 ; removal of children from alms houses— boarding out and placing out in the different States, pp. 7 2-81; the State school and placing out, pp. 82-102; placing out from county children’ s homes, pp. 103-114; the boarding-out and placing-out systems, pp. 150-166. List of references at head of each chapter. Gillin, John Lewis: Poverty and Dependency, Their Relief and Prevention. The Century Co., New York, 1921. Present systems of care for dependent children: In almshouses, in county and city children’s homes; supported as public charges in private institutions; in free foster homes; in boarding homes. Evaluation of the different systems. Standards of care, pp. 344-353. Bibliographical footnotes. Hart, Hastings H.: Preventive Treatment of Neglected Children. Charities Publication Committee, New York, 1910. Children’s aid societies and children’s home societies, pp. 145-193. Family home care: The evolution of the child-placing movement; operation of the placing-out system j standards for selection of homes and supervision of children, pp. 215 248. Henderson, Charles R.: Introduction to the Study of the Dependent, Defec tive and Delinquent Classes, and of Their Social Treatment. Second edition, enlarged and rewritten. D. C. Heath & Co., Boston, 1901. Boarding out and placing out children, pp. 112-116. Kelso, Robert W .: The History of Public Poor Relief in Massachusetts, 16201920. Houghton, Mifflin Co., Boston and New York, 1922. ♦ Child care and the child-placing systems in Massachusetts: Historical review of the development o f the boarding-out system from 1636-1920, pp. 165-188. Lloyd-Jones, Jenkin: Not Institutions but Homes. Published by All Souls Church, Chicago, 1893. A plea for the extension of noninstitutional care for children. Loeb, Sophie Irene: Everyman’s Child. The Century Co., New York, 1920. Boarded-out children, pp. 218-245. Mangold, George B.: Problems of Child W elfare. The Macmillan Co., New York, 1914. Problems and principles of child saving, pp. 434-438. Private child-saying agencies, rm 449—461. Public child-saving agencies: Methods and results of placing out under the State school system; boarding-out and placing-out systems——the New Jersey system, the Massachusetts plan; city systems, the county homes system, pp. 474-475. Bibli ography, pp. 508—511. _______; Child Problems. The Macmillan Co., New York, 1914. Material presented is practically the same as that in the preceding reference. Preliminary Report of the Joint Committees Appointed by Organizations Placing Children in Boarding Homes. Published by the Babies’ W elfare Federation, 505 Pearl Street,- New York, 1921. Standardization of home and board: suggestions for home finding; central registra tion bureau. Ralph Georgia G.: Elements of Record Keeping for Child-Helping Organiza tions. Russell Sage Foundation, Survey Associates (In c.), New York, 1915. A study of the systematic use of records as indispensable in safeguarding the welfare o f children in tbe care of institutions and societies, with illustrations of record forms and filing systems. Slingerland, William H.: Child Placing in Fam ilies; a manual for students and social workers. Russell Sage Foundation, New York, 1919. A study of the practical working conditions necessary for effective child placing, intended for use as a handbook for those engaged in the child-placing and allied fields. Part 1— Historical and general basis— includes a brief historical review of the development of modern agencies for child placing ; a definition of tk s p ^ s e n t#systems; types o f agencies; classes of children. Part 2— The technique of child placing— deals with the reception of children; receiving homes and their functions; selection _oi homes, selection and placement of children; adequate supervision. Part 3—^-¡special classes, arguments, and forecasts— discusses children of uniqarried parents, juvenile war de pendents, arguments for child placing. _ Part 4 — Twentieth-century terminology, ex tracts from laws and supreme court decisions; bibliography. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. Slingerlasd, WilHam H .i A Child-Welfare Symposium. Edited by William H. Slingerland, Supplement to Child-Welfare W ork in Pennsylvania. Depart ment of Child Helping, Russell Sage Foundation, New York, 1915. Burr, Iva EL; The problem of dependent colored children, pp. 37-42. Puncheon, Mrs. E. A . : Advantages and limitations of placing-out work, pp. 92-94. Solehberger, Edwin D .; The standardization of placing-out work, pp. 95-97. Wharton, Brom ley: The care of dependent children in Pennsylvania, pp. 47-50. Stewart, William Rhinelander; The Philanthrophic W ork of Josephine Shaw Lowell. The Macmillan Co., New York, 1911. Extract from Mrs. Lowell’s report to the State board .of charities (1889.) on the waste of institutional care 'for dependent children, pp. 276—283. The Development of Catholic Charitable Work in the Archdiocese of New York since May, 1920. Issued by Catholic Charities, April, 1922. Child-caring agencies placing out children, p. 53. Warner, A m os G .: American -Charities. Revised by Mary Roberts Coolidge. Third edition. Thomas Y. Crowell Co., New York, 1919. Dependent children : Systems o f ca re; institutions versus family homes, pp. 248—284. -CONFERENCE PROCEEDINGS. C H IL D -W E L F A R E CONFERENCES. Conference on the Care of Dependent Children, held in Washington, D. C., January 25, 26, 1909; Proceedings. Senate Document No. 721. Government Printing Office, Washington, 1909. The conference popularly known as the “ White House Conference,” called by President Roosevelt to consider the care o f dependent children as a national problem. Its membership, was made up of men and women from nearly every State in the tteion actively engaged in the care of dependent children, and they represented all the leading religions bodies. The addresses an child placing: “ The" evolution of the child-placing movement,” by Hastings H. Hart, and “ The home versus the institu tion,” by Rabbi Emil G. Hirsch, wore followed by brief discussions pf the theory and problems o f child placing by leaders in the child-earing field, and recommendations endorsing foster-home care were embodied in the conclusions. Children’s Bureau, U. S, Department of Labor; Standards o f Child W elfare; " a report of the Children’s Bureau conferences, May and June, 1919. Pub lication No. 60. Washington, 1919. Separate No. 4. Children in Need &£ Special Care and Standardization of Child-Welfare Laws. Arnold, Victor P. : W hat constitutes sufficient grounds for the removal of a child from his home, pp. 345-350. Butler, Edmond J. : Standards of child placing and supervision, pp, 353-360. Curry, H. Ida : Child-caring work in rural communities, pp. 363-367. Hart, Hastings H. ; The conclusions o f the W hite House Conference—ten years after, pp. 339-344. Kelso, Robert W . : The responsibility of the State, pp. 307-312. W illiam s, C. V. : State supervision of agencies and institutions, pp. 313-318. Minimum standards for the protection of children in need of special care, pp. 440-444. -----------: Minimum Standards for Child W elfare Adopted by the Washington . and Regional Conferences on Child Welfare, 1919. Publication No. 62. Washington, 1920. Resolutions on standards relating to children in need o f special care. Principles governing child placing, pp. 12—13. —--------: Standards of Legal Protection for Children Born Out of W edlock; a report of regional conferences held under the auspices of the U. S Chil dren’s Bureau and the Inter-City Conference on Illegitimacy. Publication No. 77. Washington, 1921. The discussions and resolutions of the conference Include recommendations relative le standards -of care for children surrendered to child-placing agencies. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 250 FOSTER-HOME CARE FOR DEPENDENT CHILDREN, Annual Conference of the Children’s Hom e and W elfare Association: P ro ceedings, 1919. Dysart, Dr. J. P. : Thirty years of child placing, pp. 2-10. History o f the development of the National Children’s Home and Welfare Association. Reynolds, Wilfred S. : Standards of child placing and supervision, a com mittee report, pp. 11-21. Report covers : Standards in agency's earliest contact with child ; choosing methods of care free and boarding foster-home care ; selection of the foster family ; selection o f the child for the family ; supervision. Conference on the Education of Backward, Truant, Delinquent, and Depend ent Children: P roceedings, 1914. Crouse, Meigs V. : The dependent child placed out, pp. 43-47. Sessions, F. J. : The dependent child in the institution, pp. 31-39. The two papers form the basis of a general discussion of the relative places and merits of institutional and foster-home care for dependent children, with especial reference to difficult or backward children. Child Conference for Research and W elfare (Clark U n iversity): Proceedings, 1909. G. E. Stechert & Co., New York. Hart, Hastings H . : The care of the dependent child in the family, pp. 144-152. Presents significant features of the White House Conference ; the note worthy agreement of representatives of many types of Child-caring agencies and institutions on foster-home care. Traces development of the system in the United States, noting variation in methods of the several States. American Association for the Study and Prevention o f Infant M ortality: Transactions. î 1914. Chapin, Henry D. : Are institutions for infants necessary? pp. 126-132. Discussion o f infant mortality rates for institutional infants, with statistics from English and American asylums ; advantages of boarding out. Gerstenberger, H. J., M. D. : The methods or the systems employed in caring for institutional infants abroad— more especially in Germany and Austria-Hungary, pp. 139-150. Typical systems of foster care for infants in Europe. Knox, J. H. Mason, Jr. : The care of institutional infants outside of institutions, pp. 133-138. Experience of various agencies in boarding out infants. 1915. Hess, Alfred F. : Institutions as foster mothers for infants, pp. 255-265. Discussion : Foster-home versus institutional care for infants, pp. 265-278. N A T IO N A L CONFEBENCES. Joint Annual Meeting of the National Children’s H om e and W elfare A sso ciation and the Child W elfare League of A m erica: Proceedings, 1923. Brewer, Rev. E. J. : Utilization of local resources by field workers in rural communities, pp. 14-16. Reviews the possibilities of cooperation on the part of the child-placing agency with local médical, legal, and religious resources. Brown, Rev. F. R. : The field worker, pp. 16-19. Holland, Mary E. : Investigation and reception work for children, pp. 6-10. A discussion of the different phases of case study essential to efficient child placing. Megée, M arth a: Supervision and care of placed-out children, pp. 10-14. Technique of reception, investigation, physical and mental examinations, home finding, supervision, and record keeping. Stoneman, A. H. : The relation between public and private child-caring activities— from the standpoint of a private child-caring agency, pp. 19-22. Workum, Ruth I. : The relation between public and private child-caring activities— from the standpoint of a children’s protective society, pp. 22-24. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A P P E N D IX E S . 251 National Conference of Social Work [prior to 1917, National Conference of Charities and Correction] : Proceedings. 1875. Carpenter, Mary : W hat shall be done for the neglected and criminal children of the United States? pp. 66-76. Discussion, pp. 78-79. Statement of the grave condition of neglected children in the United States in 1875; mingling of children and adult paupers in almshouses; application of English boarding-out system to American conditions. Resolutions presented by William Pryor L'tcbworth, recommending legislative provision in the several States ,for the: placing of dependent children in family homes and the standardization of visiting agencies, were unanimously adopted by the conference. , 1876. Brace, Charles Loring vagrant children, pp. Theory and practice children in families in : The “ placing-out ” plan for homeless and 135-144. Discussion, pp. 145-150. of the New York Children’s Aid Society in placing rural communities of the West, 1877. Letch worth, W illiam Pryor : Report of the Committee on Dependent and Delinquent Children, pp. 60-74. Review of methods of provision for dependent and delinquent children in New York State ; number in institutions ; work toward removal from almshouses. Discussions on institutional care : Legal limitations of time chil dren should be kept in institution, placing out in fam ily homes,, standardized visitation recommended, pp. 74-80, 95-99. 1879. Leonard, Clara T. : Family homes for pauper and dependent chil dren, pp. 170-176. 1880. Richardson, Anna B. ; Massachusetts plan of placing and visiting children, pp. 186-200. Methods of the visiting agency of State Board of Charities of Massachu setts in securing good family homes under efficient supervision ; rules for hoarding out children. 1881. Lesley, Susan I. : Foundlihgs and deserted children, pp. 282-286. Advocates placing children in family homes rather than in institutions. Putnam, Elizabeth C. : The work o f the auxiliary visitors appointed to assist the department o f the Massachusetts State Board in charge of the visitation of placed-out children, pp. 287-301. Review of systems of visitation of placed-out children employed bv various agencies in England and in the United States, pp. 293-296. 1884. Foster, John M. : Ten years of child-saving work in Michigan pp. 132-142. Methods and results of the work of the State school, during its first ten years, in placing children in family homes and supervising them. Hart, Hastings H. : Placing out children in the West, pp. 143-150. A candid estimate of the system of placing out children in the west with statistics on. work done in seven counties in Minnesota. Putnam, Elizabeth C. : Volunteer visiting of State wards in con nection with official work, pp. 123-131. Describes the inauguration of the system of volunteer visitors bv the' Massachusetts State Board of Health, Lunacy, and Charity ; notes on the employment of volunteer visitors in Scotland, Ireland, England and Australia. 1885. Alden, Lyman P. : The shady side of the placing-out system nn 201-210.. ’ A thoughtful exposition of the abuses of the placing-out system based on the writer’s experience as superintendent of the Michigan State School A plea for differentiation of classes and scrupulous care in placing and supervision. 1888. Dana, Rev. M. McG. : Care and disposal of dependent children ; re port of the committee on children, pp. 236-241. Includes a brief survey of the placing-out system in comparison with other methods of care. Randgll,. C. ,D. : Michigan— The child ; the State, pp. 262-271. The Michigan system of child care is compared with -;the systems o f New York, Ohio, and California from the Standpoints of 'econdmy and efficiency. 1889. Shurtleiï, H. S. : State care of destitute infants ; the Massachusetts system, pp. 1-4. 1890. Hathaway, S. J. : Children’s homes in Ohio, pp. 208-213. The Ohio system of child placing and supervision. 72693°— 26------ 17 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 252 F O S T E R -H O M E C A R E F O R D E P E N D E N T C H IL D R E N , National Conference of Social Work— C ontinued. 1890. Putnam, Elizabeth C. : Dependent children in this country and abroad, pp. 190-202. An account of tlie work done for children in reform schools and similar institutions, and by boarding out in France, England, and New South Wales ; objections to boarding out stated and answered. 1886. Letchworth, W illiam Pryor : Children of the State, pp. 138-157. The English and Scotch plans of boarding out children, pp. 145-146. Richardson, Anne B. : Supplementary work for dependent and delinquent children in Massachusetts, pp. 131-138. Smith, Virginia T. : Preventive work among children ; report of the committee on children, pp. 124-131. Presents results of an inquiry into the provision made by the various States for the care of dependent children, showing that the great majority of simply dependent children were (in 1886) still in poorhouses with adult paupers or returned to former surroundings. Advocates the boardingout system. 1887. Smith, Virginia T. : Economy of the State in the care of dependent and neglected children, pp. 238-242. Considers the advantages of the county temporary home as a step in child placing in Connecticut. 1891. Finley, John H. : The child problem in cities, pp. 124-135. Problem of the dependent child in the city ; its solution through placing out children in rural districts; example of Ireland, Scotland, and certain cities in Germany, pp. 133-135. Folks, Homer : The care of delinquent children, pp. 136-144. Presents results of an experiment of the Children’s Aid Society of Pennsylvania in placing out delinquent children under 14 years of age in carefully selected foster homes in thè country. 1892. Folks. Homer : The child and the family, pp.' 419-423. Work of the Pennsylvania Children’s Aid Society in providing familyhome care for defective and delinquent children through its boarding-out system ; methods of investigation ; standards of care. Gregg, F. M. : Placing out children, pp. 415-419. Theories and methods of the Children’s Home Society of Chicago. 1893. Randall, G. D. : Report of the committee on child-saving work, pp. 131-139. ( S ee also General References, pp. 234-235, ‘'H isto ry of Child Saving in the United States,” for full report of the Commit tee on the History of Child-Saving W ork.) 1894. Folks, Homer : The removal of children from almshouses, pp. 119-132, n History of the movement to exclude children from almshouses; other methodb .H.,^re-—private asylums, county homes, State systems of institu tion and placing out, boarding-out system. Lewis, Herbert W . : Terms on which children should be placed in families, pp. 140-146. Outlines terms for child placing for (1) adoption, (2) indenture, (3) probation, (4) boarding out. Merrill, Galen A .: State care for dependent children; the advan tages and disadvantages of such a system, pp. 146-148. Pemberton. Miss C. H. : The boarding system for neglected children, pp. 137-139. Boarding-out methods of. the Children’s Aid Society of Pennsylvania. ... „ 1896. Folks, Homer : State supervision of child-caring agencies, pp. 209-212. Emphasizes necessity for State supervision of official and private childplacing agencies. Ring. Thomas R. : Catholic child-helping agencies in the United States ; the motive, the methods, and the results, pp. 326-341. 1897. Letchworth, William Pryor : Dependent children in the family home, pp. 94-105. , ti , , , j . comparison, of the methods of the various Stolte:, systems- of care for dependent children. •■■ • https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A P P E N D IX E S . 253 National Conference of Social Work— Continued. 1898. Matthews, Byron C .: The duty of* the State to dependent children, pp. 367-374. adwm tagifofSboarding1aut!ifC ° Ver the institution for children; especial Mulry, Thomas M .; The home or the institution, pp. 362-366. ^ i elL ta£ es ,issue with the extremists on the placing-out or board ing out side in the long debate in the national conference on family-home care versus institutions^ for dependent children. - Points out the necessity for institutional care for certain classes of children, the difficulties of boaiding out children in large cities; the problems of securing religions instruction and. of safeguarding the rights of children in family homes. 1899. Hall, Edward A .: Destitute and neglected children; the relations between their care and education in the home and in the institution pp. 177-188. child-helping methods on both the placing-out and the instiiuxioH plan. Hebberd, Robert W . : Placing out chldren ; dangers of careless methods, pp. 171-177. Points out the source of reproach for the system o f placing out in the different and careless methods of those State officials whose main obiect is economy. Discusses some of the problems of placing o u t: Boarding home or institution for temporary care before permanent placement • placement m county versus village or city homes; conserving the religious faith of parents. Mulry, T. M .: The care of destitute and neglected children; report o f the committee on children, pp. 166-170. Notes the greater spirit of accord in the conference of 1898 with reference to the relative places of foster-home and institutional care for dependent cm Iorn i; gives an impartial presentation of the various' methods of care; emphasizes the necessity for the preservation of the child's own home when ever possible. 1900. Gardner, W . T . : Home placing, pp. 237-242. Merrill, Galen A . ; Some recpn-t developments in child saving, nn 226-230. Montgomery,. J. B . : The State public-school idea at its best, pp. 231—236. 1901. Butler, Amos W . : Saving the children; report of the committee on children, pp. 204-213. Survey of the progress in the methods of care for dependent and neglected children during the last, century and statement of conditions in America in 1901 ; review of conflict between advocates of the institutional and placingout systems; summary of phases of care for State wards. Tables and references showing status of child-saving work, especially so far as. sup ported at public expense in the different States, pp. 214-216. Byers, Joseph P . : The county homes of Ohio, pp. 236-238. Douglass, John W . : The Board of Children’s Guardians, District of Columbia, pp. 239-244. Ellison, F. E . : Child saving under State supervision without a State school, pp. 230-233. Henderson, Charles R .: Neglected children in. neglected communities pp. 219-224. ’ Randall, C. D . ; Child-saving wdrk under State supervision w th a State school, pp. 224-229. Woollen, E van s: The Indiana Board of Children’s Guardians act pp. 234-236. 1902. Randall, C. D . : Progress of State cafe for dependent children in the United States, pp. 243-249. Discussion: Methods of investigation employed in New Jersey Illi nois, Massachusetts, District of Columbia, Indiana, arid Kentucky pp. 418-422. • ■. 1903. Hart, Hastings H . : ’ Cotrirnori sense and cooperation in child saving pp. 180-187. V ^ h i i >.;1: v: Review of the ejKi.ohs' in. the <ffiild-savin'g. movement Jin the United States: Slow growth, 1848-1898; rapid development, 1898—1903: end of : controversy over institution versus family ¿are; 1899 ;■'new* development ■ «•«ting -.from'' the enactment of juvenile-court .laws affecting dependent , steps , toward securing evident coordina'Hon of all legitimate child-saving agencies. ’ ' https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 254 F O S T E R -H O M E C A R E F O R D E P E N D E N T C H IL D R E N , National Conference of Social Work— Continued. 1904. Fairbank, Margaret E . ; Visitation of children placed in families, pp. 324-327. Jacobs, B ertha: The work of one State, pp. 317-320. Kinkead, T. L . : State supervision of dependent children, pp. 342-349. 1906. Hart, Hastings, H . : Report of the committee on children, pp. 87-97. Principles. upon which there is substantial •agreement among those engaged■in child-caring work with regard to child placing; evolution of principles. Pear, William H . ; The full measure of responsibility, pp. 96-106. The social obligation assumed by workers in the child-caring field; essential principles to be observed in fulfilling the obligation; practical suggestions. 1907. Durand, George H arrison: The study of the child from the stand point of the home-finding agency, pp. 256-264. Historical sketch of the organization and growth of the National Children’s Home Society. Evans, Mrs. Glendower: W hat do you know of children after they leave your home or institution?, pp. 274-278. The author stresses the need for better methods of aftercare of chil dren by institution and placing-out agencies. 1909. Hart, Hastings H . : Unity of child-helping work, pp. 42-45. Outlines the processes of coordination among child-helping agencies. Johnson, Alexander: Child-placing; comparative . survey of the several States o f the United States. Report of the committee on reports from States, pp. 501-505. Reports by States on methods of child placing, boarding out, and super vision. 1910. Evans, Mrs. J. H . : Child placing by volunteers, pp. 131-134. Record of the volunteer work of the Children’s Aid Society of Western Pennsylvania. Solenberger, Edwin D . ; Records of child-placing agencies, pp. 123-131. Definite instructions in record making, including suggestions for & record system containing data of value to students of social problems. 1911. Brackett, Jeffrey R . : Tendencies in the care of destitute and neglected children in Massachusetts, pp. 93-98. Reports from States : Child placing and children’s homes, pp. 446-447. 1913. Barnabas, Rev. B r o th e r R e p o r t pf the. committee, pq ghildren, pp. 276-287. The’ function of the institution in a-general scheme of care* for dependent children. 1914. Reynolds, Wilfred S . : Standards of placing out in free family homes, pp. 183-189. Reasons for periods of development and reaction to be noted in the his tory of placing children in free family homes. Solenberger, Edwin D . : Standards o f efficiency in boarding out chil dren, pp. 178-183. 1915. Carstens, C. C .: A community plan in child-helping work ; report o f the committee on children, pp. 92-106. Care for dependent, neglected, and delinquent children: Placing out, pp. 97-101. 1916. Chalfant, Charles L . : Child-placing societies and the public schools, pp. 566-568. . , ,/ <4 - „ States the problem of the dependent child in public-school classes and suggests the development of a receiving-home school as the solution. 1917. Brown, John A .: The Indiana child-welfare plan, pp. 326-329. Development of child placing in Indiana. Kingsbury, John A . : Municipa’ welfare work as exemplified in New York’s treatment of dependent children, pp. 371-379. Includes a review of the activities of the children’s home bureau in child placing, pp. 374-376. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A P P E N D IX E S . 255 National Conference of Social Work— Continued. 1918. Thurston, Henry W . : A plan for the continuity o f activity for the division on children of the national conference ; report of the com mittee on children, pp. 47-56. Brief review of the child-welfare situation, 1873-1893, from committee report of 1893; summary of the contributions o f the nineteenth century to the child-welfare movement. 1919. Taft, Jessie; Relation of personality study to child placing, pp. 63-67. Placing out the difficult child : Tbo nrobi cm of expense ; what can be done without a psychiatrist ; methods of personality study : objectives. 1920. Bidgood, Lee: The juvenile court and the dependent child, pp. 109lii. Arguments for the cooperation of the juvenile court with child-placing agencies. Ricks, Judge James H oge: The place of the juvenile court in the care of the dependent child, pp. 104-107. The function of the juvenile court in guardianship and adoption proceed ings and in insisting upon standardized foster-home care. W illiam s, C. Y. : Principles to be employed by child-caring organiza tions in first contact with cases ; a summary of thè report of the subcommittee on dependent children, pp. 99-104. Standards for agencies placing children in family homes, pp. 101-103. 1921. Reynolds, W ilfred S. : Admission to child-caring institutions and so cieties of neglected and dependent children, pp. 93-95. ♦ 1922. Theis, Sophie Van Senden: Minimum qualifications of a good child placing agency, pp. 121-124. Discussion of the necessity of understanding both children and foster parents, of applying this knowledge for the benefit of both, and_ of em bodying the results of this knowledge into methods and general principles. National Conference of Catholic Charities: Proceedings. 1910. Doherty, W illiam J. : Placing out of children, pp. 292-300. States the sanctions for the placing of children in foster homes as a Catholic policy ; traces development of the system by Catholic agencies ; methods and standards worked out by the Catholic Home Bureau for De pendent Children of New York. Fee, James E .: Massachusetts system of boarding out children, pp. 300-305. Significant features of the Massachusetts plan of boarding out infants, and dependent, neglected, and delinquent children. Discussion: Problems confronting agencies undertaking systems of boarding out or placing in free homes in different sections of the United States owing to varying Social conditions, educational re quirements, and child-labor laws, pp. 309-333. 1912. Doherty, William J. : Selection of children for the foster home, pp. 264-272. Analysis of elements entering into the question of what children should be selected for placement and what children are proper subjects for insti tutional care : Parental or family ties ; physical or mental defects; charac ter and training. 1916. Tinney, M a ry: An interpretation of 3,000 placements by the New York Catholic Home Bureau, pp. 181-191. Analyzes the impediments to general placing out found in family ties, in the age of the child, and in physical and mental defects, and formu lates standards of investigation and supervision from a review of actual placements. 1920. Butler, Edmond J. : Standards of child placing and supervision, pp. 92-98. 1921. Kroha, Rev. Joseph: Report of the Committee on Children ; intro duction to général discussion on home finding in its restricted sense of methods employed to discover suitable family homes— boarding bornés, free hémès, working hbmes, pp. 75-79. Butler, Edmond J. : Suggestions from the experience of the Catholic Home Bureau in finding free homes for approximately 5,000 children during a period of 23 years, pp. 79-80. Doherty, Rev. John: Family homes versus orphan asylums, pp. 80-81. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 256 F O S T E E -H O M E C AEE F O E D E P E N D E N T C H IL D R E N , National Conference of Catholic Charities— Continued. 1921. Judge, Rev. M. J . : Methods of Diocesan Bureau o f Social Service. Hartford, Conn., in- finding homes and in supervising Catholic children placed out by Catholic agencies and by the State Board of Charities, pp. 81-83. Nagle, Anne Sindell: Methods of securing foster homes employed by the Society of St. Vincent de Paul, Baltimore, pp. 83-84. Wagner, Rev. Marcellus: Plan for supervision of Catholic children in boarding homes by workers representing the Catholic Charities in the Boarding-Home Bureau of the Council of Social Agencies in Cincinnati, pp. 85-86. 1922. McEntegart, Rev. Bryan J . : Religious standards for family homes of children under public care, pp. 152-157. National Conference of Jewish Charities: Proceedings. 1902. Mitchell, M a x : Boarding out Jewish children in Massachusetts, pp. 122-125. S ee also Reports of Studies and Investigations, p. 251, articles by Lee K. Frankel. 1906. Bernstein, Ludwig B . : The problem of boarding and placing out Jewish dependent children, pp. 75-89. The theoretical aspect of the problem of boarding out and placing out Jewish dependent children; practical results achieved by the New York Bureau of Boarding and Placing Out Jewish Dependent Children; presentation of typical cases. ' 1918.1 Berolzheimer, R u th : The dependent child. Methods of care adapted to different types, of dependency— care o f fatherless children with thfeir own mnthjers 1 ^orphans ih foster homes; placing out temporarily dependent children. W yle, Arm and: The small child-caring institution. Value of small institutions in caring for children unfitted for foster home care. Discussion: Problems of foster-home care. ST A T E CONFERENCES. California State Conference of Charities and Corrections: Proceedings. 1906. Brown, Julius A. : Care of dependent children ; statistical comparison, pp. 92-93. Comparison of the cost of the institutional method of care for children in California with that of the placing-out systems of Michigan, Minnesota, Wisconsin, and Indiana. 1911. Lillie, Emma W . : Home placing for dependent children, pp. 77-80. Outlines the aims and methods in child placing of the California Native Sons and Native Daughters Central Committee on Homeless Children. Slingerland, W . H . : Child dependency and home placing for dependent children, pp. 90-94. Review of the child-placing situation in California and the possibilities for the development of placing-out work through existing agencies. 1915. Brusie, Mary E. : Child placing, pp. 51-56. Describes the methods of home finding and supervision employed by the Society of Native Sons and Native Daughters of California. 1916. Felton, Katharine : The place of the boarding-home system in child caring work, pp. 80-82. Relative value of foster-home and institutional care for children of different types and ages. Connecticut State Conference of Charities and Corrections: P roceedings . 1910. Hart, Hastings H. : The use of the family home for the care of neglected children, pp. 81-87. Tendencies in the development of the various placing-out systems in the United States. 1 Supplement to Jewish Charities, July, 1918. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A P P E N D IX E S . 257 Illinois State Conference of Charities and Correction: Proceedings, 1915. Published in Institution Quarterly, Yol. 7 (June, 1916). Healy, Dr. W illiam : Types of children as predeterminable for placement, pp. 173-175. The elements entering into the mental, physical, and social diagnosis of the young child, the older dependent child, and the delinquent child in its selection for family-home care. Iowa Conference of State Institutions: Proceedings, January, 1923. Published in Iowa Bulletin of State Institutions, Vol. X X V (January, 1923). Reed, R alph : Child placing, pp. 63-67. Presents the conditions of child placing in Iowa, indicating the need for trained social workers in each county, for revision of the adoption laws, and for a study of child-placing methods and institutions. Iowa State Conference of Charities and Correction: Proceedings. 1903. Slingerland, W . H . : Homes for dependent children in families, pp. 222-229. Principles underlying the development of the National Children’s HomeFinding Society; review of methods and results in Iowa. 1917. Slingerland, W . H . : Supervision of placed-out children, pp. 75-77. Standards for adequate supervision; typical systems of supervision in the United States. Kansas Conference of Charities and Corrections: Proceedings, 1916. Hosford, George L ew is: Cooperation in placing homeless children in homes, pp. 53-59. Evolution of home finding; cooperation : Offices of the juvenile court, of State boards, and of private agencies in the field of child placing. Maryland Conference of Charities and Correction: Proceedings, 1909. Carstens, C. C .: The responsibility of placing children in private families, pp. 166-172. Nature of the obligation which the child-helping agency assumes for the community in the selection of family homes for dependent children, especially those who are neglected, wayward, or defective. Minnesota State Conference of Charities and Correction: Proceedings, 1915. Published in a special edition of the Quarterly Bulletin o f the State Board of Control, September 1, 1916. Merrill, Galen A . : Aftercare of children placed in homes from the State Public School, pp. 82-85. Statement of the essential features of the Minnesota State School system of receiving, training, and placing out and supervising children. - - - - - - - - - - - : Proceedings, 1916. Published in a special edition of the Quarterly Bulletin of the State Board of Control, September 8, 1917. Davis, Otto W . : Standards of child placement, pp. 131-137. Standards for free and boarding homes. Missouri State Conference of Social Welfare. Robertson, Harriet M .: Report on the Work of the Children’s Bureau, January 1 to November 1, 1922. (Typewritten.) Reviews the work of the Missouri Children’ s Bureau in receiving and plac ing out children since its organization as a department. New York State Conference of Charities and Correction: Proceedings. 1901. Levy, S. D . : Placing out children, pp. 305-325. The author points out the perils of the boarding-out and placingout system indicated in reports of child-placing societies in England and in New York State. Advocates an institutional system together with limited boarding out under persistent and vigilant inspection. 1906. Folks, H om er: Placing children in fam ilies; report of the committee on the care of children, pp. 66-t67. Notes disposition among workers in the child-caring field to effect an adjustment of family and institutional ca re; advocates conservative development of placing-out work, with refinement of methods, together with development of modern institutions. 1909. Levy, S. D . : Scope and limitations of the boarding-out method of tak ing eare of dependent and orphan children, pp. 125-143. Experience of Hebrew Sheltering Guardian Society in boarding out 1,000 children, compared with their institutional work. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis '258 F O S T E R -H O M E C A R E F O R D E P E N D E N T C H IL D R E N . New York State Conference of Charities and Correction— Continued. 1911. Bernstein, Ludwig B. : Report of the committee on children, pp. 220-223. Report includes an outline of a policy with regard to foster-home and institutional care for children available for either type. Discussion: Foster-home versus institutional care for infants, pp. 226-227. 1912. TJiurston, Henry W . : The institution and the family, pp. 57-66. Necessity for thorough understanding of the background of the child before undertaking institutional or foster-home care, » Discussion: Methods followed in Massachusetts, Indiana, and New York in investigating the child’s background before placing out, pp. 66-75. 1913. Lattimore, Florence L. : W hat we know about 10,000 placed-out children in New York State, pp. 51-70. The author points out the impossibility of giving a social accounting of the system of child placing in terms of child progress because of the meagerness and statistical character of records of child-placing agencies, and the need for a new conception of the annual report, and for a central organization for compiling, correlating, interpreting, and publishing facts. 1914. Theis, Sophie Van Senden : Recent developments in the placing out of children, pp. 59-67. An analysis of the developments in technique of child placing due to récent studies in child psychology. 1915. Folks. H om er: Report of special committee on standards of placing out, supervision, and aftercare of dependent children, pp. 274-289. Statement of standards for child placing by placing-out societies and Institutions formulated as a result of the comparison of methods and experiences of the Catholic Home Bureau for Dependent Children of New York and the State Children’s Aid Association. 1916. Arnold, C. W . H. : An adequate system of care for destitute, néglected, and delinquent children in a community, pp. 109-122. 1917. ' Thurston, Henry W . : The placing out and boarding out of dependent children, pp. 234r-244. Fundamental principles in successful work for the individual child. Emphasizes the need of a unit for care under one management or in close cooperation, including institutional care, boarding put, and placing out in free homes. Discussion: Differentiation of terms “ boarding o u t” and “ placing out ” and the varying requirements of each system, pp. 244-253. 1919. Brace, C. Loring : The placing of dependent and neglected children over 16 years of age, pp. 247-253. Gives the experience of the Children’s Aid Society of New York City in placing out older boys after a period of training in its farm school. 1920. Discussion : Placing out and adoption of children, by Edmond J. Butler, H. Ida Curry, Mary A. Steer, pp. 102-105. 1921. Theis, Sophie Van Senden : Adoption and guardianship in New York State; with discussion, pp. 162-180. Discussion of the inadequacy of the adoption, laws in New York, with concrete cases or resulting injury to children. Brettle, Katharine L. : Needed legislation in reference to placing out and boarding out, pp. 179-190. Cites cases illustrating the difficulties resulting from the lack of defini tion of terms and the general confusion of laws relating to child placing. ‘Warner, Charles H . : Suggested changes in our adoption law s; with discussion, pp. 191-199. Presents cases arising under adoption laws showing imperative need for revision of legislation relative to investigation, trial period, and appear ance before the court of all parties to adoption. Ohio Welfare Conference (formerly Ohio State Conference of Charities and Corrections): Proceedings, 1913. Published in the Ohio B ulletin o f Chari ties and Correction, April, 1914. Longman, R. A. : Visitation and visiting agents, pp. 71-74. Qualifications of a successful visiting agent of à child-placing agency. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A P P E N D IX E S . 259 Ohio W elfare Comerence (form erly Ohio State Conference of Charities and Corrections): Proceedings, 1014. Published in the Ohio Bulletin of Chari ties and Correction, January, 1015. •• Hagerty, J. E . : Typical systems for the care of dependent children in the United Stales, pp. 184-137. i Systems of child placing in Michigan, New Jersey. Massachusetts, and Indiana. -- - - - - - - - - - - : Proceedings, 1018. Published in the Ohio Bulletin of Charities and Correction, February, 1917. Reynolds, W . S . : Essentials in placing children in foster homes, pp. 13-18. Williams, C. V . : Child-placing conditions in Ohio, pp. 18-23. - - ------ : Proceedings, 1919. Published in the Ohio Bulletin of Charities and Corrections, July, 1920. Williams, C. V .: A qualified visitor and how to obtain one, pp. 61-65. - - - - - - - - - - - - : Proceedings. 1922. Published in the Ohio Bulletin of Charities and Corrections, December. 1922. Lewis, Carrol H . : The placing-out society, pp. 151-152. Pennsylvania Conference of Charities and Correction: Proceedings, 1912. Witherbee, Frank D . : Care o f normal dependent children in Pennsylvania; report of the committee on children, pp. 79-90. Work o f home-finding societies ; essential requirements, pp. 86-90. Virginia Conference of Charities and Correction: Proceedings, 1917. Walker, T. C .: Child helping in Virginia, pp. 46-68. Describes the results of work in placing out colored children in Virginia. C IT Y CONFERENCES. New York City Conference of Charities and Corrections: Proceedings. 1910. Lowenstein, Solomon: Report of the committee on children, pp. 37-42. A discussion of the relative merits of the systems of foster-home and institutional care, with especial reference to the situation in New York City. 1917. Hess, Dr. Alfred F . : Institutional care versus boarding-out homes for children under two years, pp. 216-219. Discussion: Institutional and foster-home care, pp. 219-226. 1919. Goldwasser, I. E d w in : Some conflicting problems in child welfare, pp. 132-138. The problem of family home or institution; tests of the validity of either method of care. ARTICLES I N PERIODICALS. Annals of the American Academy of Political and Social Science (Philadelphia). Conant. Richard K , : The Massachusetts Department o f Public Welfare. Vol. 105 (January, 1923), pp. 119-121. Includes a brief review of the child-placing work of the division of child guardianship. Curry, H. Id a : Child welfare in the rural field. Vol. 105 (January, 1923), pp. 199-205. Includes notes on child placing in New York counties. Doran, Mar^v S . : Foster-home standards for socially handicapped children. Vol. 98 (November, 1921), pp. 105-111. Methods of securing standardized foster homes. Goddard, Henry H . : A scientific program for child welfare. Vol. 105 (January, 1923), pp. 256-266. The author analyzes some of the fundamental differences in the nature, char acter, and capacities Of children and points out that wise procedure in solving problems of child welfare must be based upon thorough study of the individual child. Hewins, Katharine P . : Supervision of placed-out children (with special reference to those who should ultimately be returned to their fam ilies). Vol. 98 (November, 1921), pp. 112-120. Standards for supervision of the child’s own home and of the child in the foster home. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 260 F O S T E R -H O M E C A R E F O R D E P E N D E N T C H IL D R E N . Annals of the American Academy of Political and Social Science— Continued. Kelsey, C a rl: The importation of dependent children. Vol. 18 ( September. 1901)• pp. 278-286. j Laws of Michigan, Indiana, Illinois, Kansas, Missouri, and Pennsylvania relatmg to importation of dependent children ; discussion of policy States should adopt. Murphy, J. Prentice : The foster care of dependent and neglected children. Vol 77 (M ay, 1918), pp. 117-130. A study in the application of the principles of social case work to the practical problems of foster-home care. Catholic Charities Review, The. [Published by National Conference o f Catho lic Charities, New York City.] Butler, Edmond J . : Standards of child placing and supervision. Vol. 4 (November, 1920), pp. 267-272. Doherty, Rev. John: A study of a child-caring agency. Vol. 4 (June* 1920), pp. 181-185. System of boarding out and placing out of the Henry Watson Children’ s Aid Society of Baltimore. FrieS °uis ' " Scattere(i homes ” for children. Vol. 5 (December, 1921), 332 ... hopes ” system in England. Extracts from pamphlet issued bv State Children s Association of England (1915). Articles, unsigned, and editorials. The placing-out system in New York. Vol. 1 (April, 1917), pp. 118119. The element of religion in child placing. Vol. 6 (M ay, 1922), p. 148. Religious welfare of children in family homes. Vol. 6 (September 19 22 ) , p. 222. The Catholic charities of the Archdiocese of New York. Vol. 7 (M ay 19 23 ) , pp. 176-177. Catholic child-caring standards now ready. Vol. 7 (June, 1923), dd 206-207. Century, The (New York ). W illsie, Honoré: The adopted mother. Vol. 104, U. S. 82 (September 1922), pp. 654-668. Child, The [Published by Children’s Charities (In c.), Chicago. Publication discontinued.] Arne, Rune E . : Should the juvenile court act as a child-placing agency in matters of adoption? W hat should constitute an adequate placing-out agency? Vol. 2 (September, 1913), pp. 20-22. Dickinson. S. W . : Child placing and eugenics. Vol. 1 (February 1913) pp. 20-23. H all, Frank D . : How far can the protection of neglected and cruelly treated children be combined in the placing-out agency? Vol. 2 (Sep tember, 1913), pp. 7-9. ----- — : Obtaining family histories for child-saving organizations Vol 1 (February, 1913), pp. 32-35. Hart, Hastings H . : Standards of child placing. Vol. 1 (M ay, 1912) pp 22-24. Hummer, Katherine: Child placing. Vol. 2 (September, 1913), pp. 26-28. Quivey, E. P .: W hat is the part of wisdom as to the returning of wards to kindred? Vol. 2 (March, 1913), pp. 14-19. Reynolds, W . S . : Public supervision of child placing. Vol 1 (August 1912), pp. 52-54. • . * Slingerland, W . H . : Some practical definitions in placing-out work. Vol. 1 (August, 1912), pp. 22-23. Solenberger, Edwin D . : Boarding out children in Pennsylvania. Vol. 1 (April, 1912), pp. 25-27. Family, The. [Published by the American Association for Organizing Family Social Work, New York.] Murphy, J. Prentice: A new deal for Rhode Island’s children. Vol. 3 (March, 1922), pp. 3-6. Progress in the development o f the system of foster-home care in connection with the Rhode Island State Home and School. Taft, Jessie: The placing of children who are difficult to adjust. Vol 4 (April,-1923),. pp. 39-46. An analysis, from illustrative cases, of factors entering into behavior diffi culties of children, in their relation to the problems of child placement. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A P P E N D IX E S . 261 (prior to 1919, J ew ish C h a rities). [Published bv the National Conference of Jewish Social Service. New York City.] Frankenstein, Lina H. : Some difficult problems of a child-piacing agency. Vol. 9 (March, 1919), pp. 231-232. Mandel, Jennie: Hunting homes. Vol. 4 (June, 1914), pp. 9-10. Principles and methods of the Jewish Home-Finding Society of Chicago. Jew ish Social Service [Chicago.] Chapin, Henry Dwight. M. D. : Are institutions for infants necessary? Vol. 64 (January 2, 1915), pp. 1-3. Discussion of the relative values of hospital and home care for sick infants and of asylum and foster-home care for foundling or abandoned infants SDeedwell method of systematizing the boarding out of infants. ’ P M edical R ecord . [New York City.] Chapin, Henry Dwight, M. D. : Problems of boarding out, with an at tempted solution. (Read before the Pediatric Section New York J l ad® y of Medicine, March 11, 1920.) Vol. 97 (April 24, 1920), pp. Journal o f the A m erican M edical A ssociation . In ten fm orta U tf ratesS]^ edWe11 Syetem of boardinS «ut as a method of lowering ^ ! n?.r 5 v Advantages of home over institutional care. (Read before the Pediatric Section, New York Academy o f Medicine March 11 1920 1 Vol. 97 (April 24, 1920), pp. 692-693. ' Advantages o f home care for well infants illustrated bv experience of Gram ercy Nursery. New York City ; for sick infants, by that of health center of Bowling Green Neighborhood Association, New York City. center of and Child [Published by The American Child Health Association Washington, D. C.] Taft, Jessie: Setting the solitary in families. Vol. 3 (April 1922) pp 155—166. » /» • M o th er A study o f concrete cases in child placing, emphasizing the necessity for tho chUd Cati° n ° f tbe principles of sound case work to the problems of the individual N ew Y ork M edical Journal. [New York City.] Chapin, Henry Dwight, M. D. : Systematized boarding out versus institutional care for infants and young children. (Read before the Section i ?£lat,r-;cs of the New York Academy of Medicine, May 10, 1917 ) Vol. 105 (June 2, 1917), pp. 1009-1011. bofrd?ng-outiVcaretUdy ° f mortallty of lnfants under institutional and supervised [Formerly Charities and Charities and the Com m ons. Survey Associates (In c.), New York.] f Atkinson, Mary Irene: Ohio’s dependent children. Vol. 44 (July 17, 1920), S u rv e y , The. PP* 0 1 4 —D io . ("du des an account of methods of the children’s welfare <1enactment S huse^°ard ° f State Charities in placing out children, with copies of schedules Chapin, Henry Dwight, M. D. : The Speedwell plan of child saving in theory and practice. Vol. 41 (October 26, 1918), pp. 85-91. y ^^DeV?l0piI? ent 5of„ the unR system of intensive boarding out— methods • descrin tion of units ; similar work by Œ u vre Grancher in France. ’ aescrlpGuibord, Alberta S., M. D. : The handicap of the dependent child. Vol 44 (August 16, 1920), pp. 614-616. Influences which make for social inefliciency and delinquency in the dependent child , value of supervised family care in combating them. P Hewins, Katharine P. : The child in the foster home. 1922), pp. 963-964. Vol. 47 (March 18 ' • i« , stanch (li.odrichrhe CMld in Foster Home>” by Sophie Van. Senden Theis and ConKingsiey, Sherman C. : The substitution o f family care for institutional care of children. Vol. 10 (April 18, 1903), pp. 387-392. m,in?as0*ns ¿2? substitution of family care for institutional care by the Boston r . S°,cJety> drawn from the experience of institutional manage ment as reflected in the annual reports from 1833 to 1900 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 262 F O S T E R -H O M E C ARE F O R D E P E N D E N T C H IL D R E N , Survey, The— Continued. Lane, Winthrop D . : Mothered by the c ity ; an appraisal of the child-placing work of the New York Children’s Home Bureau. Yol. 39 (January 19, 1918), pp. 435-439. Description of a practical demonstration of what may be done In child-placing work by a public agency. Murphy, J. Prentice: Squandering childhood’s heritage of health. Vol. 49 (October 15, 1922), pp. 102-103. Statement of the need for adequate medical service in diagnosing the needs and planning for the social welfare of dependent children in institutions or foster homes. Puschner, Emma C .: Foundlings are keepings. Yol. 51 (December 15, 1923); pp. 330-331.' Work of placing-out department of the St. Louis Board of Children’s Guardians in caring ior abandoned babies. Unsigned articles: Án adopted mother speaks. Vol. 47 (March 18, 1922), pp. 962-963. A boarding mother speaks. Vol. 49 (November 15, 1922), p. 241. Sifting the orphans. Vol. 49 (February 15, 1923), pp. 638-639. W o rld ’s W o rk , The. [Garden City, New York.] Fearing, Alden: A home and a chance for life. Vol. 28 (June, 1914), pp. 192-197. Review of the growth of the child-placing movement in the United States. REPORTS OF STUDIES AND INVESTIGATIONS. New York State Charities Aid Association, 105 East Twenty-Second Street, New York City. How Foster Children Turn O u t: A study by the State Charities Aid Asso ciation. Made under the direction o f Sophie van Senden Theis. Publi cation No. 165. 1924. A study o f the social adjustments of 910 children who grew up in foster homes. Emphasis is laid upon the family backgrounds, the value of the foster relation ship, the response of the children to educational opportunities, their occupations, standards o f conduct, and general place in the community life. Children’s Bureau, United States Department of Labor, Washington. Illegitimacy as a Child-Welfare Problem: P a rt, 1— A brief treatment of the prevalence and significance of birth out of wedlock, the child’s status, and the State’s responsibility for care and protection (with bibliographical m aterial), by Emma O. Lundbérg and Katharine F. Lenroot. Publication No. 56. 1920. Care of children in institutions and family homes; public supervision and care, pp. 49-56. Bibliography : Methods ef care, pp. 75-95. Illegitimacy as a Child-Welfare Problem: Part 2— A study of the original records in the city of Boston and in the State of Massachusetts, by Emma O. Lundberg and Katharine F. Lenroot. Publication No. 75. 1921. Historical development of the Massachusetts system of child placing, pp. 2 5 -3 0 : child placing by agencies studied, p. 54; measures of protection— placing in foster homes, pp. 66-71 ; .children eared for by social agencies (Boston),,pp. 147-227; children under care of division of State minor wards, pp. 273-324 ; adoption, pp. 333—339. Illegitimacy as a Child-Welfare Problem: Part 3— Methods of care in selected urban and rural commun'ties. Publication No. 128. 1924. Includes discussions of methods of agency caré of children apart from mothers, in boarding or free, homes, in Philadelphia, Milwaukee, New York City, rural New York, and Minnesotá. Children Deprived of Parental Care: A study of children taken under care by Delaware agencies and institutions, by Ethel M. Springer. Publication No. 81. 1921. Report includes a study of the work of agencies placing children in private homes, pp. 72—83. Child Dependency in the District of Columbia: An interpretation of data concerning dependent children Under care of public and private agencies, by Emma O. Lundberg and Mary E. Milburn. (In press.) Includes a study of child placing by the Board of Children’s Guardians of the District of Columbia, covering the policy of the board in regard to place ment ; comparative use of different types of placement; ’ types of family homes used; policy with regard to adoption. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis A P P E N D IX E S , 263 National Child-Labor Committee, 105 East Twenty-second Street, New Y ork ' City. Child W elfare in Alabam a: An inquiry by the National Child-Labor Com mittee, under the auspices and with the cooperation of the University of Alabama. Edward N. Clopper, Director. 1918. Child-caring institutions and home finding, by Lee Bidgood, pp. 163-204. Sco.pe of the study includes: Legal -phases of home finding, apprentice ship, adoption, and placement; placement by individuals; institutional plac ing-; the w ork.of the Alabama Children's Aid Society; lines of development; recommendations for legislation. Child W elfare in Kentucky: An inquiry by the National Child-Labor Com mittee for the Kentucky Child-Labor Association and the State Board of Health. Under the direction of Edward N. Clopper. 1919. Adoption, p. 268 ; home-finding societies, pp. 319—321. Child W elfare in North Carolina: An inquiry by the National Child-Labor Committee for the North Carolina Conference of Social W ork. Under the direction of W . H. Swift. 1918. Child-caring institutions; home-finding societies, by Mary E. Barr, pp. 106-152. Includes a survey of the home-finding situation in North Carolina, covering the work of the North Carolina Children’s Home Society and of rescue homes placing out children. Child W elfare in Oklahom a: An inquiry by the National Child-Labor Com mittee for the University of Oklahoma. Under the direction of Edward Clopper. 1917. Home finding, by Mabel Brown Ellis, pp, 194—207. Inquiry includes: A study of child! placing by the State; by county judges; by private agencies— home-finding societies, maternity homes, humane societies, associated charities, orphanages; general summary and recom mendations. Child W elfare in Tennessee: An inquiry by the National Child-Labor Com mittee for the Tennessee Child-Welfare Commission. Under the direction, of Edward N. Clopper. Published by the State of Tennessee, Depart ment of Public Instruction. Nashville, 1920. Home finding, by Sara A. Brown, pp. 601-616. Study of child placing by T.ennessee State Board of Administration— child placing department; work of Tennessee Children’s Home Society; placing by public and private institutions; individual and illegal placing; recom mendations. Rural Child W e lfa r e : An inquiry by the National Child-Labor Committee based upon conditions in W est Virginia. Under the direction of Edward N. Clopper. The Macmillan Co., New York, 1922. Rural 'child depfehdericy, negltect; and delinquency, by Sara A. Brown,, pp. 165^244; Statement of findings relative to child placing, pp. 170-175; children in, foster homes, pp. 1 7 7 -i9 0 ; children bound out and on contract, pp. 190-196 j standards and conclusions, pp. 214—218. The child and the State, by W . H . Swift, pp. 261-338. Review of the law in respect to placing out dependent children, pp. 323— 326; suggested changes, pp. 330-331, 338. National Conference of Jewish Social Service [formerly National Conference of Jewish Charities], 114 Fifth Avenue, New York City. Report of the committee on dependent children to the National Conference of Jewish Charities, by Lee K. Frankel. Proceedings, 1902, pp. 107-121. A report on the results of an inquiry into the possibilities of noninstitutional care for Jewish dependent children from the experiences of 15 Jewish orphan asylums in placing out children. This study is supplemented by a report presented, to the National Conferefacfe qf Jewish Social Service, 1922, by Frances Taussig: “ peveJ,og$iept£ of twenty years ip yhild care ” (Unpublished). Placing out of Jewish children, by Lee K. Frankbl. Proceedings, ii)04, pp. 72-82. A report on the results of an experimental study of the possibility of finding foster homes for Jewish children, made by a joint committee of child-caring agencies and institutions. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 264 F O S T E R -H O M E C A R E F O R D E P E N D E N T C H IL D R E N . York School of Social Work, 105 East Twenty-second Street, New York City. The Selection of Foster Homes for Children ; principles and methods followed by the Boston Children’s Aid Society, with illustrative cases, by S- P oran aQd Bertha C. Reynolds. Studies in Social Work, ChildWelfare Series Monograph No. 1, 1919. t?® P robiems of investigating and selecting foster homes, with concrete illustrative cases of approved and disapproved homes ; practical directions for the keeping of well-analyzed records, witfi form s; underlying principles of home finding applicable to the work of agencies engaged in placing out children. The Child in the Foster Home. Part I, by Sophie van Senden Theis and Constance Goodrich. Studies in Social Work, Child-Welfare Series Mono graph No. 2. 1921. .A nalysis, of the work of the child-placing agency of the New York Charities homes^SOCiatl° n 1D tbC placement and supervision of Children in free family Russell Sage Foundation, 130 East Twenty-second Street, New York City. Pittsburgh as a Foster Mother : A concrete community study of child'-carin°methods, by Florence L. Lattimore, Published by the Department of Child Helping, Russell Sage Foundation. [1914] Plaœd-out children ; The child-placing situation in the Pittsburgh district pp. 4-6 ; child placing from institutions, pp. 77-81. Dependent, Delinquent, and Defective Children in Delaware by C Spencer Richardson. Department of Child Helping, Russell Sage Foundation, 1918. ’ . Çfport of a study of children cared for mainly in institutions and in private foster homes. Child placing by the Delaware Children’s Home Society dd 24-^6. Recommendations: Child placing, pp. 54-62; the Children’s Bureau of ?hndTenf’ppP80-78372 ’ supervlslou’ pp- 77-80 ! importation of dependent Child-Welfare Work in California; a study of agencies and institutions, by William H. Slingerland. Department of Child Helping, Russell Sage Foundation, 1915. A descriptive survey of agencies and institutions in California devoted to the care™ f ~1depel\dent’ ttehaquent, and defective children. Child-placing agencies pp. 60-71; tab es, 71-73; child placing in families, pp. 179-191; asym posium of executive opinion, pp. 198-212 ; standardizing child-placing work, pp. 229-235. Child Welfare in Pennsylvania; a cooperative study of child-helping agencies, and institutions, by W illiam H. Slingerland. Department of Child Helping, Russell Sage Foundation, 1915. Study of general child-caring agencies engaged principally in placing children «LfWgUy homes, as paying boarders, free inmates, or paid workers- tables d p * 1 2 S - 1 3 1 ; c h i l d p l a c i n g by c o u n t y children’s aid societies;, tables, d d 1 3 2 -1 4 2 -' : recommendations, pp. 247—249. ■ ' °* ’ Child-Welfare Work in Oregon; a study of public and private agencies and institutions for the care of dependent, delinquent, and defective children for the Oregon Child-Welfare Commission, by William H. Slingerland. July Bulletin, Extension Division, University of Oregon, 1918. Child placing by agencies and institutions: Home-placing department’o f the juvenile court, Portland, pp. 10-12 ; Boys’ and Girls’ Aid Society, Portland, pp. 43-45 - oliildren’s institutions, pp. 4 6 -4 7 ; recommendations, pp. 70-78. , um Child-Welfare Work in Colorado; a study of public and private agencies and institutions and conditions of service, in the care of dependent, delinquent and defective children, by W illiam H. Slingerland. University of Colorado Boulder, Colo., 1920. The report includes : A review of the child-placing work of the Colorado sta+a Home for Children, pp. 7 -1 3 ; work of the Christian Service League of America m fegislahon(CppmÎ72-Î74nS’ PP‘ 114-123 ; State supervision, p p .1 5 8 -1 6 1 ; s u ï | Æ Bulletin, Vol. 20, No. 10, General Series No. 161. Child-Welfare Work in Idaho; a study of public and private agencies and institutions, and methods employed in the care of dependent, delinquent and defective children, by W illiam H. Slingerland. The Ah Kennard Pro.» Boise, Idaho, 1920. ’ .* & * & * & organization and methods of the Children’»,; Home-Finding and Aid Society, pp. 25-43. Recommendations : Methods of case study, d d 44s-48 • ttethods of réception pp. 4 9-56; qiiàlity of free and boarding homes, d d . 70^77: condition of children in foster homes, pp. 78-83; legislation, ppf 107-112. * https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. 265 Cht u S lfi f ™ L in T^OU« f Vill?i a „study of condi«ons, agencies, and instiLouiiw’l l e f K ^ , 1919 H ' Sllngerland- Published by the W elfare League, M h w u à on Child w dfare to the G» ' ^ » r? o t u f pkrt t! pp ^ e“ dent “ nd Ne8lectc<1 OUM ren In Connecticut. b / Æ A f i , ^ f f Æ a S l f ^ e f t S T a f .« '^ Γ “ r , " i - l " » S i s Stfon, 1910d ° f Charity of Massachusetts: Thirty-second Annual Report, BosA ppr S S ° f min° r WardS ° f thG Massachusetts State Board of Charity, c h f e r‘ whoa haddL°efn^ N 1 9 l J 0rk StatC B ° ard o f P a r i t i e s : Annual Report for the year 1911. Albany, SlVoîa i,rpp01358-382e PlaCing 0Ut of ohildren>by Mary E. Walsh, Inspector. c h S S * whetheiStpLe^ d d1n 5? r 7 temporarily, or otherwise or surrenderor) 2 2 ” ; L » S and e “ ethods of ¿a re for dependent ¿ 01.nes- committed to institutions May 1S- W j EeErtat' S '*** * £ Society of the results "of fts work fn^hhd placingmade by the Boston Children’s Aid Wald, Lillian D .: Boarded-out Babies. S t S » » Y o S Published by the Association of Neigh “ e Clty ° £ New Y° rk' 237 East 0ne Hundred andf Fourth boSifbi boa,ded °ut * °pthate MATERIAL ON PLACING-OUT LAWS. United States. ° ^ î ^ ’S£ U^ au’ PV,ted ? tates department of Labor : State Commissions for the Study and Revision of Child-Welfare Laws, by Emma O Lund berg. Publication No. 131. Washington, 1924. Una The report includes brief discussions of the work of the varmn« a+a+,, : 4 d? ,? ^ °? tt>e United States ; the growth of public feeling of responsibility m the protection of childhood as shown in the adoptioï and preparation!° (In press.) Vari()US States, by Emelyn Foster Peck. (In ? eS -tinf- t0 Interstate Placement of Dependent Children. Publication N o , — •—. Washington, 1924. Alabama. 4 j Î dÉ * M A iabarna Laws Affecting Children and Suggestions for Leeislarl the Alabama Child-Welfare Commission by the National Child-Labor Committee. Published by the Alabama State Child-Welfare Department m its official bulletin, A labam a ChMdhooa, Vol 1 No 4 (June. 1922). ’ • a st? dy o f the existing situation relative to adoption indenture „n.i horoe finding, and suggestions for legislation on child placing, pp. 4 6 —5 0 . ? https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 266 FOSTER-HOME CARE FOR DEPENDENT CHILDREN Arizona. First Annual Report of the Arizona State Child-Welfare Board to the Governor, for the period from July 9, 1921, to June 30, 1922, inclusive. Phoenix, 1922. The child-welfare law— provisions relating to child placing, op. 6 , 14. Text of law relating to child-welfare boards (1921), pp. 19-26. California. Tenth Biennial report, of., the State Board of Charities and Corrections o f the State of California, from July 1, 1920, to June 30, 1922. Sacramento, 1923. Text of laws directly affecting the work of the California State Board of Charities with reference to supervision of child placing, pp. 136-137, 139, California Laws of Interest to Women and Children, 1917. Compiled by the California State Library, Sacramento, 1918. Laws relating to adoption, pp. 35—37 ; control of children’s home-finding so cieties, p. 189. Colorado. Report of Governor Shoup’s Committee on Child-Welfare Legislation for Colorado ; to which is added the full text of the 13 bills recommended, with notes, explanations, and answers to objections. Denver, 1921. Discussion of the child-placing situation in Colorado : The law ; the existing conditions ; recommendations, pp. 60—63. State Board of Charities and Corrections : Bulletin No. 1. Denver, 1920. References to laws on child placing from the Colorado State Home for De pendent and Neglected Children, p. 7. Connecticut. Report of the Commission on Child W elfare to the Governor. Published by the State, Hartford, 1921. ' Volume 1, Part I : The Argument—-includes a discussion of the general princi ples of child placing and of their violation in practice, pp. 3—24. Part II : The Code— proposed legislation relating to child placing, pp. 37—44 ; adoption, pp. 81-84 ; importation and exportation of children, pp. 87—88 ; indenture of chil dren, p. 91. The Child and the Law in Connecticut. Compiled by Mary Selina Foote. Edited by the Connecticut Child-Welfare Association. January, 1923. Child placing from county homes by the Connecticut Bureau of Child W elfare; adoption ; boarding homes, pp. 53—72. Delaware. State Board of Charities of D elaware: Official Directory. Publication No. 3. May, 1922. Supervision of dependent children act (Laws of Delaware, Vol. 32, p. 182, ch. 50), pp. 12—14 ; act authorising child-placing agencies to remove children (Id., v Vol„ 30, n. 532, cb- 2(D),. Delaware State.Board o f Charities—-Rules govern in g the importation, eitv, of dependent ebiklren, adopted . April 19, 1922, by virtue* of supervision of dependent children act, pp. 15—17. Georgia. The Georgia Child-placing Law (No. 521— Georgia Laws, 1922) ; text and full explanation of the act regulating the placement of children in foster homes. State Department of Public Welfare, Atlanta, 1922. The discussion includes an outline of the essential features of the law— keep ing families together, study of children for placing, study of foster homes, supervision, adoption ; suggested methods for placing children ; provisions and penalties : summary o f duties. Illinois. Report of the Department of Public W elfare Children’s Committee. Pub lished by the Illinois Department of Public Welfare, December, 1920. .Report of the subcommittee on the dependent child in families : Principles o f child care and-State responsibility; existing facilities for placement and careo f children in families ; extent of State’s 'administration and supervisory au thority under present laws ; recommendation as to legislation, pp. 107-112. Manual of Laws Affecting Women and Children. Issued by the Juvénile Protective Association of Chicago, 1922. Adoption, pp. H -1 3 ; boarding homes, pp. 28—30 ; placing and visitation of" children in family homes, pp. 132—134. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES, 267 Indiana. State o f Indiana Laws Concerning Children. Compiled by the Board of State Charities, March 1, 1914. Indianapolis. Af and neglected children— placement and superyision, pp. 6 -7 ; boards a^cn^v^AA Si9SUi 1 f ^ nS’ PP;. S - i l i orphansi' home associations and the Stat« 22-23^ PP' 12-18 ’ imP°rtatl(® of dependent children, pp. 2 0 -2 1 ; adoption, pp. Iowa. Child Legislation in Iowa, by Frank E. Horack. Studies in Child Welfare, University of Iowa Studies, Vol. 1, No. 6. Iowa City, February, 1921. 13—146 ° f dependent children by adoption; children placed under contract, pp. Iowa Child-Welfare Legislation Measured by Children’s Bureau Standards, A*°-ne Studies in Child Welfare, University of Iowa Studies, vol. 2, No. 3. Iowa City, December 1, 1922. Incorporation, licensing, and supervision of children’s agencies: removal of children from their homes; principles governing child placing, pp. 32-36. Kansas. Export o f the Kansas Children’s Code Commission, December, 1922: Laying the Foundation for the Rising Generation. State House, Topeka. Proposed bill for the supervision of placed-out children and amending adopOon law s: Provisions of the bill; comparison with existing law ; comparison with laws o f other States, pp. 20-25. * Pr,e^ “ inary report of the Kansas Children’s Code Commission, May, 1922: Proposed Child-Welfare Legislation. State House, Topeka, p ^ clng and supervision of dependent, neglected, and abandoned children, Report o f the Kansas Children’s Code Commission, January, 1921: Pro posed Child-Welfare Legislation. Dr. Florence Brown Sherbom, Secre tary. State House, Topeka. regulation ofa d o p Ptlo?s!10pp.0 1 ^ 2 o endent’ neglected’ and abandoned children, Kentucky. R eport of the Kentucky Children’s Code Commission Covering ChildW elfare Legislation Prior to and Through the Legislative Session of 1922. Louisville. sfeucies, pp. 3 6 -3 7 ; recommendations relative to home finding and importation o f dependent children, pp. 48-49. * Maryland. Report of the Children’s Code Commission to the Governor. January 1922. (Typed.) Recommendations for laws to regulate the importation ef dependent children from * other^Stetes, i p . s^ rTlsion of children placed in foster homes by agencies Massachusetts. A Manual o f Laws Relating to the Department o f Public W elfare of Massachusetts. July 1, 1922. W right & Potter Printing Co. State Printers, Boston. Protection and care o f children (General Laws, eh. 119) : Licensing and famiifes0IppOf68^83Ilt boardins houses; adoption o? infants; child p l a c i n g ^ Michigan. Michigan State Board o f Corrections and Charities: Twenty-fifth Biennial Report, 1919-1920. Lansing, 1920. Contains recommendations of the State board relative to children in boarding “iffi?8', p , 1 1 : rule? and regulations of the State board for the government o f a^ acie8> ruI£? governing boarding homes, pp. 7 6 -7 7 ; report o f the Michigan Child-Welfare Commission on child placing, pp. I l l —l i s ! Law Relating to Boarding Homes for Children. of Corrections and Charities. Lansing. Text o f Act No. 136, Public Acta, 1919. Issued by the State Board Statute Regulating Persons, Societies, and Corporations Engaged In Re ceiving, Maintaining, or Placing Out Minor Children in Michigan. Issued by the State Board of Corrections and Charities, i-anaing Text o f Act No. 300, Public Acts, 1913* 12693°— 26------ IS https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME CARE FOR DEPENDENT CHILDREN. 268 M m nesota^ a^ion Qf the Laws of Minnesota Relating to Children 1921. Compiled by W illiam Hodson. Published by the State Board of Con t r o l St. Paul, 1921. ; State board of control: Supervision and licensing of children s boarding homes: supervision of child-placing organizations, pp. 20—26. Private societies placing out childrenO rganization and powers, pp. 159-163. Renort of the Child-Welfare Commission, with bills recommended and synopsis of all changes from the present law. Office of the commission, State Capitol, St. Paul, Minn., 1917. Bills recommended by the commission to regulate child placing and supervision, adoption, etc., pp. 21—24, 58—75, 101—103. ^ ^ S t a t e B o a rd o f Charities and C o rre c tio n s: M o n t h ly B u l l e t i n . Vol. 23, No. 3 (March, 1921). ^ Laws relating to dependent children: Providing a State receiving home, pp. 3—6 ; supervision of child-caring agencies and institutions, pp. 6-7. Children’s Code Commission: A Complete Revision of the Laws for the W elfare of Missouri Children. Second edition with additional bills, January, 1917. Jefferson City, 1917. Discussion of existing conditions with respect to child placing; measures pr5n)sed in the children’s code, pp. 35-37. Bills recommended: Adoption, pp. References to Missouri Statutes Relating to Children; an annotated and «1 I classified' reference list of all statutes and constitutional provisions m Missouri relating to children. Supplement to the report o f the Missouri ; Children’s Code Commission, January, 1917. Adoption, p. 5 ; importation of dependent children, p. 54; placing ont children, r pp. 57—58. Report of the Missouri Children’s Code Commission, 1918; a complete revision of the laws for the welfare of Missouri children. Jefferson City, 1919. Discussion of laws relating to foster-home care, pp. 4 7 -4 8 ; drafts of laws, pp. 148-154. n, ^ R e p o r t of Nebraska Children’s Code Commission, 1920. Department of Public Welfare, State Capitol, Lincoln. Recommendations on child placing and supervision, pp. 2 3 -2 8 ; guardianship and Adaption' p? 50. Text of bills recommended:_ Nebraska Home for De pendent Children, provision for child placing, pp. 78-7J. Session Laws (1910) on maternity homes, placing dependent and delin quent children, and child welfare. Child-Welfare Bureau, Department of Public Welfare, State of Nebraska, Lincoln, 1919. .eWLaws ]R elating to the State Board of Charities and Correction. Fourteenth biennial report of- the New Hampshire State Board of Chanties and Correction, for the biennial period ending August 31, 1922. Act relating to support of minor children placed out, pp. 11—1 2 ; act relating to licensing and regulating the receiving, boarding and keeping o f infants, pp. 18-23- act to regulate the placing out in family homes and subsequent super vision ’of dependent and neglected children, pp. 34r-35. V Jersey. Law Creating a State Board of Charities and Corrections and a D ep a rt ment of Charities and Corrections. Laws o f 1918, ch. 147. Laws relative to child placing and supervision, pp. 60-64. aw bIeWN ^w 'Y o rk State Commission to Examine Laws Relating to Child W e lfa re : P relim in a ry Report, March 14, 1922. Albany, 1922. Recommendation for repeal o f law providing ^ of children by indenture, pp. 14-15; statistical data regarding placed-out children, p. 33. _______ : Second Report, April 30, 1923. Albany, 1923. Part I Legislation recommended by the commission; Repeal o f law authorizing hindinff out of children, pp. 1 9 -2 1 ; revision of laws relating to placing out and bearding out children, pp. 2 6 -2 9 ; strengthening o f provisions regulating legal adopti°Pa?tP I I 9~ M a rn ial of Child-Welfare Laws: Adoption of children, pp. 134-1401 plfloUig out and boarding out dependent and neglected children, pp. 337-348. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES, 269 . North Carolina. The Bulletin of the North Carolina State Board of Charities and Publie Welfare, third quarter— July-September, 1921. Raleigh, N. C. Law regulating adoption, p. 29 ; licensing child-placing agency, pp. 33-34. North Dakota. North Dakota Children’s Code Commission: Report to the Legislative Assembly, 1922. Review of the existing conditions of child placing, supervision, etc., p. 1 1 l recommendations of the commission, 11-21. Ohio. Report of the Commission to Codify and Revise the Laws of Ohio Relative to Children. Columbus [1912]. Proposed amendments to the laws relating to children’s homes, the Ohio Board or State Charities, and the juvenile courts, to provide a system of placing and supervision of children in private homes, pp. 2, 11-13. Laws of Ohio Relating to Benevolent and Correctional Institutions, Boards and Officers, and to Kindred Subjects. The Ohio B ulletin o f Charities and Correction, Yol. 26, No. 1 (March, 1920). Columbus, Ohio. governing child placing and supervision by the Ohio Board of State Chanties, pp. 38-40. Oklahoma. Q uarterly B ulletin, Department of Charities and Corrections, July, 1920. Laws relating to adoption, pp. 11-12 ; child placing, p. 11. Oregon. Child-Welfare Laws of the State of Oregon. Published by the State ChildW elfare Commission o f Oregon, Portland, 1922. Inspection and supervision of child-placing agencies by the Oregon ChildWelfare Commission, pp. 68-74. “ Child-Welfare Commission : Oregon’s Duty to the Children. Second Bien nial Report, 1917. Statement of policy relative to child placing and supervision ; review of child placing methods o f other States ; recommendations, pp. 19-22. Pennsylvania.. Handbook of Social Laws of Pennsylvania. Compiled and edited by Ward Bonsall. Published by the Associated Charities of Pittsburgh and the Philadelphia Society for Organizing Charity, November, 1914. Laws relating to boarding of infants, p. 5 ; dependent children in foster homes, pp. 16 and 18 ; adoption, pp. 19-20. Pennsylvania State Dependents Commission : Report and Recommendations. Harrisburg, 1915. Recommendation for the extension and standardization of child placing; pp. 46—49. A Compilation of the Laws Relating to the Board o f Public Charities, with important provisions of the laws relating to the several State in stitutions and the rules and regulations of the committee on lunacy Indexed. Prepared by John H. Fertig and Frank M. Hunter under the direction o f James N. Moore, director. Legislative Reference Bureau Harrisburg, Pa., 1916. ’ Laws relating to placing out children, pp. 99-100. Rhode Island. Codification o f Rhode Island Laws Relating to Children, by Harold S . Bucklin, Department of Social and Political Science, Brown University! Published by the Rhode Island Congress of Mothers and Parent-Teacher Associations, June, 1922. „ A*>J>«on, PP. 1 7 -1 8 ; child placing by the Rhode Island State Home and School for Children, pp. 102-103 ; child placing by institutions, p. 110; boarding and keeping of infants, pp. 113-114. South Dakota. First Biennial Report o f the South Dakota Child-Welfare Commission, 1919-1920. Issued by the child-welfare commission, The Capitol, Pierre; Recommendation for State supervision of child-placing institutions, p. 13. Tennessee. Tennessee Board o f State Charities: Biennial Report, 1923. Nashville. 1o ^ l l<?'n elfai e (Tennessee, Public Acts 1917, ch. 120; House Bill No. 1276) . Guardianship and consent to adoption (sec. 5) ; child placing in famines (sec. 6) ; Inspection and supervision (sec. 7) ; annual and biennial ihnn’rH, (see- ®)* PP- 37-40 ; agencies and institution» licensed to place oat tnuaren under this act, pp. 40—41. . https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME GARE FOB DEPENDENT CHILDREN, 270 Texas. ■ The Laws oi Texas Relating to Labor, Children, Education, Health, and San itation, Marriage and Divorce, Rights of Married Women, Delinquency, Dependency, and Juvenile Courts, State Institutions, Penitentiaries and Jails, Gambling and Disorderly Houses, Public Morals, Elections. Com piled and published by The Civic Federation of Dallas. Dallas, Septem ber, 1921 Laws relating to placing dependent children in family homes, pp. 1—3,; adop tion, pp. 13-14: law governing child placing from the Texas State Home for Dependent and Neglected Children, pp. 15-16. Verm ont. Handbook of the Board of Charities and Probation, 1921. State of Ver mont, Montpelier. Child placing by board of charifles and probation, pp. 18—20, 22, 23; act to regulate importation of dependent children, pp. 24—25. General Laws of the State of Vermont Relating to Charities and Probation. Published by authority, Montpelier, 1918. Laws governing child placing by the board of Charities and probation, pp, 7—8. Virginia. Juvenile and W elfare Laws, as Amended by the General Assembly of Vir ginia, 1922. Issued by the State Board of Public Welfare, Richmond, 1922. ' Act to provide for the licensing, regulation, and inspection o f children’s hoard ing homes and nurseries. (Virginia, Acts o f 1922, ch. 486), pp. 15—1 7 ; aet to regulate child placing (Acts of 1922, ch. 103), pp. 1 8 -2 0 ; adoption proceedings (Acts o f 1922, ch. 483). West Virginia. „ , . Report of the W est Virginia State Child-Welfare Commission; Recommen dations to be submitted to the 1923 session of the legislature to promote the welfare of the children of W est Virginia, 1922. State Capitol, Charleston. A Guide to the Laws of W est Virginia Affecting Child Welfare, issued by the W est Virginia State Conference of Charities and Correction. L. M. Bristol, Chairman of committee. Morgantown. [1918.] Adoption, pp. 8 -9 ; placing in family homes, p. 26. Wisconsin. Statutes Relating to the Protection, Reformation, and W elfare o f Children. Compilation by Edith Foster, Juvenile Protective Association, Milwau kee. Printed by the legislature of 1919. Laws relating to child placing from the Wisconsin State Public School, pp. 6 2 -5 4 ; adoption, pp. 69-74. Laws of Wisconsin Relating to Public Charities, Powers and Duties of Juvenile Courts, and Matters Pertaining to the State Board of Control of Reformatory, Charitable, and Penal Institutions. Compiled by State Board of Control of Wisconsin. Madison, 1920. Laws relating to child placing from Wisconsin State Public School, pp. 5 3 -5 6 ; apprenticeship and adoption from county homes for dependent children, pp. 60—61; home-finding corporations, pp. 148—150. ^ y<Wyoming Laws for the Protection of Children and Animals, 1920. Issued by The Wyoming Humane Society and State Board of Child and Animal Protection. State Capitol, Cheyenne, Wyoming. Laws providing for child placing, pp. 24—28. Llennial Report of the State Board of Charities and Reform o f the State of Wyoming, 1921-1922. REPORTS,OF PUBLIC AGENCIES.1 STATE DEPARTMENTS AND BUREAUS. Alabama State Child-Welfare Departm ent: Official Bulletin, Alabama Child hood. Vol. 1, No. 4 (June, 1922). Montgomery. Note on the cooperation of the child-welfare department with the Children’s Aid Society of Alabama in placing and supervising children in family homes, pp. 47-48. * References are to the most recent reports available, https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. 271 Arizona State C hild-W elfare Board: First Annual Report, for the period from July 9, 1921, to June 30, 1922. Phoenix, 1922. . P^ Y 1i®i'?ns for child placing in the child-welfare law of 1921, p. 6 : State payments foi children in foster homes, p. 10 ; report on placements and supervision ov State and county child-welfare boards, pp. 14—15 ; text of the child-welfare law, pp. 19—26. California State Board o f Charities and Corrections: Tenth Biennial Report, from July 1, 1920, to June 30, 1922. Sacramento, 1923. Family boarding homes licensed by California State Board of Charities and Correotions. Homes holding .individual license; homes used by licensed child-placing agencies: standards for supervision o f children in fbster homes, pp. 80-90. 5 agencies, California State Board of Control, Department o f Finance: Report of th© Bureau of Children’s Aid for the period beginning July 1. 1920. and ending July 1, 1922. Sacramento, 1922. Appointment of agents by State board of control to visit homes and institutions in which children receiving State aid are cared for (text of law), p. 5 ; the foster home as a method of subsidized child care, p. 16 ; status of children in current county cases, p, « 1 , Colorado State Hom e for Children: Fourteenth Biennial Report of the Super intendent to the Board of Control, from December 1, 1920 to December 1 1922. Denver, 1923. * Cenerai report on child placing ; activities of the State agency ; summary of place« ments for 26 years ; statistical report, 1921-1922. 3 p Connecticut Department o f Public W elfa re: Report to the Governor for the Two Years Ended June 30, 1922. Hartford, 1923. Report of tiie bureau of child welfare on child placing from county temporary homes ; supervision òf placed-out children ; inspection and licensing of boarding homes • minimum requirements for boarding homes, pp. 38-49. 8 * District of Columbia— Board o f Charities: Report, 1922. Washington. Report of the Board of Children’s Guardians on child placing and supervision, pp. 7—8. Georgia State Department o f Public W e lfa re: Report of the Third Year’s Work, for the year ending June 1, 1923. Atlanta. Discussion of powers and duties of the department to study child-placing work • State and to recommend the granting of licenses to child-placing agencies. Spe cial study of child-placing work of Georgia Children’s Home Society undertaken by the department in cooperation with Children’s Welfare League of America. Illinois Department o f Public W e lfa re: Annual Report, July 1, 1921. to June 30, 1922. Springfield, 1923. ’ Discussion of the use of Soldiers' Orphans’ Home for temporary care of dependent children to be placed in foster homes, pp. 1 9-21; report on child placing by depart539-140 visitatl<>n of chlldren> PP- 48-53 ; placement from Soldiers’ Orphans’ Home, pp. Indiana State Board o f Charities : Thirty-third Annual Report of the Board of State Charities, for the fiscal year ending September 30, 1922. Indian apolis. Report o f the Indiana State Agency for Dependent Children on the visitation and supervision of children placed in foster homes by local associations or by the State agency, pp; 140—143. Tables: Field work of State agents, pp. 144—147: placement since creation o f the department, pp. 148—151. * Iowa Board o f Control o f State Institutions: Thirteenth Biennial Report, for the period ending June 30, 1922. Des Moines. le p o ri on the work of State agents : Placement and supervision of children from the Soldiers’ Orphans’ Home, Davenport, and the State Juvenile Home. Toledo no 7-9. Tables, pp. 86-90. K ansas State Orphans' Home: Sixteenth Biennial Report, for the two years ending June 30, 1918. (In first biennial report of the board of administra tion, charitable institutions section.) Topeka, 1919. Superintendent’s report: Placing children, pp. 9-10. State agents’ report: Children jhd entured ; adopted; methods, pp. 17—19. Tables: Movement of population. 1917— 1918; general results, 1887-1918, p. 37. Maine State Board o f Charities and Corrections: Seventh Report, for the biennial period ending June 30, 1922. Waterville, 1922. Children placed out by the Maine State Board of Children’s Guardians, d. 131 work of field agents, p. 21. * Maryland Board o f State A id and Charities: Eleventh Biennial Report. 19201921. Baltimore. Powers and duties o f the board relative to the regulation of the importation at dependent children and placing infants in foster homes (text of law), pp. 6-8. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 272 POSTER-HOME CARE POR DEPENDENT CHILDREN. Massachusetts Department of Public Welfare: Annual Report for the year, ending November 30, 1921. Boston. Report of the division of child guardianship on child placing: Children under three years of age boarded in private families; children over 3 years of age in boarding and free homes; investigation ; licensed boarding homes for infants, pp. 38-74. Ex penditures, p. 146. Michigan State Public School: Biennial Report of the Board of Control for the years ending June 30,1917, and June 30, 1918. CoMwater. Report of the superintendent: Methods of child placing; forms in use, pp. 19-21. Report of the State agent: Investigation, placements, supervision, pp. 28-29. _ Statis tical reports: General summary of placements, 1874—1918; placements, 1917-1918, indentures; visitation, pp. 40—49. Minnesota State Public School: Biennial Report, period ended June 30. 1922. St. Paul. Report on child placing: Field w ork; placements; duration of institutional life of children placed; progress of children under supervision. Minnesota Children’s Bureau of the State Board of Control: Report of the Director of the Bureau to the Board for the biennial period ended June 30, 1922. St. Paul, September 1, 1922. Report on children placed in permanent foster homes, pp. 3 -6 ; report on children adopted i n t o permanent family homes, pp. 6 -8 ; licensing and supervision of boarding homes, pp. 19—20. Missouri State Board of Charities and Corrections: An address given at the Twenty-second Annual Missouri Conference of Social Welfare, November 9, 1922, by Homer Talbot, Secretary, State Board of Charities and Corrections. B im on th ly Bulletin, Vol. 24. No. 6 ( June, 1922.) Establishment of the Missouri State Home for Neglected and Dependent Children ; child placing, p. 6. Montana State Orphans’ Home: Semiannual Report of the Executive Board, for the six months ending May 1, 1918. (Typewritten.) Twin Bridges. Number of children placed in private homes, Table No. 1. Montana Bureau of Child and Animal Protection: Report for the Tear 19211922. Helena. Report of the child-placing agent of the bureau: Children placed; investigations; supervision, pp. 9-11. Nebraska Department of Public Welfare: Report for the biennium closing June 30, 1922. Lincoln. Report of the bureau of child welfare: Children placed in private homes by child placing agencies, p. 55. Nebraska Home for Dependent Children: Report of the Superintendent to the Governor and Board of Commissioners of State Institutions, for the biennium ending November 30, 1918. Lincoln. Placing out children ; Investigation of homes, pp. 7 -8 ; statistical d a ta : Movement o f population, p. 27; field work in child placing, p. 33. Nevada State Orphans’ Home: Biennial Report of the Orphans’ Home Direc tors and Report of the Superintendent, 1919-1920. Carson City. Note on expenditure for children cared for outside of State home. New Hampshire State Board of Charities and Corrections: Report for the Biennial Period Ending June 30, 1922. Concord. Powers and duties of the New Hampshire State Board of Charities in placing chil dren In family homes, pp. 11-12, 18-23, 34-35 (text of law) ; report on dependent children, including children in foster homes, pp. 41—44. New Jersey State Board of Children’s Guardians: Report for the Year 1922. Jersey City. Report on child placing by dependent children department : Numbers placed, in vestigation, supervision, pp. 7-8 ; statistical summary, pp. 10-13. New York State Board of Charities: Annual Report for the Year 1922. Al bany, 1923. Report on children in foster homes, p. 42. Children placed by county, city, and town, and by private agencies, pp. 42—43. Statistical data, pp. 227—251. North Carolina State Board of Charities and Public Welfare: Biennial Re port, December 1, 1920, to June 30, 1922. Raleigh. Temporary boarding homes, p. 37; children placed out by Childrens Home Society o f North Carolina, pp. 96-97. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES, 273 O hio Departm ent o f P ublic W elfares First Annual Report, for the fiscal year ended June 30, 1922. Columbus. n u u ccertification e r i u i c a i M j a oof i p r iv a t e boaRX ? h o m ^ fo ^ c h U d rS 11- 611V>* ^ and^ private ; report of the child-care division on child placing and supervision, pp. ’ 47-48. Report of the bureau of juvenile research, pp. 53-58; 379-381. Oklahoma Commissioner of Charities and Corrections: Eighth Biennial Report, from June 30, 1920, to June 30, 1922. Guthrie. °* or?han minor children by the Oklahoma Commissioner of Charities fnr n rn h ^ «ioSS,9 ?'. «¿-£?POirt ,on child placing from the East Oklahoma State Home for Orphans, p. 23, child placing by private agencies, pp. 30-31. Oregon State Child-Welfare Commission: Report for the Biennial Period End ing September 30, 1922. Salem. - l,i£ ?t,,esL,and P°w,ers of the commission relative to adoption and to suDervision of agencies, pp. 7—8 ; policy with regard to child placing, p. 14. Statistical chfldrln 0£ d P19?22 2 ^^2 2 « S ’1*10118 ^ and af encies a u W ri& d to j 8 » X t cmiaren, pp. l w -z 2 6 ,6 3*1^, adoption; report recommendations. Island Penal and Charitable Commission: Fourth Annual Report to the General Assembly at its January Session, 1921. Providence. Report of th e placing-out department of the Rhode Island State Home ^ n » a r S „ artSt? m 0a ™ u°m , b ^ WiC and S ch ool Bureau: Third Methods o f child placing; statistical report. ° f PubKC Welfare: 8econd Annoal Report, 1921. Report of the child-placing department, pp. 25—26. VS . ° ^ J B u n l 1 o , l 9 i :a K u a a S 4 P r° b * ti° " : « » ten. i ree and boarding homes under care of the board, d o 15-17* « ,* State s shelter home; expenditures, pp. 19-21. ^ pp’ 10^1 • ♦ the V?ginia State Board of Charities and Corrections: Eleventh Annual Report to the Governor of Virginia, for the year ending September 30, 1919. Report on inspection of homes of children placed by State board S ^ a g e n cT e s ?^ . 4 7 S gmla State Board of Charities “ d C o r r e ^ t iS ^ o 6 • chll l; % $g West Virginia State Board of Children’s Guardians: Seeond Biennial July 1, 1920-July 1, 1922. R eD ort. H ..Placem ent of wards in ^private homes, pp. 2 2 -2 3 ; hoarding homes, pp. 24-26* eonof placement, pp 28—31. Placement of colored wards, p . 1 8 ; reciprocal agreeto| c h i h i S np 18 End ° hi° ’ P< 18- Supervision o f privite a|enrfes | i ^ Wisconsin State Public School: Report for the Biennial Period Ending Juno 30, 1920 (being part of the biennial report of the State Board of Control of Wisconsin). Sparta. Report on child placing: Children in homes on indenture; babies, on, 260—262 1 table showing movement of population, p. 266. ^ P1** • Wyoming State Board of Charities and Reform: Biennial Report 1921-1922. Cheyenne. R^ ort °LH?e Wyoming State Home for Dependent Children (Cheyenne) indudta* report on children placed in foster homes, pp. 120—122. y ' ineraamg Wyoming Commissioner of Child and Animal Protection: Biennial Report for the two years ending November 30, 1922. Cheyenne. ' ■taH?sth;alPlraeef e p.°24.the Wyomills Stat* Hom* for Dependent Children, p. 10; COUNTY AND CITY DEPARTMENTS. Institutions Department, City of Boston: Annual Report for the year ending January 31, 1921. Boston. Report of the child-welfare department, including report on placed-oat children, pp. 2 -3 ; statistical data on child placing, pp. 26-31 P a l cnnuren. Department of Public Welfare, City of New York, Boarding-Out Bureaus Annual Reports. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 274 F O S T E R -H O M E ' CAR-E F O R D E P E N D E N T C H IL D R E N . Commissioner of Charities and Corrections of W estchester County, N ew Y o rk : Second Annual Report, January 1, 1918, to December 31, 1918. East View, Westchester County, N. Y., 1918. Report of the department of child welfare on child placing, pp. 96-101. Board o f Children’s Guardians o f the City of St. L ou is: Annual Report for the fiscal year ending April, 1920. 237 Municipal Courts Building, St. Louis. Report o f the placing-out department, pp. 11—12; agent’s report, pp. 21—27. Reports of State boards of charity or departments of public welfare contain information in regard to the placing out of dependent children by county boards in Connecticut, Indiana, Minnesota, New York, and Ohio. PUBLICATIONS OF PRIVATE CHILD-CARING AGENCIES. Alabama. Alabama Children’s Aid Society, Steiner Building, Birmingham: Our Children, quarterly bulletin. Arizona. Arizona Children’s Home Society, Phoenix: Annual Report, ArKftnsftSt Arkansas Children’s Home Society, 3210 W est Twelfth Street, Little R ock: T h e A rkansas Children's H o m e F inder, quarterly bulletin. California. Children’s Home Society of California, 919 East Twenty-fifth Street, Los Angeles : T h e California H om eless Children's Friend , quarterly bulletin. Native Sons and Native Daughters Central Committee on Homeless Chil dren, 955 Phelan Building, San Francisco: Annual Report. Children’s Agency of the Associated Charities of San Francisco. 1500 Jackson Street: Annual Report and monthly B ulletin. Berkeley W elfare Society, Children’s Department, 2120 Grove Street, Berkeley: Annual Report. Bureau of Catholic Charities, Child-Welfare Department, Diocese of Mont erey and Los Angeles, 828 Higgins Building, Los Angeles: Annual Re port. Connecticut. „ , Connecticut Children’s Aid Society, Brown-Thomson Building, H artford: T h e Children's F riend, quarterly bulletin. Delaware. .__, . '■ Children’s Bureau of Delaware, 1112 King Street, W ilm ington: Report. . , Annual Florida. _ _ , The Children’s Home Society of Florida, 428 St. James Building, Jackson ville: Annual Report and leaflets. Georgia. . Georgia Children’s Home Society, Ormewood Court, A tlan ta: Child W e l fare, monthly bulletin. Idah<Children’s Home-Finding and Aid Society of Idaho, 740 W arm Springs Avenue, B oise: T he Idaho Children's H o m e F inder, monthly bulletin. The Illinois Children’s Home and Aid Society, 308 North Michigan Boulevard, Chicago: H o m e L ife fo r Childhood, bimonthly bulletin. Catholic Home-Finding Association of Illinois, 17 North La Salle Street, Chicago: Annual Report. Jewish Home-Finding Society, 1800 Selden Street, Chicago: Annual Re port. Indiana. . . . . . Family-Welfare Society of Indianapolis (succeeds Children’s Aid Associa tion of Indianapolis), Baldwin Block, Indianapolis. I ° W Iowa Children’s Home Society, 2340 East Ninth Street, Des Moines: Io w a Children's H o m e H erald, monthly bulletin. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. 275 Kansas. T he Kansas Chiidren’s Home Society, 1001 Harrison Street. Topeka- K an sas Children s H o m e F in d er , bimonthly bulletin The Christian Service League, 1825 W est Maple Street, W ichita- Annual Report and Christian S ervice, bimonthly magazine. Kentucky. Kentucky ChiMren’s Home Society, Lyndon: Biennial Report. Jewish W elfare Federation, Louisville: Annual Report in T h e Com rnunity, published by the W elfare League o f Kentucky. Louisiana. LoJ?!®i8l;na Child-Finding and Home Society Children’s F riend, quarterly bulletin. (In c.), New Or lean«? • The Maine. M biil?etinhildren'S H ° me Society’ Ausu sta : Our M ission W o rk , monthly Maryland. Maryland Children’s Aid Society and Henry Watson Children’s Aid So Seport BUilding’ CalV6rt and L° mbard Str^ B a m io r e : A n n S l . Massachusetts. G portenS Aid Assodation’ 24 Mount Veraon Street, B oston: Annual ReBoston Children’s Friend Society, 48 Rutland Street, Boston : Annual ReChildren’s Bureau of the Federated Jewish Charities of Boston, 25 Tremont »Street: Annual Report. ^ R e p o r tdren>S MiSSion t0 Children> 20 Ashburton Place, Boston: Annual The Church Home Society for the Care of Children of the Protestant Episcopai Church 24 Mount Vernon Street, Boston: Annual Report P G ™ld Infant Savior, of the Catholic Charitable Bureau, 43 Tremont Street, Boston: Annual Report. New England Home for Little Wanderers* 161 South Huntington Avenue, Boston: T h e L ittle W a n d erers’ A dvocate, quarterly bulletin. Children’s Aid Association of Hampshire County, 39 Main Street North ampton: Annual Report. Hampden County Children’s Aid Association, 5 Court House Place, Springheld: Annual Report. New Bedford Children’s Aid Society, 12 South Sixth Street, New BedfordAnnual Report. Worcester Children’s Friend Society, 452 Main Street, W orcester- Annual Report. Michigan. Children’s Aid Society, 225 South Capitol Avenue, Lansing: M ichigan Children’s H o m e F inder, quarterly bulletin. Children’s Aid Society, 71 Warren Avenue, W est, D etroit: Annual Report Society o f St. Vincent de Paul o f Detroit, child-caring department 611 McDougall Avenue: Annual Report. Minnesota. Th® CT^ild,re^ l Home Society of Minnesota, 2239 Commonwealth Avenue, St. Paul : T h e M in nesota Children’s H o m e F inder, quarterly bulletin. Minneapolis Children’s Protective Society, 404 South Eighth Street. Minne apolis : Annual Report. Mississippi. Mississippi Children’s Home Society, Jackson: Annual Report. Missouri. The Children’s Home Society of Missouri, Newstead and Margaretta Avenues, St. Louis: T h e M isso u ri Children’s H o m e F inder, monthly bulletin Children’s Aid Society, 3908 Olive Street: Annual Report and Children s A id S ociety H ew s, bulletin. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 276 FOSTER-HOME CARE FOR DEPENDENT CHILDREN, Montana. The Montana Children’s Home Society, Helena Avenue and Warren Street, H elena: Annual Report Nebraska. Nebraska Children’s Home Society, 602 Loan and. Building Association Building, Omaha. H o m eless Children’s A d v o c a te , bimonthly bulletin. Child-Saving Institute, 619 South Forty-second Street, Om aha: Annual Report New Hampshire. New Hampshire Children’s Aid and Protective Society, 913 Elm Street, Manchester: Annual Report New Jersey. New Jersey Children’s Home Society, 44 Forst-Richey Building, Trenton: H om es fo r the H om eless, quarterly bulletin. Speedwell County Homes Society, Morristown: Annual Report The Catholic Children’s Aid Association of New Jersey, 776 Broad Street N ew ark: Annual Report N ew York. Children’s Aid Society, 105 East Twenty-second Street, New York : Annual StateP°Charities Aid Association, 105 East Twenty-second Street, New Y o rk : Annual Report and S ta te Charities A id A ssociation N ew s, monthly bulletin. County Agencies for Dependent Children: — : Subcommittee Annual Report. _ .. . Catholic Home Bureau for Dependent Children, 289 Fourth Avenue, New Y o rk : Annual Report Hebrew Sheltering Guardian Society, Children’s Home Bureau, 470 W est One Hundred and Forty-fifth Street, New Y o rk : Annual Report and H o m e finder, monthly bulletin. , „_ Free Synagogue Child Adoption Committee, 36 W est Sixty-eighth Street, New Y o rk : Annual Report. Brooklyn Children’s Aid Society, 72 Schermerhom Street, Brooklyn: An nual Report. Children’s Aid Society, Rochester: Annual Report. Children’s Aid and Society for the Prevention of Cruelty to Children o f Erie County, 261 Delaware Avenue, B uffalo: Annual Report. N orth Carolina. Children’s Home Society o f North Carolina, 207 Southern L ife and Trust Building, Greensboro: Annual Report. * North Dakota. North Dakota Children’s Home Society, 804 Tenth Street, F argo: T h e N orth D a k ota Children’s H o m e F in der, quarterly bulletin. Ohio. Ohio Children’s Home Society, 30 and 40 W est First Avenue, Columbus: Annual Report. The Children’s Home, Ninth and Plum Streets, Cincinnati : T he Children’s H o m e M o n th ly Record. Ohio Hun ue Society, 24 East Ninth Street, Cincinnati: Annual Report The Children’s Bureau of Cleveland, 712 Electric Building, Cleveland: Annual Report The Cleveland Humane Society, 106 City H a ll: T h e H u m a n e S o c iety Bulletin. a' The W elfare Association for Jewish Children, 401 Electric Building, Cleveland: Annual Report. Children’s Aid Department, Social-Service Federation, 572 Ontario Street Toledo: Annual Report Oregon. Boys’ and Girls’ Aid Society of Oregon, East Twenty-ninth and Irving Streets, Portland: Annual Report https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. Pennsylvania. Children’s Aid Society of Pennsylvania, 1428 Pine Street, Philadelphia: Annual Report. The Children’s Bureau of Philadelphia, 1432 Pine Street, Philadelphia: Annual Report. Juvenile Aid Society, 726 Spruce Street, Philadelphia : Annual Report. Children’s Aid Society of Western Pennsylvania, Pittsburgh: Annual Report. Children’s Service Bureau, 405 B. F. Jones Building, Pittsburgh : Annual Report. Home for Friendless Children and the Children’s Aid Society, Reading: Annual Report. Rhode Island. Children’s Friend Society, Providence: Annual Report. South Carolina. The South Carolina Children’s Home Society, Columbia : Annual Report. South Dakota. South Dakota Children’s Home Society, Sioux F a lls : T h e South D akota Children’s F rien d , bimonthly bulletin. Tennessee. Tennessee Children’s Home Society, 901 Acklen Avenue, Nashville: Annual Report. Texas. Texas Children’s Home and Aid Society, 515 Cotton Exchange Building, Fort W orth : Annual Report. Utah. Children’s Home Society, Salt Lake C ity: Reports. Vermont. Vermont Children’s Aid Society, Burlington: Annual Report Virginia. Children’s Home Society of Virginia, 705 East Main Street, Richmond: Annual Report and T h e Virginia Children’s H o m e F in d er, quarterly bulletin. Washington. Washington Children’s Home Society, Lippy Building, Seattle: W a shing ton Children’s H o m e Finder, bimonthly bulletin. West Virginia. W est Virginia Children’s Home Society, Charleston : T he Children’ s H o m e F inder, monthly bulletin. Wisconsin. Children’s Home Society of Wisconsin, 727 Merchants’ and Manufac turers’ Bank Building, Milwaukee : Report. Juvenile Protective Association (placing-out department), 85 Oneida , Street, Milwaukee: Annual Report. Wyoming. Wyoming Children’s W y o m in g Home Society, Hynds Building, Cheyenne: The Children’s Frien d , bimonthly bulletin. TYPICAL SYSTEMS OF FOSTER-HOME CARE IN FOREIGN COUNTRIES. AUSTRALASIA: STATE BOARDING GUT. Australia. Spence, Catharine Helen : State Children in Australia ; a history of board ing out and its developments. Vardon & Sons (L td .), Adelaide, 1907. Includes a history of the origin and development of the boarding-out system of South Australia, a comparison of the laws and administration of the hoardingout systems in the Australian States, and a discussion of the results secured by the system. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis FOSTER-HOME CAKE FOR DEPENDENT CHILDREN, 278 N ew South W ales. Green, Alfred W illiam s: The history and development of measures protection of dependent and delinquent children in New South Report of the Proceedings of the First Child-Welfare Conference, Cape Town, South Africa, March, 1917, pp. 45-52. An exposition of the essential features of the boarding-out system South Wales. for the Wales. held at in New Mackellar, Sir Charles: The Treatment of Neglected and Delinquent Chil dren in Great Britain, Europe, and America, with recommendations as to amendment of administration and law in New South Wales. W . A. Gullick, Government Printer, Sidney, 1913. The boarding-out system: Principle and practice in Great Britain; the insti tution of the system in New South W ales; argument for boarding out, pp. 202215. *>---------: The State Children; an open letter to the Honorable A. G. F. James, M. L. A. Minister for Education. W . A. Gullick, Government Printer, Sidney, 1917. A discussion of boarding-out and institutional care for State children. Department of Education: Report o f the Public Service Board on an Inquiry into the Working of the State Children Relief Branch, particularly with reference to the conditions under which children are boarded out: Pre sented to Parliament in pursuance of an order made by the legislative council on 1 August, 1917. W . A . Gullick, Government Printer, Sidney, 1917. Report in regard to boarding out of children under alleged undesirable condi tions. Minutes of evi (fence taken at the public service board’s investigation. State Children Relief B oard: Report for the Year Ended 5 April, 1915. W . A. Gullick, Government Printer, Sidney. Boarding-out system: Review of development of boarding out as a State p olicy; children under control; rates of payment; number of children in each home, pp. 43—45. • ------: Report for the Year Ended 5 April, 1916. Notes on the State system of boarding out, pp. 1 1 -1 3 ; report on boarding out under State children relief act, pp. 14—2 3 ; foster homes under infant-protection act, pp. 38-44; registration of boarded-out infants under children’s protection act, pp. 52-53; opinions of visitors and teachers on the boarding-out system, pp. 75-96. • ------: Report for the Year Ended 5 April, 1920. Tabular statement of the development of the work of the State children relief department, 1900-1920, pp. 11-14; report on boarding out under the State children relief act, pp. 14-24; under infant-protection act, p. 8 6 ; under chil dren’s protection act, pp. 52-53. N ew Zealand. New Zealand Education Department: Report on Special Schools and Infant Life Protection for the Year 1916. By authority: Marcus F. Marks, Goverhment Printer, Wellington, 1916. Report on licensing foster homes for children under 6 years boarded out by parents or guardians, p. 3 ; tabular statement, pp. 11-12. Queensland. State Children Department: Annual Report of the Director for the year 1918. Brisbane, 1919. Children boarded out with foster mothers; hired ou t; adopted, pp. 10-11. South Australia. State Children’s Council: Report for the Year Ended June 30, 1921. authority: R. E. E. Rogers, Government Printer, Adelaide, 192L Boarding out, p. 5. By Bee also General Sources, pp. 230-234. AUSTRIA: BOARDING OUT UNDER OFFICIAL GUARDIANSHIP. Bartsch, Dr. Robert: Government organization for social aid in Austria. T h e A n n als o f the A m erican A ca d em y o f P olitical and Social Science, Supplement, November, 1921, pp. 61-65. The discussion of the system of official guardianship includes references to the t o ties of public guardians toward children placed ia foster homes. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. 279 Regulations of April 1, 1919, for the administration o f the law on the pro tection o f placed-out children. Z eitsch rift fü r Säuglm gs-und K leinkinder schütz, Berlin, Vol. 12, pp. 323-329. ß e e also General Sources, pp. 230-234. Be l g i u m : t h e b o a r d i n g - o u t s y s t e m . Œ u vre Nationale de l’Enfance: Rapport Annuel, 1920. Supervision over placed-out children, pp. 44, 117; supervision of children of unmarried mothers, pp. 129-130. Bee al.so General Sources, pp. 230-234. CAN ADA : H O M E F IN D IN G B Y C H ILD R E N ’ S A ID SOCIETIES. Hart, Hastings H .: Twenty-five years of child-welfare work in Canada. T he S u rv ey, Vol. 40 (M ay 11, 1918), p. 171. Gives the Ontario plan of placing out children by children’ s aid societies under the direction of the Department of Neglected and Dependent Children; extension o f the Ontario system to other Provinces in Canada. Juvenile Im m igration; selection from the report of G. Bogue Stuart, Chief Inspector of British Immigrant Children and Receiving Homes in Canada. T h e Child (London), Vol. 5 (June, 1915), p. 54. K elso, John J .: Home finding in Canada. T h e Child (Chicago)* Vol. 2 (March. 1913), pp. 12-13. Description o f the organization and work of children’s aid societies in Canada. Miles, Mary C .: The emigration of poor-law children. P roceedings of the English Poor-Law Conferences, 1904-1905, pp. 520-533. Report on a tour of investigation to ascertain condition o f children emigrated to Canada. Describes the methods o f various homes and agencies receiving and placing out children. Manitoba. Public-Welfare Commission of M anitoba: Second Interim Report. Printed by order of the Legislative Assembly o f Manitoba, February, 1919. Winnipeg. Report on child w elfare: Endorsement of a policy of foster-home rather than institutional care for normal dependent and neglected children and for normal young delinquents; recommendations relative to selection and supervision of o f foster homes, boarding homes, and probation homes, pp. 140-154. 'N o v a Scotia. Province of Nova Scotia: Eighth Annual Report of the Superintendent of Neglected and Delinquent Children. Printed by order o f the legislature. H alifax, 1921. Reports of children’s aid societies placing out children, pp. 6 -3 5 ; visiting children placed in foster homes or in boarding homes, pp. 9 0 -9 1 ; records of foster homes and children, p. 92^ child placing by the superintendent, pp. 92—94. Ontario. Dymond, Allen M .: The Laws of Ontario Relating to Women and Children. Printed by Clarkson W . James, Toronto, 1923. Adoption, pp. 7 1 -7 6 ; child placing under the children’s protection act, pp. 128-138. Conference of Associated Children’s Aid Societies of O ntario: Proceedings, 1911. (In Report of the Superintendent of Neglected and Dependent Children of Ontario for the Year Ending December 30, 1911.) Miller, C. R . : Home finding and visiting, pp. 100-103. Methods o f finding homes adapted to needs of the ch ild ; value of township committees as advisory bodies; supervision. Smith, Bruce: Institutional life, pp. 133-134. The place of the institution in caring for dependent children not eligible or ready for foster homes. Neglected and Dependent Children in Ontario: Nineteenth Report of the Superintendent, for the year ending December 30, 1911. General statistical report, pp. 13-16; placement o f Catholic children, pp. 2 3 -2 4 ; supervision— visiting children in foster homes an essential feature of lacing-out work (by John J. Kelso), pp. 25—3 3 ; juvenile immigration, pp. l i é is . ? 75094°— 24------ 18 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 280 FOSTER-HOME CARE FOR DEPENDENT CHILDREN, Ontario— Continued. Neglected and Dependent Children In Ontario; Safeguarding childhood. Twentieth Annual Report for the year ending December 30, 1912. Children under care, p. 19 ; visiting foster homes, pp. 26-29 ; reports of chil dren’s aid societies throughout the Province, pp. 43—94. --------: Twenty-second Annual Report, for the year ending December 30, 1914. Children’ s aid societies: Procedure and forms used in application for chil dren, inquiries concerning foster parents, agreements with foster parents ; re ports of inspection, shelter, pp. 44-50. --------: Twenty-third Annual Report, for the year ending December 30, 1915. The value of the “ children’s shelter ” for temporary care ; methods of home finding ; classes of foster homes and the necessity for special supervision for each type ; directions for visitors, pp. 90—97. Saskatchewan. Neglected and Dependent Children of the Province of Saskatchewan ; An nual reports of the superintendent. Regina. 1917: Foster homes, not institutions, p. 9 ; reports of aid societies placing out children under children’s protection act, pp. 12—24 ; statistics, pp. 29—32. 1919 : Scope of work under children’s protection act, pp. 3—14; foster homes, pp. 14-16. 1921: Children’s protection a c t ; inspection of foster homes; home finding, pp. 5-9. P ublic H ea lth Journal, T h e [Toronto]. Barnabas, Rev. Brother : Standards o f child placing and supervision. VoL 13 (October, 1922), pp. 458-466. Fisher, Mrs. A. D. : Standards of child plaeing. (Address given March 11, 1920, for the Neighborhood Workers’ Association of Toronto.) VoL 11 (May, 1920), pp. 226-230. Special report of the medical officer of health, Toronto, on the more effi cient provision and care for infants and children born out of wedlock and for homeless children in general, presented to the local board of health August 15, 1919. Vol. 10 (October,, 1919), pp. 468-476. Social W e lfa r e [Toronto]. Barnabas, Rev. Brother: Standards of child-placing supervision. VoL V (December, 1922), pp. 56-59. Rules for child placing derived from the writer’s experience of 25 years. Bell, H azel: Child placing in families. Vol. IV (December, 1 9 2 i), pp. 52-54. The author points out the dangers in child placing from the standpoint of the individual child and urges that such work be established upon scientific principles. Moberly, J. V era : The boarding-out system. Vol. IV (September 1, 1922), pp. 268-269. Describes the inauguration of a unit system of boarding out infants from the Infants’ Home of Toronto. Unsigned articles. A report on child welfare In Toronto. Vol. I l l (June 1, 1921), pp. 234-236. * Notes on the tour of Inspection of various child-caring agencies of Toronto made by C. C. Carstens at the request of the Child-Welfare Council and his report and recommendations on child placing. Child welfare in Saskatchewan. Vol. IV (July 1, 1922), pp. 220-224. Review of the report of the superintendent of neglected and dependent children on child placing. S ee also General Sources, pp. 23 0 -2 3 4 DENMARK! BOARDING-OUT SYSTEM. Fattigvardslagstiftningskommittens Betankanden, Barnavardslagstiftningens Del. I l l — Redogorelse for Barnav&rdslagstiftning 'i Danmark, Norge, octa Finland. P. Palmquists Aktiebolag, Stockholm, 1921. The care of foster children in Denmark, pp. 11, 15-18. B ee also General Sources, pp. 2 3 0 -2 3 4 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 281 APPENDIXES. France ; foster-hom e care for m pupilles de l ^assistance “ PUPILLES DE LA NATION .” n and Ministère de l’Instruction Publique et des Beaux-Arts, Office National des Pupilles de la Nation: Bulletin. Paris. thpT^>PnÎhUlli»wn^ . P?H ish^ ^ qua5Hlly’ xÇ0P > în the details of the administration of pacing a id ’ supervision d ° f thC Natlon’ which includes Provisions relating to **'-------- : Rapport Présenté au Conseil Supérieur. andTm end^nts650^ Paris. ! financlal statements ; discussion of provisions of the law Nobécourt, P. et Schreiber, G .: Hygiène Sociale de l’Enfanee. Masson et Cie.. Paris, 1921. Description o f the French system of boarding out and supervising children re ceiving public assistance, pp. 573-591. 8 e [Paris]. Cambillard, M : Rapport sur l’assistance familiale appliquée notamment aux enfants difficiles ou anormaux. VoL 31 (1912), pp. 283-299. %a R evu e Philanthropique fosterIiefamilfeIr USSi011 ° f placing difflcult or mentally defective children in Fort^iAicide : Pupilles de l’assistance et orphelins de la guerre. Vol. 38 .. An account of placing dependent children in rural families as practiced by « ^ j ? i part" eDt tte Selne *• * - * * “ o • « « « » » to i Mannheimer, Gommés, Dr. : D’assistance familiale aux enfants anormaux. Vol. 31 (1912), pp. 165-171. Discussion of aid to mentally defective dependent children in their own homes, in foster families, or in institutions; comparison of methods Niibécourt, P. et Schreiber, G. : Les enfants assistés et abandonnés. Vol 42 ( 1921 ), pp. 317-333. Placing out infants and older children under the auspices of the publie charities. » Office National des Pupilles de la Nation. Vol. Paterne, D r .: La loi Roussel: Améliorations l’élëvage. Vol. 33 (1913), pp. 17-33. S S P “ * * » for amending the law relative to supervision Increase the authority of the medical 40 (1919), pp. 358-392. à apporter au contrôle de the supervision of placed-out inspectors and to improve the Renault, Jules: Placement chez nourrice isolée: VoL 41 (1920) nn. 220-227. ^ Discussion of French legislation relating to the placing out of infants with nurses &ud suggestions for the improvement of supervision and cure. 6A 1917r ^ ■ : 7France adopts her war orphans. T h e S u rv ey, Vol. 39 Preference given family rather than institutional care; system of guardianship : provision for legal adoption. B ee also General Sources, pp. 230-234. G E R M A N Y l T H E BOARDIN G-OU T S Y ST E M . Engel, Sigmund: The Elements o f Child Protection. Translated from the German by Dr. Eden Paul. The Macmillan Co., New York, 1912. The care of foundlings : History ; the Latin system and the Germanic system i modern methods; institutional care versus family care; supervision of family cares subsidiary aims in the care of foundlings, pp. 140-154. ’ Hoffa, Dr. Theodor: Offene und geschlossene Fiirsorge fiir Haltekinder und Unehelkffie. Z eitsch rift fü r Sauglingsschutz, IV . Jahrgang (October, 1912), Institutional and family care for children in various parts of Germany, with special reference to the city of Barmen. p Salomon, Dr. A lic e : Child care in Germany. T h e S u rvey, Vol. 48 (August 15. 1922), p. 603. A brief discussion of the child-welfare act of June 14, 1922, ingln<iing notes on the new regulations dealing with boarded-«ut children. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 282 POSTER-HOME CARE FOR DEPENDENT CHILDREN, Schriften des Arbeitsausschusses der Kriegerwitwen-und Waisenfürsorge, herausgegeben im Aufträge des Hauptaussehusses in Verbindung mit der Nationalstiftung für die Hinterbliebenen der im Kriege Gefallenen. Fünftes Heft. Kriegswaisen- und Jugendfürsorge. Carl Heymanns Verlag, Berlin, 1917. Extract from an order of the Prussian Minister of Justice relative to keeping war orphans with their own mothers if possible, or in foster families, pp. 14-15; institu tional or family care, pp. 1 7-18; adoption, pp. 3 3 -3 5 ; endorsement of family rather than institutional care in Bavaria, pp. 113-116. Weitpert, Dr. Konrad: Berufsvormundschaft, Blätter für Säuglings- und Klein kinderfürsorge. Munich, 1918. Includes a description of the methods o f “ Pflegesteilervermittlung,” the agency for foster homes of the Board of Public Guardians of Munich. Zentralblatt fü r Vorm undschaftsw esen , Jugendgerichte und Fürsorgeerziehung, Vol. 7, No. 6 (1915), p. 70. Conditions under which war orphans may be placed in foster homes. The building o f orphanages is discouraged, as mothers of the children are usually living. Bee also General Sources, pp. 230-234. GREAT B R IT A IN A N D IR E L A N D : T H E BOARDING-OUT SYSTE M . GENERAL REFERENCES. Aschrott, Dr. P. F., and Preston-Thomas, Herbert: The English Poor-Law System, Past and Present. Second edition. Knight & Co., London, 1902. The boarding-out system, pp. 257-260; the “ scattered homes ” system, pp. 261-262. Batt, Rev. John H .: Dr. Barnardo, the Foster Father of “ Nobody’s Children a record and an interpretation. S. W . Partridge & Co., 8 and 9 Paternoster Row, London, 1904. Review of the system known in England as “ Dr. Barnardo’ s Homes.” Chapter 1 : Number and classes of children; boarding out infants; Canadian emigration; children boarded ont in England. Chapters 4 -5 : Boarding o u t; emigration. Chapters 9 -1 0 : Emigration system. Chance, W illiam : Children*under the Poor Law, their Education, Training, and After Care. Swan Sonnenschein & Co. (L td .), Paternoster Square, London, 1897. Review of the report on an investigation of the hoarding-out system of Scotland and in certain unions in England (1869), pp. 25-29; appraisement of the system, pp. 31-32. The boarding-out system in England: Regulations under the two boarding-out orders; the difficulties connected with compliance with »the regulations; the objections of guardians; success of the system; defects in the system, pp. 180—235. Dewar, David: The Children’s Act, 1908, and Other Acts Affecting Children in the United Kingdom. William Green & Sons, Edinburgh and London, 1911. Includes copies of acts and general statutes applicable to children, with notes; coDies of official circulars, rules, regulations, and orders in council under the chil dren’s act applicable to England, Scotland, and Ireland. Baby farming— infant-life protection, pp. 7-13, 169-171; boarding out of children, pp. 34. Garnett, W . H . Stuart: Children and the Law. John Murray, Albemarle Street, London, 1911. A compilation of the British law concerning children, with a concise statement and interpretation of the various acts with citations. Care of children by poor-law guardians under the local government board. Gorst, Sir John E J- The Children of the Nation. Methuen & Co., 36 Essex Street W . C., London, 1906. Comparison of methods of caring for State children: Outdoor relief; in workhouses • district schools; village communities (cottage system) ; in scattered homes (Sheffield system) ; boarding o u t; “ Dr. Barnardo’ s Homes, pp. 227-240. Successful operation of boarding-out system in Scotland, Ireland, Australasian colonies, and in some continental nations, pp. 240-244. Hall, W . Clarke: The State and the Child. Headly Bros., Publishers (L td .), London, 1917. Boarding out from reformatory and industrial schools, pp. 91-92. Home Department, Committee on Child Adoption (Great Britain): Report presented to Parliament by command of H is Majesty. Parliamentary Paper Cmd. 1254. His Majesty’s Stationery Office, London, 1921. Report on desirability of making legal provision for adoption in Great Britain, and form of such provision. Includes notes on adoption laws of some European countries, British Dominions, and the United States, and a discussion of the advantage* of legal adoption in the care of dependent children. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. ® T n Îw r 1908 tL f 283 iGrea*LBritain) : Report from the Select Committee on Pr0teCtl0n* w yman & Sons (L td .), 109 Fetter Lane, London, . îmtjss t e?tend. provisions of Infant-life protection act 1897 relative w sæ ni“'*“' 18 Loeai Governm ent B oard (England and W ales) : Children under the Poor L a w , report to the president o f the local government board, by T J MacX ara' ParUamentary p aper Cd. 3899. Wyman & Sons <Lt.d.), London, Boarding ont of children, p. 7 ; emigration of poor children, d d 7—12 • homes plan, p. 13 ; conclusions, pp. 18-20. ’ pp’ 1 ^ • - “ sca ttered scattered : Boarding Out of Pauper Children; report by Miss M. H. Mason. man & Sons (Ltd.), London, 1909. June* iC9 io dren un<^er Wy J P°0r ^aw » circular to boards of guardians, 16th Recommendations relative to boarding out, pp. 6 -6 . M«Kay, Thom as: A History of the English Poor Law— Yol. I ll, From 1834 to the Present Time; being a supplementary volume to A History of the Eng lish Poor Law, by Sir George Nicholls. G. P. Putnam’s Sons, New York, 1900. _ y he education o f pauper c h ild re n : Controversy over m eth od s: the boardinsrout fo r ,2nd »a? ainst tbe system ; alternatives— cottage homes, Sheffield type o f isolated or scattered h om es; results o f contending policies, pp. 425—440. Percival, T o m : P oor-L aw Children. St., London, E. C., 1911. Shaw & Sons, 7 -8 Fetter Lane, Fleet , A comPrehensive study o f the adm inistration o f relief to children under the noor law. Summary o f existing methods, with a historical sketch o f the development Pand legal sanctions o f each, with estimates o f value quoted from reports o f investigators ou£ beyond the u n io n ” : Estim ate o f a d v a n teg ^ and 108-114. B oarding but “ within the union ” : A nalysis and discussion o f the boarding-out order o f 1911, pp. 114-118. * a u “ ‘ scussion Boyal Commission on the Poor Laws and Relief in D istress: ReDort. liamentary Paper Cd. 4499. Wyman & Sons (L td .), London, 1909. Par - c i >ar,i Chapter ® :..? b e Children. Boarding o u t : Development o f system, dd 180— 182 , boarding out wi tiim the union and “ w ithout the u n io n t9 • rAnort« « n ^m mendations, pp. 182—1 8 6 ; emigration, pp. 194—195 ; summary o f rernmmpntla 198-200. Review o f existing conditions and proposed chan ges' pp. 619^620.^ S’ PP’ : Separate Report by the Rev. Prebendery H. Russell Wakefield Mr Francis Chandler, Mr. George Lansbury, and Mrs. Sidney Webb (Minority report.) * ' J Children under rival a u th orities: Boarding out “ within the union,” pp 8 0 4-80 5« boarding out in Scotland and boarding out “ w ithout the u n io n « in r L i T j „ „ 4 W ales, pp. 8 0 6 -8 1 0 ; scattered homes, pp. 8 1 2 -8 1 3 ; conclusions, pp. 8 4 3 ?8 4 5 f d “ -— : Appendix Volume I— Minutes of Evidence; being mainly the evidence given by the officers of the Local Government Board for England a n d W a io a Parliamentary Paper Cd. 4625. 1909. es* Statement o f evidence by Miss M. H. Mason, senior inspector o f boarding out fo r to e local government board taken before the Royal Commission, on the operationf o f to e boarding-out system under the poor law, pp. 437-460. operation or ---------: Appendix Volume IA—Appendices to Minutes of Evidence mentary Paper Cd. 4626. 1909. Parlia ama . , . ApP®n<ijx No. X X : Statement in evidence (w ritten memorandum) handed in hv Miss M. H Mason : System o f boarding out beyond the union— history o f the d evelop ment and description o f the essential features c f the system, methods o f inJru**i£!T practical results, pp. 2 9 1 -4 0 0 ; comparison between the7® , * method o f K i n g out beyond the union and those o f other countries, pp. 400-401 • boarding the union, pp. 4 0 1 -4 0 2 ; adoption, 4 0 2 ; emigration pp. 4 ^ d 6 - ^ ta tiftic «i pp. 4 0 6 -4 1 6 ; extracts from rules, annual reports, and records, pp! 416-442.al tables’ ■" : Appendix Volume XVIII—Report on the Condition of Children Who Are in Receipt of Various Forms of Poor-Law Relief in England and Wales by Ethel Williams, assisted by Mary Longman and Marion Phillips Partial mentary Paper Cd. 5037. 1910. v a v 1??,uirjr i“ to eouditton'^jf boarded-out children: Boarding out “ within the union *** boarding out without the union ” ; supervision o f boarded-out children d d 89-90? B eport on inquiry into cases o f children boarded out, pp. 241-258. 72693°—26-----19 https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 284 POSTER-HOME CABE FOR DEPENDENT CHILDREN, R oyal Commission on the Poor Law s and Relief in D istress: Appradlt Volume X X III—Report on the Condition of tire Children Who Are in Re ceipt of the Various Forms of Poor-Law Relief in Certain Parishes in Scot land, by C. T. Parsons, assisted by Mary Longman and Marian Phillips. Parliamentary Paper Cd. 5075. Wyman & Sons (Ltd.),, London, 1910. P art I I I : Report on the inquiry into the condition o f children boarded out in Scotland— administration, environment and character o f homes; the fam ily and its income, guardians o f children, statistics, pp. 53—7 6 ; physical condition of boardedout children, pp. 85-86, 87, 88, 89, 9 0 -9 3 ; general summary and conclusions, pp. 100-103. Appendix C : Tables showing condition o f boarded-out children, pp. 168-170, 175-177, 1&2-183. 1 9 3 -2 0 6 ; tables showing comparison o f children under different systems, pp. 233-236. Smedley, Menella B .: Boarding-Out and Pauper Schools, Especially for Girls; being a reprint of the principal reports on pauper education in the Blue Book for 1873-1874. Henry S. King & Co., London, 1875. B oarding out in Scotland, England, Ireland, Australia. V ice-R egal Commission on Poor-Law Reform in Ireland: Report. Parliamen tary Paper Cd. 3202. Alexander Thom & Co. (Ltd.), Dublin, 1906. Boarded-out children in Ir e la n d : Numbers, evidence in fa vor o f system, comparative Statement o f cost, finding homes, inspection, pp. 4 6 -4 9 ; boarding out in Scotland, p. 4 9 ; other systems in England, pp. 49-50. W eb b , Sidney and Beatrice: English Poor-Law Policy. Longmans, Green & Co. 39 Paternoster Row, London, 1910. A review o f the boarding-out system and the various orders regulating boarding out " w ith in the u n io n ” and “ without the union,” pp. 195—2G0; CONFERENCE PROCEEDINGS. P. S. King & Sons, London. 1904- 5. Birehall, J. Dearman: Boarding out, pp. 9-24. Poor-Law Conferences: Proceedings. Estimates the advantages o f boarding out, especially "b e y o n d the union ” ; suggests amendments to existing law relative to ages and classes o f ch ild ren ; states th e general grounds o f opposition to the system. 1905- 6. Ley, Dr. J. W .: The boarding out of pauper children, pp. 480-492. Discussion, pp. 493-498. The elements o f success and failure in the boarding-out system under the local government h o a rd : classes o f ch ild re n ; selection and super vision o f h o m e s; rates o f payment. Suggests a combination o f boarding-out and “ scattered homes ” systems. Stone, Henry: Provision for children by the poor law, pp. 175-191, Discussion, pp. 191-211. A comparison o f the various methods o f providing fo r dependent children in E n g la n d : cottage or village homes, scattered homes, and hoarding out as to relative cost and training and care o f children. 1910- 11. Mason, Miss M. H . : The report of the Royal Commission on the poor laws—Children, pp. 6-21. A concise statement mission relative to the and a comparison o f m inority reports o f the o f the recom m endations o f the R oyal Com " New W ithin-the-Union Boarding-Out Order ” the recommendations o f the m ajority and Royal Commission. --------- : The new “ Within-the-Union Boarding-Out Order,” pp. 664-671. Discussion, pp. 671-679. Estim ate o f the value o f the new order (effective A pril, 1910) ; need o f amendment to secure supervision by women. Tebb, Rev. Alfred Barrett: Suggested methods for boarding, training, and supervision of poor-law children, pp. 253-266. Discussion, pp. 266-281. Paper and discussion devoted to the relative merits o f the various systems o f care fo r poor-law children in England. 1911- 12. Baker, Rev. J. W .: The placing out, apprenticing, and after care of poor-law children, pp. 565-573. The problem o f placing out in suitable situations boys and girls w ho arrive at the ages o f 14 and 16 years under the care o f poorlaw guardians. 1912- 13. Williams, H. R .: Methods of maintaining poor-law children, pp. 395-411. Discussion, pp. 413-419. R elative m erits o f boarding out and the various systems o f institu tional c a r e ; use o f receiving homes. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 28$ APPENDIXES. Poor-Law Conferences? Proceedings —Continued. 1913-14. Darmody, Rev. J. J .: The poor-law child; what Is being done and what may be done, pp. 139%55. The boarding-out system, pp. 144—147. Philp, Miss F. Penrose: Methods of training poor-law children, pp. 56-68. Comparative study o f methods o f training under the different systems o f institutional care and boarding out. ARTICLES IN PERIODICALS. [London!. Burns, The Rt. Hon. John: Children and the poor law. 1910) , pp. 13-24. ChMd, T h e Vol. 1 (October, Extracts from circular Issued to members o f boards of guardians. Statement o f principles to govern relief on behalf o f ch ild ren ; general outline o f methods o f care o f children under P oor Law. Fairbridge, Kingsley: Child emigration to the British colonies. (December, 1910), pp. 251-254. Vol. 1 Procedure o f child em igrating so cie tie s; dangers o f exploitation o f child labor | difficulties o f supervision under present sy ste m ; theories o f Society fo r F urther ance o f Child Emigration. Mason, Miss M. H .: The inspection of boarded-out children. Vol. 1 (Octo ber, 1910), pp. 154r-156. P ractical directions fo r difficult and intim ate form s o f inspection. Stewart, Edith A .: Boarding out of pauper children. 1911) , pp. 205-210. Vol. 2 (December, Development o f boarding out in Scotland, Ireland, England, and Wales. Dis cussion o f new features o f the new boarding-out order (in force January 1, 1912). Jotirnal o f the S o ciety o f Com parative L egislation [London]. Hopkinson, Sir Alfred: Adoption. and International Law Vol. 2 (January, 1920), pp. 3-9. Lack o f provision fo r adoption in English and Scotch la w ; urgent need fo r legislation regulating adoption, owing to conditions produced by w a r ; adoption laws in other cou n tries; proposed amendment to English law. [London]. (Editorials and articles on adoption.) The adoption of children, laws relating thereto. Vol. 4 (April, 1920), pp. 116-117. M a tern ity and Child W e lfa r e Adoption laws o f Argentina, Canada, Denmark, Greece, Italy, New York State* Norway, Switzerland. The adoption of children, a deputation to the Home Office. 1920), p. 129. Vol. 4 (April, Deputation from National Council o f Women o f Great Britain and Ireland urge need fo r legalizing a d o p tio n ; arguments. Is adoption desirable? Vol. 4 (June, 1920), pp. 191-192. Notes on the inquiry o f the Select Committee. The adoption of children: Report of the Select Committee. Vol. 4 (June, 1920), pp. 196-197. Legalized child adoption: Report of the Home Office Committee. Vol. 5 (June, 1921), pp. 175-177; (July, 1921) pp. 205-207; (August, 1921) pp. 237-238. Review o f r e p o r t; experience In the D om in ion s; provisions in E n g la n d ; draw backs and d eterren ts; relative cost o f m aintenance; prelim inary con d ition s; persons who may a d o p t ; orders and sa n ction s; revocation o f a d op tion ; recom mendations. , Gard, W. D. S .: The principles of adoption. Vol 4 (March, 1920), pp. 71-73. Wethered, Mrs. R. P .: Effect of adoption on the child and on the parent. Vol. 4 (March, 1920), pp. 73-74. Gray, Mrs. Edwin: The case for legalizing adoption. Vol. 4 (April, 1920), pp. 114— 115. Woodcock, H. Drysdale: Some concrete examples. Vol. 4 (April, 1920), pp. 115-116. March, Jessie: Drawbacks and alternatives. VoL 4 (May, 1920), pp. 144-147. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 286 FOSTER-HOME CARE FOR DEPENDENT CHILDREN. [London]—CoM4nued. Beesley, Edward T .: The welfare of the homeless child. Vol. 4 (May, 1920), pp. 147-149. • Pierce, Esther: The child of the unmarried mother. Vol. 4 (July, 1920), pp. 211-212. Sherwood, Frederick W .: Adoptions. Vol. 7 (August, 1928), pp. 260-26L S ee also General Sources, pp. 230-234. M a ter n ity and Child W e lfa r e H U N G A R Y : T H E BOARDIN G-OU T SYSTE M . Bosnynâk, Zoltán de, et Edelsheim-Gyulai, Cte. L.î Le Droit de l’Enfant Abandonné et le Système Hongrois de Protection de l’Enfance. Imprimerie de la Société Anonyme "Athenaeum, Budapest, 1909. Placing o f dependent mother and child in private fam ily, pp. 8 3 -84 ; placing o f dependent children with foster parents as regulated by law o f 1901, pp. 89-97. S e e also General Sources, pp. 230-234. N O R W A Y : T H E BOARDIN G-OU T SYSTEM . Fattigvàrdslagstigtningskommitténs Betankänden, Barnavârdslagstiftningen î Del. I ll—Redogörelse för Barnavfirdslagstiftning i Danmark, Norge, och Finland. P. Palmquists Aktiebolag, Stockholm, 1921. Legal provisions relating to the care o f foster children in Norway, pp. 37-41. Kirke og Undervisningsdepartementet nedsatte utvalg: Endelig innstilling on vergerâdenes overtagelse av tilsynet med de ay fattigvesenet og private bortsatte barn m. v. Steenske Boktrykkeri Johannes Bj0rnstad, Kristiania, 1921. 57 pp. A discussion o f the advisability o f local juvenile commissions assuming the respon sibility o f care o f placed-out children. Wiesener, Bvrâchef G.: Var barneforsorgslovning ved utgangen av 1921. TJtgitt av Norges Landslag for Barne og Ungdoms forsorg. Brosjure Nr. 2 [Kristiania], mai, 1922. Tilsyn med bortsatte bam (Supervision of placed-out children), pp. 9-11. S ee also General Sources, pp. 230-234. S W E D E N : T H E BOARDIN G-OU T SYSTE M . Bamavfirdsmotet, 1911. Svenska Fattigvardsforbundsskrifter No. 6. P. A. Norstedt och Soners Forlag, Stockholm. [1911.] Carlberg, Frigga, och Kihlqvist, J. L .: Vfird av friska barn. Ar utackordering eller anstaltsvfird att foredraga? pp. 113-121, 122-132. The care of the normal ch ild ; is placing out or institutional care to he preferred 7 Wawrinsky, R .: Vfir fosterbarnsvfird, vad som vunnits genom 1902 firs lag och vad som fiterstfir att vinna, pp. 27-47. The care o f foster ch ild re n ; what has been gained through the law o f 1902 and what remains to be gained. Fattigvardslagstiftningskommittens Betankanden, Barnavfirdslagstiftningen: Del. 1—Forslag till lag om den Offentliga Barnavfirden med flera Forfattningar. Del. II— Statistiska Undersokningar rorande den Offentliga Barnav&rden i Sverige. P. Palmquists Aktiebolag, Stockholm, 1921. The results o f a committee investigation concerning child welfare in Sweden. P art I Section 2, pp. 5 -6 . 28-37, 68 -69, 115-117, 139-140, 175-178, 277-307, 347-349, 356-357 447-451 : The existing legal provisions relating to foster children ; organiza tions and their methods in dealing with this group o f children. Suggested changes are discussed in a proposed law, which is submitted. P art II, pp. 19—26 : Statistical data concerning foster children. Guinchard, J., Editor: Sweden; historical and statistical handbook. By order of the Swedish Government. P. A. Norstedt och Soners Forlag, Stockholm, 1914. P art I : The care o f the needy and destitute, by G. H. von Koch, pp. 751-754. P rotection o f children, by M. Blumenthal, p. 772. Svenska Fattigvardsförbundets Kalendar, 1919. P. A. Norstedt och Soners Förlag, Stockholm, 1919. Linders, Häradshövding Jacob: Barnavfirdslagstiftning, pp. 42-44. An outline o f child-welfare legislation, including a summary of the provisions relating to foster children. B ee also General Sources, pp. 230-234, https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES, 287 ADDENDA. Children’ s Bureau, Ü. S. Department o f Labor: Adoption Law s in the United States ; a summary of the development o f adoption legislation and signifi cant features of adoption statutes, with the text of selected laws, by Emelvn Foster Peck. Publication No. 148. Washington, 1925. 51 pp. A Guide Book for Boarding Mothers. Issued by Division of Charities, State Department of Public W elfare, Columbus, Ohio. 44 pp. Standards o f W ork for Child-Caring Institutions, D ay Nurseries, and Placing-O u t Societies. Council o f Social Agencies o f the W elfare Federation o f Philadelphia, 811 South Juniper Street, Philadelphia, January, 1925. Conference on Child W elfare, H eld In N ew York, M ay 15 to 20, 1925, under the auspices of the Child W elfare Committee of America (In c .), (730 Fifth Ave., New York). publlsh^l in PamPhlet form, Including: Resolutions; Caring for Other People s Children, by Mary E. Boretz; Orphan Asylums Seen as Passingf by Sophie Thurston^ ’ After Care Work> by Sarah Sussman-Tromer; Address, by Prof. Henry*W. National Conference of Catholic Charities: Proceedings 1924. Corcoran, Rev. J. F. R . : How can we find good Catholic boarding homes?, pp. 157-162. Discussion, pp. 162-163. Doherty, Rev. John F : H ow to prevent the frequent transfer of children in boarding homes, pp. 164-172. Discussion, pp. 172-174, Fitzgerald, Jam es: Correction of home conditions rather than foster care, pp. 137-146. Discussion, pp. 146, 147. National Conference o f Jewish Social Service: Proceedings. 1923. Jewish Children’s Bureau of Baltimore, pp. 332-343. Dubinsky, Gertrude M .: Obstacles in the development o f foster family care for dependent children, pp. 362-369. Discussion, pp. 369—380. Goldsmith, Samuel A . : Results of the Child Care Study in New York City, pp. 347-353. Discussion, pp. 353-361. Lowenstein, Solomon: Comparative educational and cultural op portunities in institutions and boarding homes, pp. 380-385. Seligsberg, Alice L . : The Jewish Children’s Clearing Bureau o f New York, pp. 260-272. 1924. Corman, B ertha: A study of the problem child in the foster home, pp. 65-85. Discussion, pp. 85-93. National Conference o f Social W o r k : Proceedings. 1924. Stoneman, Albert H . : Case work in child placing, pp. 318-321. -----------: Safeguarding adoptions legally and socially, pp. 144-150. Taylor, R u th : The care of children in foster homes, pp. 125-127. Theis, Sophie van Senden: How foster children turn out, pp. 1 2 1 Whitton, Charlotte: Juvenile immigration, pp. 609-613. 1925. Carstens, C. C .: W hat children should be received for care by an institution or agency, and what is the responsibility for those not accepted? Doherty, Rev. J oh n : Agencies for determining whether care outside of own home is needed, and if so, what kind of care. Annals of the American Academy of Political and Social Science. Megee, Martha J. : The problems of children as a child-placing agency sees them. Vol. 121 (September, 1925), pp. 159-163. Hygeia. W illiam s, C. Y . : Before you adopt a child. July, 1924, pp. 423-427, Survey, The. Ross, M a ry: Children who had a second chance. Vol. 52 (Julv 1. 1924) pp. 382-385. ' Quinn, Lillian A .: A county’s homeless children. Vol. 53 (December 15. 1924), pp. 347-349. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis 288 FOSTER-HOME OARE FOR DEPENDENT CHILDREN. Survey , The— Continued. Deardorff, Neva R .: The welfare of the said child. 1925), pp. 457-461. Yol. 53 (January 15, A study of adoptions In Pennsylvania. Baby boarders. Yol. 54 (April 15, 1925), pp. 83, 84. The day care of children In boarding homes versus day nurseries as worked out In Milwaukee, Wis. Commission Appointed to Study and Revise the Statutes o f Pennsylvania Relating to Children. Report to the General Assembly Meeting in 1925. Part I— W ith appendices containing the results of the study of the practice of adoption in Pennsyl vania, 1925. Canada’s Child Immigrants. Committee on Immigration and Colonization to the Social Service Council of Canada. Toronto, January, 1925. 90 pp. https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis APPENDIXES. 289 A P P E N D IX E.— SELECTED BOOKS AND PAM PHLETS ON CHILD CARE AND TRAINING OF INTEREST TO CHILD PLACING AGENCIES AND FOSTER MOTHERS. Care and Feeding o f Children, by L. Emmett Holt, M. D. D. Appleton & Co., New York, 1923. Price $1.25. Infant Feeding, by Julius H. Hess, M. D. American Medical Association, Chicago, 1923. 152 pp. Price $1. Infant Care (R evised). United States Children’s Bureau Publication No 8 Washington, 1921. 118 pp. T h * ? reSo ^ 001 ChTi.1^’ hl Arnold Gesell> M . D. Houghton Mifflin Co., Boston, 1923. 264 pp. Price $1.90. The Health o f the Runabout Child, by W illiam Palmer Lucas, M D The Macmillan Co., New York, 1923. 229 pp. Price $1.75. Child Care, The Preschool Age, by Mrs. Max West. United States Children’s Bureau Publication No. 30. Washington, 1922. 82 pp. Child Training, by Angelo Patri. D. Appleton & Co., New York, 1922. 434 pp. Price $2. H abit Clinics fo r the Child o f Preschool A g e ; their organization and prac tical value, by D. A. Thom, M. D. United States Children’s Bureau Publica tion No. 135. Washington, 1924. 71 pp. H abit Training fo r Children. National Committee for Mental Hygiene (Inc ) . 370 Seventh Avenue, New York. Set o f 9 leaflets, 10 cents. Chiid Management, by D. A . Thom, M. D. United States Children’s Bureau Publication No. 143. Washington, 1925. 36 pp. Mental Health fo r Norm al Children, by W . H. Burnham. Massachusetts Society for Mental Hygiene, 18 Tremont Street, Boston. 8 pp. Mental H ygiene o f Childhood, by William A . White, M. D. Little, Brown & Co., Boston, 1919. 193 pp. Price $1.75. Safeguarding Children’s Nerves, by James L. W alsh, M. D., and John A. lo o te , M. D. J. B. Lippincott Co., Philadelphia, 1924. 272 pp Price $2 The Fate o f the First Molar. United States Public Health Service. Public Health Reprint No. 645. Washington, 1921. 6 pp. H ow to Build Sound Teeth. Distributed by the American Dental Association, 5 North Wabash Avenue, Chicago. 15 pp. D odgers on Child W e lfa r e : W hat Do Growing Children Need? Books and Pamphlets on Child Care. Is Your Child’s Birth Recorded? Bottle Feed ing. Feeding the Child. The Care o f the Baby. United States Children’s Bureau, Washington. Feeding the Fam ily, by Mrs. M. S. Rose. The Macmillan Co., New York 1924. 487 pp. Price $2.40. Food fo r the Fam ily. New York Association for Improving the Condition o f the Poor. Publication No. 120. Revised 1922. 31 pp. Price 25 cents Food fo r Y o u n g Children, by C. L. Hunt. United States Department of Agriculture Farmers’ Bulletin 717. Washington, 1920. 26 pp. W h a t to Feed the Children, by D. R. Mendenhall, M. D. College o f Agri culture, University o f Wisconsin, Madison, 1924. 24 pp. W h y Drink M ilk ? M ilk I s the Indispensable Food fo r Children United States Children’s Bureau Folder No. 3. Washington, 1924. 8 pp. Nutrition and Growth in Children, by W illiam R. P. Emerson, M. D D Annieton & Co., New York, 1922. 342 pp. Price $2.50. Am erican Red Cross Textbook on H om e H ygiene and Care o f the Sick, by Jane A. Delano, R. N. Revised and rewritten by Anne Hervey Strong R N P. Blakiston’s Son & Co., Philadelphia, 1922, 330 pp. Price 70 cents* paper; $1.25, cloth. ’ A B rief Manual o f Games fo r Organized Play, adapted from standard sources, by Martha Travilla Speakman. United States Children’s Bureau Publication No. 113. Revised edition. Washington, 1925. 37 pp. Backyard Playgrounds. United States Children’s Bureau Folder No 2. Washington, 1923. 6 pp. Pamphlets o f interest to mothers may be obtained from State boards o f health and extension divisions o f State universities. o https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis .tJf https://fraser.stlouisfed.org Federal Reserve Bank of St. Louis