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UNITED STATES DEPARTMENT OF LABOR
FRAN CES PE RK IN S, Secretary
C H IL D R E N ’ S BU REAU
K ATH A R IN E F. LENROOT, Chief
INSTITUTIONAL TREATMENT
OF DELINQUENT BOYS
PART 1.— TREATMENT PROGRAMS OF
FIVE STATE INSTITUTIONS
By *
A L ID A C. BOW LER
and
R U T H S. BLOODGOOD
Bureau Publication No. 228
Agricultural & Mechanical College of T e w
College Station, iexas.
U N ITE D STATES
G OVERNM ENT PR IN TIN G OFFICE
W ASHINGTON : 1935
For tale by the Superintendent of Documents, Washington, D . C.
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CO NTEN TS
Letter of transmittal_______________________________________________ ____
Chapter I.— Introduction_______________________________________________
Objectives o f an institutional program_____________________________
Results of institutional treatment__________________________________
Growth of the movement to establish separate institutions for juvenile
offenders_________________________________ _______________________
Scope and method of the study____________________________________
Chapter II.— Whittier State School, Whittier, Ca l i f ____________________
1* Statutory provisions governing establishment and operation____
2. The physical plant_____________________________________________
3. Plant valuation and operating expense_________________________
4. Administrative control, staff organization, and personnel_____ _
5. Admissions, capacity, and population_____________________ _____
6. Reception and assignment procedure_________________________ _
7. The b o y ’s life in the institution_______ ;____________
8. Physical examinations and medical care________________________
9. Psychiatric and psychological service___________________________
10. Educational program— classroom work_________________________
11. Educational program— vocational or prevocational work________
12. Physical education and athletics________________________________
13. Other recreational and educational activities___________________
14. Religious instruction___________________________________________
15. Credit system and disciplinary measures_______________________
16. Institution records______________________ _____________________
17. Parole and discharge_______________________ ________________ ___
18. Plant and program changes in recent years_____________________
Chapter III.— B oys’ Vocational School, Lansing, M ich_________________
1. Statutory provisions governing establishment and operation____
2. The physical plant_____________________________________________
3. Plant valuation and operating expense_________________________
4. Administrative control, staff organization, and personnef____
5- Admissions, capacity, and population______________ ____________
6. Reception and assignment procedure___________________________
7. The b o y ’s life in the institution_____________ ________________ II
8. Physical examinations and medical care_____________
9. Psychiatric and psychological service___________________________
10. Educational program— classroom work_____________________ ■___
11. Educational program— vocational or prevocational work________
12. Physical education and athletics_________________
13. Other recreational and educational activities__________________ _
14. Religious instruction_________________ _________________________
15. Credit system and disciplinary measures________________________
16. Institution records__________________________________
17. Parole and discharge___________________________________________
18. Plant and program changes in recent years_____________________
Chapter IV .— State Home for Boys, Jamesburg, N. J___________________
1. Statutory provisions governing establishment and operation____
2. The physical plant___________________________________________
3. Plant valuation and operating expense_________________________
4. Administrative control, staff organization, and personnel_______
5. Admissions, capacity, and population__________________________
6. Reception and assignment procedure___________________________
7. The boy’s life in the institution________________________________
8. Physical examinations and medical care________________________
9. Psychiatric and psychological service___________________________
10. Educational program— classroom work_________________________
11. Educational program— vocational or prevocational work________
12. Physical education and athletics________________________________
13. Other recreational and educational activities_______________
14. Religious instruction______________________________________ H I '
15. Credit system and disciplinary measures___________ *___________
16. Institution records_________________________________11111111
17. Parole and discharge__________________________________________ I
18. Plant and program changes in recent years_____________________
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IV
CONTENTS
Chapter V.— State Agricultural and Industrial School, Industry, N. Y —
1. Statutory provisions governing establishment and operation------2. The physical plant____________________ ___________ _____________
3. Plant valuation and operating expense.________________________
4. Administrative control, staff organization, and personnel-----------5. Admissions, capacity, and population__________________________
6. Reception and assignment procedure____________________ ______
7. The boy’s life in the institution_____________________________ —
8. Physical examinations and medical care________________________
9. Psychiatric and psychological service______________ ___________—
10. Educational program— classroom work--------- _----------------------11. Educational program— vocational or prevocational work-----------12. Physical education and athletics_____________________ . . . _______
13. Other recreational and educational activities___________________
14. Religious instruction_________________________________ __________
15. Credit system and disciplinary measures________________________
16. Institution records___ _________________________________________
17. Parole and discharge___________________________________________
18. Plant and program changes in recent years _ _ ---------------------------Chapter VI.— Boys’ Industrial School, Lancaster, Ohio---------------* ----------1. Statutory provisions governing establishment and operation------2. The physical plant_____________________________________________
3. Plant valuation and operating expense^-------------------------------------4. Administrative control, staff organization, and personnel-----------5. Admissions, capacity, and population---------------------------------------6. Reception and assignment procedure----------------------------------------7. The boy’s life in the institution._______________________________
8. Physical examinations and medical care-----------------------------------9. Psychiatric and psychological service----------------------------------------10. Educational program— classroom work-------------------------------------11. Educational program— vocational or prevocational work-----------12. Physical education and athletics------------------------------------------- —
13. Other recreational and educational activities— ,----- i-----------------14. Religious instruction - ------------------- -------------------------------------------15. Credit system and disciplinary measures-----------------------------------16. Institution records-------------------------------------------------------------------17. Parole and discharge----------------------------------------------------------------18. Plant and program changes in recent years............ ..........................
Chapter VII.— Recapitulation and comments----------------------------- ----------1. Statutory provisions governing establishment and operation------2. The physical plant-------------------------------------------------------------------3. Plant valuation and operating expense--------.-----------------------------4. Administrative control, staff organization, and personnel-----------5. Admissions, capacity, and population---------------------------------------6. Reception and assignment procedure----------------------------------------7. The boy’s life in the institution------------------------------------------------8. Physical examinations and medical care-----------------------------------9. Psychiatric and psychological service----------------------------------------10. Educational program— classroom work--------- -------------------------- 11. Educational program— vocational or prevocational work-----------12. Physical education and athletics-------------------------------- --------------13. Other recreational and educational activities-----------------------------14. Religious instruction------------ — -----------------------------------------------15. Credit systems and disciplinary measures----------------------------------16. Institution records-------------------------------------------------------------------17. Parole and discharge----------------------------------------------------------------18. Concluding statement------------------------------- -----------------------------Appendix A.— Sample menus----------------------------------------------------------------Appendix B.— Outline of trade course, shop instructor’s report, and
sample lessons______________________________________________ __________
Appendix C.— Sample record forms----------------- ---------------------------------------
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LETTER OF TR A N SM ITT A L
U n it e d S t a t e s D e p a r t m e n t o p L a b o r ,
C h il d r e n ’ s B u r e a u ,
Washington, December 22, 1984M a d a m : There is transmitted herewith part 1 of a report on Insti
tutional Treatment for Delinquent Boys. This section of the report
deals particularly with the plants and programs of the five State
institutions which were included in the study. The second part will
contain an analysis of 751 cases of delinquent boys who had been
under care in these five institutions and had been released 5 or more
years prior to the time of the study.
The preliminary plans for the study were prepared under the super
vision of Agnes K. Hanna, director of the Social Service Division of
the Children’s Bureau, and Harrison A. Dobbs, associate professor of
social economy in the School of Social Service Administration, Univer
sity of Chicago. Alida C. Bowler, then director of the Delinquency
Division of the Children’s Bureau, was in charge of the development
of the study. With the assistance of Ruth S. Bloodgood of the
Division’s staff, she has written the report.
The schools selected for study were State institutions which are
representative of treatment programs being administered in various
sections of the country. It was not expected that conclusive judg
ments could be passed on the results of these programs, but it is
believed that such studies as this can give some indication of the
values and difficulties inherent in them. Although more money and
thought should be spent on prevention, treatment will still be neces
sary, and we need to consider objectively what is being done and how
the success of a program can be tested in the lives of individual boys.
The Children’s Bureau acknowledges with appreciation the cordial
cooperation of the many departments, agencies, and individuals in
the several States and in the United States Government in giving
access to essential sources of information. To the superintendents
and the staff members of the several institutions it is especially
indebted for their cordial cooperation throughout.
Respectfully submitted.
K a t h a r i n e F . L e n r o o t , Chief.
Hon. F r a n c e s P e r k i n s ,
Secretary of Labor.
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INSTITUTIONAL TREATMENT OF DELINQUENT BOYS
P art 1.— T rea tm en t P rog ra m s o f F iv e S tate In stitu
tion s fo r D elin q u en t B o y s
Chapter I.— IN TRO D UCTION
O B JEC TIVES O F A N IN S T IT U T IO N A L P R O G R A M
In the beginning, institutions for delinquents, whether they were
for juveniles or for adults, were conceived to be places for the punish
ment of malefactors or for the safe-keeping of dangerous persons.
Then the idea that removal from the evil influences of a bad envi
ronment would be helpful developed. In earlier days, when the word
“ treatment” was used, its meaning was limited. It signified kindly or
cruel handling of the children in custody. Today, among specialists,
its significance is closely akin to, if not identical with, the meaning
of the word “ treatment” in the field of therapeutics.
Punishment did not seem to do juvenile delinquents a great deal of
good. Society, interested primarily in self-protection, applauded
custody but recognized the temporary quality of its effectiveness.
Society also had occasion to observe that the after effects of the pre
vailing types of custodial care are frequently worse than the original
misconduct. But permanent custody seemed an absurdly impos
sible— as well as exceedingly expensive— solution save for a very
limited number of extreme cases. So “ reformation” became the
watchword of the committing courts and institutions. But it was
easier to talk in general terms about reforming boys than it was to
formulate and put into effect a program that would actually accom
plish that end. Therefore a period of experimentation ensued.
Enthusiasts appeared who believed that rigid discipline, preferably
of a military character, would wipe out bad and inculcate good habits.
Others, equally enthusiastic, were convinced that fife in the country,
close to nature, would somehow result in bringing about a spiritual
reclamation. Others were certain that a first-class academic educa
tion would effectively reshape behavior patterns. Still others were
sure that if the boys were given industrial training, tapght trades,
they would somehow be enabled to stay within the bounds of accepted
modes of behavior.
Thus institutions that emphasized one or another or some com
bination of these types of training came into being. There were
institutions where boys lived together in large groups under a rigid,
semimilitary regime, where boys marched to and fro in long, shuffling,
silent lines, where the normal exuberance of healthy boyhood was
rigorously repressed in the name of reformation. There were other
institutions where boys lived in small segregated groups in the country,
1
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
engaged daily in agricultural pursuits, with some time given to aca
demic study. There were still others where great emphasis was
placed on industrial training. This particular type has had such a
vogue that the term “ industrial school” has come to be almost
synonymous with “ institution for juvenile delinquents” in this
country. Unfortunately this type of institution frequently showed
a tendency to specialize in teaching a boy how to do maintenance
work for the institution, in the interests of economy, without suffi
cient consideration as to whether what he was learning would be of
any use to him on his release. There seemed to be a belief that work
in itself would cure behavior ills.
Whatever the type of training emphasized, practically all insti
tutions for delinquent boys recognized that it was expected that they
would “ reform” the boys committed to their care; that is, that they
would turn “ bad boys” into “ good boys.” Recognition of this as
their purpose is evidenced by the unanimity with which institutions
made the claim that amazingly high percentages of their boys “ made
good ” on release. But even a superficial acquaintance with some of
the State schools for delinquents would have revealed to the inquiring
mind that no clear, far-seeing, well-defined objectives governed either
the individual or the joint thinking of the staffs actually engaged in
operating many of these institutions. Confusion arose when it be
came necessary to resolve the general purpose into specific objectives.
In other words, just what was this process of “ reformation” ? Did
it mean handling court-committed boys in such a way as to reduce
to a minimum escapes and violations of rules and to produce a
smoothly running institution?
For example, some of the so-called “ training schools” were fine show
places. Visiting boards and committees saw paint shining, floors
scrubbed and polished, beds unwrinkled and spotless, lawns and
decorative flower beds in perfect order. They saw quiet lines of
uniformly garbed boys, grouped by size and age, on dress parade, and
often they listened approvingly to a brass band offering a perform
ance to show “ what could be done with bad boys.” It may all have
looked well to visitors— except that a few who really knew and cared
about boys must have wondered what was going on under those sub
dued exteriors and whether the permanent effect of so much repres
sion and regimentation would prove beneficial or the reverse.
As a matter of fact it did occur to many people, both inside and
outside the institutional field, that a large and showy institution was
certainly not the main objective of the work in hand: that the indi
vidual boy, not the institution or the group, should hold the center
of the stage. Interesting experiments began to appear here and there.
Repression, harshness of discipline, and mass handling began to give
way to more positive methods of control and more individualization
of treatment. Social research invaded the delinquency field and found
the soil fertile. There was much talk of “ causes of delinquency.”
Scientific studies threw some fight on the connection between social
conditions and delinquency. To such movements the developments
in the fields of psychology, psychiatry, and mental hygiene have
given great impetus in recent years. But despite the progress that
had been made, the delinquency committee of the White House
Conference on Child Health and Protection reported in 1930 that
“ there are now in existence State institutions for delinquents which
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INTRODUCTION
3
represent almost every stage in the development of principles and
methods of treatment for children committed for institutional care.” 1
Today, to be in agreement with the most progressive thought among
staff members in institutions for delinquent boys, the objectives of
such an institution must be described somewhat as follows: An institu
tion for delinquent boys exists for the purpose of reeducating the
individual child committed to its care by the court. Reeducation
here means something much broader and deeper than any amount of
improvement or increase in the academic instruction or vocational
training which the individual child is to receive. It means reshaping
bis behavior patterns. It means giving thoughtful attention to his
personality difficulties to the end that he may achieve healthy
emotional development as well as growth in mental equipment or
manual skill. It means giving the child an opportunity to meet and
experience life under controlled conditions, in order that he may be
more readily redirected and guided into behavior channels that will
gratify him and be acceptable to others. It also implies making
quite sure before he is released that he has acquired sufficient reeduca
tion, or redirection, to enable him to make those personal and social
adjustments that will be necessary if he is to lead a fuller, happier,
more productive life and if be is to avoid those conflicts which had
previously brought him, and would again bring him, into conflict with
society and its laws. To imply that all these things can be done for
all boys would be to sidestep reality flagrantly. Realistically the
institution’s task is to discover each boy’s assets and liabilities in
relation to the social scheme, and then to go as far as possible in each
case toward building up a personality capable of satisfactory selfdirection.
Since readjustment to social living is now recognized as the primary
purpose of these training centers for delinquent youth, it is inevitable
that the institution, or its associate public agencies, should shoulder
the responsibility for assisting the child during the first difficult weeks
and months of adjustment in the community to which he returns.
For life in that community differs in many essential features from life
in even the most ideal of institutions, and the transition is not easy.
Moreover, if it is the same community from which the boy came, the
chances are very great that the same destructive influences and forces
which were contributing factors in bringing about his original conflict
will still be operative.
Closely related to these developments with respect to institutional
objectives are the changing attitudes toward the child and his behavior
problems. It took a long while to reach the point where it was
recognized that behind specific offenses, such as stealing, might lie
causes as diverse as those underlying physical fevers. A physician
does not treat the fever; he treats the physical disorder of which the
fever is one symptom. In like fashion the psychiatrist and the social
worker are attempting to get away iron the treatment of the offense.
They seek to discover and treat the psycho-social disorder of which
that specific act is but a symptom.
For a time, in their efforts to understand and help the juvenile
delinquent, workers regarded and studied the child as a more or less
isolated mechanism. The approach was becoming more scientific, but
i The Delinquent Child, p. 298. W hite House Conference on Child Health and Protection.
C o., N ew York, 1932.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
the philosophy was still circumscribed and child-centered. Inevitably
these studies led to a realization of how inextricably the child is
embedded in the social fabric. This in turn pointed to the necessity
of widening the sphere of interest of the institution. It became
apparent that an institution could hope to approach its goal only
when it was able to understand and help each individual child com
mitted to its care. This could be done only through a careful,
sympathetic, but scientific study of the child. Such a study would
consider the child not only in relation to himself but also in relation
to all those factors in his home and in his community which had had
a part in shaping his previous behavior and would wield a powerful
influence in determining his future.
When the individual child has been carefully studied, treatment
believed to be appropriate to his situation may be devised. But,
despite the advances made by social, psychological, and psychiatric
research in recent years, there is still too little knowledge of what
makes a particular human being do the things he does. Therefore,
any treatment plans, based on however thorough a study, must, as
yet, be constantly observed in progress and carefully modified or
changed if they fail to work the changes for which they were designed.
R E SU LT S OF IN S T IT U T IO N A L T R E A T M E N T
If, then, it is agreed that the primary objective of institutional
treatment for delinquent boys is so to reeducate and redirect these
boys as to enable them to return to normal social living free of super
vision, it becomes pertinent to inquire to what degree existing institu
tions are achieving success in approaching that goal. A need to
appraise the results of institutional treatment of delinquent boys in
terms of fact exists. In the words of the delinquency committee of
the White House Conference on Child Health and Protection:
There is very little authentic information available in this or other countries
regarding the results of parole. Nearly every institution makes its claim, but
these claims are usually superficial, most of them based on conduct during the
period of parole, or in some cases, only on conduct immediately following release
to the community. Adequate findings can be had only years after release;
such findings must necessarily trace many winding ways through long and
systematic effort, at great expense.2
Now and then during the years some frankly thoughtful individual
in the juvenile-institution group has expressed doubt as to how many
of the boys subjected to institutional treatment are permanently
“ reformed” or rehabilitated. But no large-scale intensive study of
the results of institutional treatment was on record. A limited study
of the subsequent careers of 103 boys who had been committed to the
Whittier State School in California in 1917 was made in 1927 by
Elmer E. Knox, secretary of that school.3 Most of the boys had been
away from the institution and had been released from parole super
vision for some time. All of them were known personally to Mr. Knox,
and much information was procured directly from the boys themselves.
Other data were obtained from probation and parole officers and from
other officials and individuals, largely by correspondence. Mr. Knox
felt that returns were fairly complete on 80 of the 103 cases. The
s Ibid., p. 320.
* Knox, Elmer E .: Follow-up of 103 W hittier State School B oys Ten Years after Admission.
Juvenile Research, vol. 12, nos. 3-4 (Septem ber-Decem ber 1928), p. 261.
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Journal of
5
INTRODUCTION
returns indicated that 58 percent had made adjustments that could
be rated as average or better than average success, 4 percent had
made poor adjustments but could hardly be rated as total failures,
and 38 percent had unmistakably failed and had repeated specific
delinquencies. This small study was presented as “ suggestive rather
than conclusive ” , and the hope was expressed that more intensive
studies with larger numbers of juvenile delinquents might be carried
out, both at Whittier and elsewhere.
In 1930 Sheldon and Eleanor T. Glueck made available in “ 500
Criminal Careers” the results of their research into the histories of
510 boys and young men who had been committed to the Massachu
setts Reformatory, who had spent some time under treatment there,
and who had been given a final discharge at least 5 years prior to
the study. They found that of the 474 parolees about whom infor
mation was obtained, 55 percent “ were officially known to have
committed serious breaches of parole conditions, including the com
m ision of new crimes.” From data obtained on social adjustment
subsequent to discharge from parole it was apparent that 333 (almost
80 percent) of the 422 men about whom such data were procurable
had committed offenses that were either officially recognized or were
discovered by the investigators.4
These findings challenged the complacency of both professional
and lay groups which had assumed that reformatories really did
reform, or permanently rehabilitate, .a fairly substantial proportion
of the boys and young men committed to their care. They consti
tuted almost a complete reversal of the proportions optimistically—
anj
comm.o nly— cited as institutional-treatment “ successes”
and “ failures” in annual reports or in connection with superficial
surveys.” 5
This Massachusetts study had been concerned with individuals
older in years, and consequently in experience, than those with whom
the institutions for juvenile delinquents were working. Only 8 of
the 506 cases about whom age information was available were less
than 16 years old at the time of their reformatory commitment. The
average age at commitment was 20 years. Moreover, the reformatory
methods of treatment were markedly different from those in vogue
at most of the institutions for younger delinquents. Therefore, the
findings of that study could not be assumed to represent the probable
outcome of treatment in the training schools for juvenile delinquents.
Yet the fallacy of drawing conclusions from incomplete data had been
pointed out so clearly that it might well give pause to anyone about
to voice a belief or a claim that 75 to 85 percent of the boys who pass
through training schools for juvenile delinquents make successful
social adjustments and do not again come into conflict with man-made
laws.
, The temptation to draw a much-to-be-desired conclusion from
incomplete evidence seems to be irresistible. Although parole service
is almost universally so inadequately supported that close acquaint
ance with the actual daily life and activities of all parolees is impos
sible, these claims of successful adjustment are often based solely on
the assumption that all parolees are “ getting along all right” unless
York!U193o! Sheldon and EIeanor T -: 500 Criminal Careers, pp. 85, 167, 169, 184.
{ Ibid., pp. 4-6.
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Alfred A . K nopf, N ew
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
their misconduct has happened to bring them to the attention of the
authorities and to occasion their return for parole violation or their
commitment to another correctional or penal institution in the home
State.
Studies of this kind can lay no valid claim to being a representation
of the ultimate results of the treatment given. The arbitrary time
limit necessarily set for the purpose of the study automatically re
stricts the meaning of the findings. Some boys that were having
difficulties during the period covered by the research observations
may eventually reach a reasonably satisfactory adjustment. Others
may go along fairly well during the observation period because no
combination of circumstances happens to occur that hits their par
ticular weak spots hard enough to break through. In other words,
these studies make no final answer to anything. Nevertheless, they
should provide a useful basis for an analysis of treatment methods
currently used, with a view to initiating modifications or new measures
that seem to offer more direct progress toward the avowed objectives.
The study which will be described in this report was undertaken in
the belief that an analysis of the results of institutional treatment of
delinquent boys which was based on patient, thorough, intensive, and
extensive field investigations would be genuinely useful to institution
managements and to others interested in methods of treating juvenile
delinquency.
A field unit of the Children’s Bureau followed up and obtained in
formation about the subsequent careers of 751 boys who had been
under care in five different State institutions for juvenile delinquents.
The descriptive material, the statistical analyses, and such interpre
tations as seemed warranted by careful study of all the data are pre
sented herewith. For convenience in publication and in use for
reference purposes, the report is issued in two parts. _ The first part
contains (in the six chapters following this introduction^ and a brief
statement relative to methods used in the study) a description of the
plants and treatment programs of the five State institutions included,
and certain comments on facilities and treatment methods in use in
institutions of this character. The second part is devoted to a more
detailed account of methods used in the field investigations, to pre
sentation of the statistical analyses of the case-schedule material^ to
discussion of possible interpretations of the analyses, to illustrative
case studies, and to general comments on the findings.
G R O W T H OF T H E M O V E M E N T T O E S T A B L ISH SEPAR ATE
IN S T IT U T IO N S FO R JUVENILE O F FE N D E R S
The first separate institutions for the treatment of juvenile offenders
in this country6 were known as houses of refuge, and were estab
lished in the cities of New York, Boston, and Philadelphia in 1825,
1826, and 1828, respectively. Some authorities consider the Phila
delphia institution historically the second, because in Boston there
was not a separate building for juveniles until 1837. Part of the
building occupied by the house of correction for adult offenders had
been used to house the juveniles until that date.
The movement for the establishment of such separate institutions
had begun as early as 1819 in New York City, when the Society for
# Several were in existence in Europe. See The Care of Destitute, Neglected, and Delinquent Children»
b y Homer Folks, p. 199 (Macm illan C o., N ew York, 1911).
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INTRODUCTION
7
the Prevention of Pauperism, reporting on conditions at Bellevue
Prison, stated:
“ Here is one great school of vice and desperation; with confirmed
and unrepentant criminals we place these novices in guilt—these un
fortunate children from 10 to 14 years of age, who from neglect of
parents, from idleness or misfortune, have been doomed to the peni
tentiary by condemnation of law.”
This society continued its study of the subject and in 1823 came to
the conclusion that pauperism and vice could be considered mainly
due to families whose children had been delinquent from an early
age. The prevailing view seems to have been that poverty and crime
were the offspring of faults in human character. These investigators
seem to have had no distant glimpse of the recognition that was to
come of the economic and social factors underlying delinquency and
crime, nor of the present-day idea that it is to some extent poverty
and its attendant unappeased hungers that beget delinquencies. In
a further report of the society it was shown that the most dangerous
criminals of that day had been neglected, untrained boys of the city
streets, vagrant and given to petty thievery. How to reach this
group was the problem they had to solve. In this same year the
society reorganized as the Society for the Reformation of Juvenile
Delinquents. A committee was appointed to prepare and report a
plan for an institution for juvenile offenders, and the opening of the
House of. Refuge on January 21, 1825, resulted. As there were 6 girls
among the 9 children brought in by the police as the first to receive
care at this new institution, the necessity for separation of girls and
boys was immediately seen, and a separate building was erected for
the girls within the year. Separation of sexes was not effected in the
other two of these earliest institutions until several years later.
Importance was attached by both the New York and Philadelphia
institutions to providing care for dependent and neglected children
who were likely to become delinquents. Five types of cases, including
the dependents, were listed by the committee under whose guidance
the New York House of Refuge was established, as those to receive
care.7 In Philadelphia emphasis was placed upon the fact that the
house of refuge was not a place of punishment.8
These earliest institutions were largely local in character, both in
territory served and in source of financial support. Those in Boston
and Philadelphia were municipal enterprises and remained such for a
number of years. Aside from a small appropriation of $2,000 by the
State in 1825 and certain other State funds, the New York House of
Refuge was supported by private funds during the first 5 or 6 years,
7 T he types were: “ 1. T o furnish, in the first place, an asylum in which boys under a certain age, who
become subject to the notice of our police, either as vagrants, or houseless, or charged with petty crimes,
m ay be received. . . .
2. The committee have no doubt that weie such an institution once well estab
lished and put under good regulations, the magistrates would very often deem it expedient to place offenders
in the hands of its managers, rather than sentence them to the city penitentiary. 3. A third class, which it
might be very proper to transplant to such an establishment and distribute through its better divisions,
are boys, some of whom are of tender age, whose parents are careless of their minds and morals, and leave
them exposed in rags and filth to miserable and scanty fare, destitute of education, and liable to become
the prey of criminal associates. 4. Youthful convicts, who on their discharge from prison, at the expiration
of their sentence, finding themselves without character, without subsistence, and ignorant of the means b y
which it is to be sought, have no alternative but to beg or steal. 5. Delinquent females who are either too
young to have acquired habits of fixed depravity, or those whose lives have in general been virtuous."
T he Care of Destitute, Neglected, and Delinquent Children, p. 200.
8 “ A work of charity and m ercy, the refuge is not a place of punishment; it is not a provision sim ply, or
even principally, for the security of society against offenses b y the confinement of the culprits, or for in
flicting the vengeance of society upon offenders as a terror to those who m ay be inclined to do evil. In the
accents of kindness and compassion it invites the children of poverty and ignorance, whose wandering and
misguided steps are leading them to destruction, to come to a home where they will be sheltered and led
into the ways of usefulness and virtue.” T he Care of Destitute, Neglected, and Delinquent Children,
p. 211.
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8
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
It then became a State and municipally supported institution. Legal
authority to receive children from any city or county in the State had
been given in New York as early as 1826, so that the territory served
was not as limited in New York as in the other institutions.
The administration of the New York and Philadelphia institutions
was under private control, and it is of significance to note that it
remained so in the New York House of Refuge until 1932, and that
this is still the case at the institution in Pennsylvania which is the
outgrowth of the old house of refuge.9 The establishment of other
municipal institutions, likewise called Houses of Refuge, for the care
of juvenile offenders continued, and such institutions were reported
established in New Orleans, Cincinnati, Baltimore, and St. Louis
between 1845 and 1854.10 In the meantime, in other sections of the
country the movement for State provision for care of juvenile delin
quents in institutions was starting, and its growth through establish
ment of such institutions strictly under State management was rapid.
The first of these was the Lyman School for Boys at Westboro, Mass.,
opened in 1847. By 1865 schools had been opened in Massachusetts,
New York (Western House of Refuge at Rochester), Pennsylvania
(Western at Morganza), Maine, Connecticut, Michigan, Ohio, New
Hampshire, Wisconsin, and New Jersey.
A report made in 1900 for the International Prison Congress listed
65 reformatories for juveniles (including some private and local pub
lic institutions).11
The American Prison Association reported in 1933 that there were
in the United States a total of 111 State institutions for the care of
juvenile delinquents; 52 were for boys, 50 for girls, and 9 for both boys
and girls under the same management.12 All the 48 States and the
District of Columbia have institutions for juvenile delinquents.. Two
institutions, one for boys and one for girls, known as “ National
Training Schools” , provide care for juveniles in the District of Colum
bia and receive also some committed for violations of Federal laws
outside the District. Separate institutions for Negro boys are main
tained by several States. In a few States no provision is made for
the care of colored juvenile delinquents. In most of the other States
Negroes are cared for in the institutions caring for white children—
in some cases in separate buildings.
It is impossible in this brief sketch of the development of institu
tions for juvenile offenders to trace in detail the changes in theory
regarding the programs offered in the treatment of young persons
committed to these institutions as these changes occurred. Neither
is it possible to give a full account of the gradual separation of the
sexes through reservation of certain institutions for boys only or the
establishment of separate schools for girls. This would necessitate
outlining to some extent the history of various individual institutions.
The statement can only be made in passing that many of the earlier
institutions, private, local, and State, cared for both boys and girls,
some providing separate buildings for the boys and the girls, others
6 Glen M ills School for B oys, maintained b y the State of Pennsylvania and the C ity of Philadelphia
under a private corporation. For changes in the New York House of Refuge see p. 135 of this report.
10 Local public (both city and county) and private institutions have continued to bo a part of the program
o f institutional treatment of juvenile delinquents, and at the present time there are a large, number of such
institutions. A s this report, however, is concerned w ith State institutions, further detail regarding other
types has not been included.
11 Charlton, T . J.: Juvenile Reformatories of the United States. House Docum ents, vol. 91, pp. 227-228.
W ashington, 1000.
-** State and National Penal and Correctional Institutions of the United States of America and Canada,
com piled b y the American Prison Association, N ew York, June 1933.
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INTRODUCTION
9
caring for all in one building. The first State institution for boys was
the State reform school for boys (now the Lyman School for Boys)
which was established at Westboro, Mass., in 1847, as has been stated;
and the first separate State institution for girls was the Industrial
School for Girls, established in the same State at Lancaster by a law
of 1854. At the present time all except 9 States maintain separate
institutions for boys and girls.13
The State School for Boys at Lancaster, Ohio, which opened in
1856, marked a turning point in the general plan for such institutions.
It was a pioneer in using the cottage plan; that is, relatively small
units for housing inmates replaced the former congregate method of
housing. This venture in institutional care raised a controversial
issue as to which was the more effective method of treatment, the
cottage or the congregate plan. The former has become generally
accepted as the modern standard, although a few State institutions
still use the congregate plan, and in some institutions the cottages are
so large as to provide in effect congregate housing.
SC O P E A N D M E T H O D OF T H E S T U D Y
The study of institutional treatment for delinquent boys undertaken
by the Children’s Bureau included (1) a study of the plants and treat
ment programs of a selected group of institutions for delinquent boys,
and (2) a case study of a group of boys who had undergone treatment
in the institutions selected, and who had been released from super
vision by the institution for a period sufficient to permit a demonstra
tion of the social and economic adjustments that might reasonably
be accepted as indicative of their probable future careers.
For the first section the method of study included a visit of several
days to each of the institutions by members of the Children’s Bureau
staff. During these visits careful observations were made as to the
physical facilities, the standards of care, the training program, and
the general atmosphere of the institution. Data were obtained from
the records and through interviews with members of the institution
staff concerning the physical plant, the program being carried out,
and the policies and aims of the institutions. Information was also
secured, so far as possible, to show how the present institutional pro
grams differ from those existing at the time the boys included in the
case study were under treatment. In connection with obtaining
record material for the case study one of the investigators spent
considerable additional time at each institution. It was possible to
verify policies referring to the earlier period as shown by the record
study, through conferences with staff members who Were there at that
time. The managements at all the institutions generously cooperated
in the preparation of special tabulations requested. Annual and
special printed reports were consulted for material. The statutes of
the five States were reviewed for the information on laws governing
the establishment and operation of each institution.
This volume, dealing with the plants and programs of the schools
themselves, makes no pretense to being an exhaustive treatise on the
subject. It simply presents a general picture of each institution as
it appeared, during a relatively brief visit, to field workers trained in
► « Idaho, Mississippi, Nevada, N ew Hampshire, N orth Dakota, Pennsylvania, South Dakota, Utah,
and Vermont.
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10
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
methods of observation and having considerable experience in con
nection with delinquency problems and institutional life.
For the case study the method was that of an intensive follow-up
on each case. This included obtaining data from records and personal
interviews with local officials, the boy’s family, and the boy himself.
Data obtained covered the boy’s preinstitutional history, Ins institu
tional treatment, his parole and postparole history, and his situation
at the time his case was studied. From the boys interviewed an ex
pression was sought as to their attitudes toward the institution and its
program as it appeared to them during their period of care.
The following State schools for delinquent boys were selected for
this study: Whittier State School, Whittier, Calif.; Boys’ Vocational
School, Lansing, M ich.; State Home for Boys, Jamesburg, N.J.;
State Agricultural and Industrial School, Industry, N .Y .; and Boys’
Industrial School, Lancaster, Ohio.
The original plan had been to select only schools which were quite
generally thought to have developed programs of especially high
standards along progressive Unes. It was soon realized that a study
which proposed to show the results of institutional treatment of delin
quent boys rather generally should include schools that would be
representative of the varying standards of care and training given
by State institutions throughout the country. Selection was
influenced to some extent by this consideration.
The desirability of representation for the various sections of the
country was also considered. At the outset it had been hoped to
include 10 schools, which would have permitted of wider geographical
representation than that covered by the 5 schools finally included.
The curtailment of this original plan became necessary because of
the considerable time found to be required for the case studies in
each State. This accounts for the fact that no schools in the South,
Southwest, nor in that section of the country lying between the
Mississippi and the Pacific coast were studied.
Institutional population was another factor entering into the select
tion. It was essential to select institutions in which the number
placed on parole during a specified period would yield a sufficient
number of cases in each State so that all cases studied might be
reasonably comparable as to length of time since release from institu
tional supervision.
Only institutions operated and maintained exclusively by the State,
and caring for boys only, were considered for inclusion in the study.
Selections for the case study were made on the basis of 150 cases
of boys who had been released from institutional supervision over a
comparable span of years from each of the five institutions. Because
of the differences in policies and legal provisions relating to discharge
from parole in the different States the selection was made so that the
period between leaving the institution the last time and the beginning
of the field study in each State would be comparable. For the institu
tions in California, Michigan, and Ohio it was possible to make the
selection by means of taking cases discharged from parole 5 years
or slightly more preceding the beginning of the study in the respective
States. In New Jersey and New York the period between the boy’s
last placement on parole and the date of study was the deciding factor.
All cases were selected in chronological order from either fists of
final discharge from parole or fists giving date of last placement on
parole. The only exclusions made were cases in which the bov’s
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INTRODUCTION
11
death subsequent to release from the institution was noted during the
course of the study.
Every effort was made in the case study to obtain as accurate and
detailed information about each boy as was possible through inspection
of records and through interviews. The interview with the boy was
stressed, and the field agents spent untiring effort in many cases
to locate boys and obtain interviews. Sources of information included
the records at the institution and records from the following: Local
juvenile courts; adult courts; State and local bureaus of identification;
the police; and other institutions, mostly correctional or penal
institutions in which subsequent care was given. In communities
where social-service exchanges were operating, cases were cleared to
determine whether the boy or his family was known to social agencies
either prior to or subsequent to his institutional commitment.
Records of all registering agencies were not inspected, but those of
agencies which might be expected to show evidence of delinquency
problems were always consulted. The boy’s immediate family
was interviewed in all cases in which it was practicable to do so.
Other relatives frequently gave valuable assistance in furnishing
supplementary data and in locating the boy and his own family.
Great care was exercised by the field agents not to embarass in any
way the boy or his family by stating the reason for seeking information
to neighbors or others who might not be familiar with his delinquency
history. The same care was exercised to avoid in any way jeopardiz
ing the boy’s employment or his social standing in the community.
For this reason, employers, either former or present, were seldom
interviewed, although it would have been advantageous in many
cases to verify the boy’s work history as reported by his family or
himself.
The field work for the case study, which included a total of 751 cases,
was begun in September 1929 and was completed in M ay 1932.
The agents who did the follow-up and interviewing were young
men, all of whom were college graduates and some of whom had had
training at schools of social work. An applicant’s personality was
carefully considered in selection of the field agents. Skill in making
the initial approach and in conducting interviews was deemed very
important. The work was started with a staff of two field agents.
Later the number was increased to four. The record work at the
institutions and a considerable part of the work connected with
checking and clearing cases with local and State authorities and
securing subsequent misconduct records was done by the supervisor
of the field work, a member of the permanent staff of the Children’s
Bureau. Cooperation by the institutions concerned, by other State
agencies and institutions, and with few exceptions by local county
and city officials, was freely given and proved most valuable. For
the most part the families of the boys and the boys themselves
responded cordially as soon as they understood the purpose of the
study. There were only a few instances in which a flat refusal to
give the desired information was encountered.
The findings of the case study, with a more detailed discussion of
the selection of cases at each institution and the methods used in
following the cases through, are given in part 2.14
n Institutional Treatment of Delinquent B oys, Part 2—A Study of 751 Cases.
Publication N o. 230. W ashington, 1935.
76870— 35------ 2
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U .S. Children's Bureau
Chapter IL— W H IT T IE R STATE SCH OOL, W H IT T IE R , CALIF.
Except as otherwise indicated in the text, the statements made in
this chapter refer to conditions existing at Whittier State School in
November 1931, when it was visited for the purpose of securing mate
rial for this study. It has not been possible to revisit the five insti
tutions included in this study immediately prior to publication of the
report. It is well therefore for the reader to bear in mind that the
programs in 1934 and thereafter may reflect many changes. From
reports received from California it would seem that this is especially
true of Whittier State School. These reports reveal that a citizens’
advisory committee was appointed in the spring of 1933, and a man of
considerable training and experience was appointed superintendent at
that time.1 The committee and the new superintendent inaugurated
certain changes in policy and new activities which they believed would
constitute significant developments in the training program.
1. S T A T U T O R Y P R O V IS IO N S G O V E R N IN G E S T A B L IS H M E N T AN D
O P E R A T IO N
The first law authorizing the establishment and maintenance of an
institution for juvenile delinquents in California was passed in 1889.
The institution was called the “ Reform School for Juvenile Offend
ers” , and its purpose was outlined by the law to be for the confine
ment, discipline, education, employment, and reformation of juvenile
offenders. It was to be governed and supervised by a board of trustees
consisting of three citizens appointed by the Governor with the advice
and consent of the Senate. This early law provided that the insti
tution should be for the care of both boys and girls, specifically stating
that the buildings and groimds were to be so arranged as to provide
separate places for the confinement, care, and education of each sex,
so that there could be no communication of any kind between them.2
Boys and girls between the ages of 10 and 16 were accepted on
conviction by any court of competent jurisdiction of any crime which
if committed by an adult would be punishable by imprisonment in
the county j ail or penitentiary. Children to 18 years might be accepted
under certain conditions. The law specified that commitments to the
reform school should be for terms of not less than 1 year nor more than
5 years.
Provision was made in this first law for payment for care of children
at the institution. When any child was committed at the instance
of his parent, guardian, or other protector, the cost of keeping him,
including the cost of transportation to and from the institution, was to
be paid wholly by the parent or guardian. In the event that the
i On M a y 1,1933, Judge E . J. M ilne was appointed superintendent. H e had been in educational work for
25 years as director of physical education at the University of Utah and as superintendent of the industrial
schools in N evada and Utah. He had also served as judge of the juvenile court in Salt Lake C ity, Utah.
H is appointment is reported to have m et with approval in professional and educational circles in California.
8 California, Laws of 1889, p. 111.
12
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WHITTIER STATE SCHOOL, WHITTIER, CALIF.
13
parent or guardian was unable to pay because of poverty or other good
reason, half of the expenses were to be paid by the county of commit
ment and the other half by the State. No amount was specified, but
the board of trustees was expected to estimate as nearly as possible the
actual cost per month of keeping each child at the institution.
It is of interest in connection with the institution's establishment to
note that the sum of $200,000 was appropriated for the erection,
equipment, and maintenance of the buildings and grounds for the first
:2 years.
The present name of the institution— Whittier State School—was
adopted in 1893. At the same time the law stating the purpose of the
institution was changed slightly to read, “ for the discipline, education,
employment, reformation, and protection of juvenile delinquents."3
Again in 1921 the purpose was restated by amending the title of the
original act to read, “ An act to establish in the State of California
an educational institution for the care, supervision, education, train
ing, discipline, and employment of boys."4 This amendment is still
in effect.
There has been one change in the form of supervising government.
In 1921 the institution passed from the control of a local board of
trustees to the supervision of the State department of institutions,
which was created in that year. This department succeeded to the
powers and duties, purposes, responsibilities, and jurisdiction of the
board of trustees.5
In 1913 a separate institution for girls was authorized, and the Ven
tura School for Girls (as it was renamed later) at Ventura, Calif., was
opened in June 1916. Thereafter the Whittier State School provided
care for boys only.6
Changes have been made several times in the ages of children
accepted. In 1905, when both dependent and delinquent children
might be accepted, the lower age limit was made 7 years for both boys
and girls, with an upper age limit of 16 years for boys and 18 years for
girls. The other changes have varied the age limitations but slightly.
Under the present statutes, boys 8 years old but not over 16 who are
wards of the juvenile court may be committed to the school.7
Since early in its history the institution has been able to carry into
effect the principle of indeterminate stay. Commitments are made
until the boy shall reach majority unless sooner discharged by the
institution. Statutory provision for this was made in 1893, and
except for short periods when slight variations were made effective
(but later amended) it has remained in force. Under further legal
authority, parole and honorable discharge are provided for under
rules and regulations approved by the superintendent and the State
department of institutions, respectively. Thus the determination of
the period of institutional care and parole in individual cases rests
with the administrative officer of the institution, with the approval of
the State director of institutions.8
3 California, Laws o f 1893, p. 328.
4 California, Laws of 1921, p. 868. (Deering’s Gen. Laws 1931, act 9255.)
* California, Laws of 1921, p. 1048. (Deering’s Political Code 1931, secs. 366-366e.)
* California, Laws of 1913, p. 857. (Deering’s Gen. Laws 1931, act 1177.)
i California, Laws of 1905, p. 80.
(Deering’s Gen. Laws 1931, act 3966, sec. 8.)
8 California, Laws of 1893, p. 328. (Deering’s Gen. Laws 1931, act 9255, sec. 18.)
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14
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
Until 1895 no statutory mention was made of payment for the care
of boys committed to the school. In that year a law set $11 as the
amount to be paid by the committing county. This was increased to
$20 in 1921.9
2. T H E P H YSIC A L P LA N T
Location
This institution is immediately adjacent to the city of Whittier,
an attractive and prosperous community of 15,000 population about
40 minutes’ drive from the heart of Los Angeles. Whittier Boulevard,
a part of the arterial highway between Los Angeles and San Diego,
carrying heavy traffic almost constantly, bounds the institution
grounds on the north.
The school campus had been attractively landscaped with flowers
and shrubbery native to southern California. The grace and beauty
of many peeper trees, mingled with stately palms, made the place
very attractive. The buildings were somewhat scattered and were
arranged along winding drives. As a matter of fact, the institution,
which had no walls nor fences, was not unlike a college or private
school in appearance.
Acreage
The land owned by the school, totaling about 226 acres, was level
and was quite typical of the fruit and truck raising sections of south
ern California. It was in a very productive area, oranges and walnuts
being the primary crops in that locality. Except for the 48 acres used
for the buildings and their surrounding grounds, the land was all
under cultivation, 130 acres being planted in orange and walnut trees
and the rest used for truck gardening. Most of the necessary vegeta
bles and small farm produce for the use of the institution were raised
on that acreage.
Administrative offices
The administration building, which was completed in 1929, was a
very attractive structure of modified English design, built of brown
tapestry brick with a steep tiled roof. The interior was beautifully
finished and provided large, well-arranged offices for the administra
tive and business departments, the placement department, and the
staff members detailed to Whittier from the California Bureau of
Juvenile Research (see p. 29). There was a spacious lobby or recep
tion room attractively and comfortably furnished.
Boys’ residence quarters
There were 11 cottages in use for housing boys. These cottages,
like the other buildings of the institution, were of brick with reenforcedconcrete construction. The newer ones were of the same modified
English architectural style as the new administration building, yet
with enough individual variation to avoid the sameness which too
often characterizes an institution.
The cottages were two stories in height. Four had individual rooms;
the others had dormitory quarters for the boys. In a new cottage that
was nearing completion both types of sleeping arrangements were pro
vided, individual rooms for about half the boys and dormitories for the
other half. This cottage was to be the residence for the youngest boys.
The interiors of the cottages, except in the “ lost privilege” (dis
ciplinary) cottage were quite attractive. The furnishings were bright
» California, Laws of 1895, p. 122, and Laws of 1921, p. 870.
sec. 11.)
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(Deering’s Gen. Laws 1931, act 6083; act 3966
WHITTIER STATE SCHOOL, WHITTIER, CALIF.
15
and cheerful, and the walls were painted in pleasing colors. The
living rooms were homelike with comfortable chairs, bookcases, tables,
plants, and flowers. Some had fireplaces at one end of the room.
Although a second room was used for rougher play, these living rooms
were not just for show. They were used by the boys for their reading,
study, and general living room. Each cottage had a radio, which
was hooked up with the central radio at the power plant.
The one exception to this general atmosphere of pleasant home
likeness was the “ lost privilege ” cottage, the rooms of which were very
plainly furnished. In its dormitory the beds were in the center and
were enclosed within a heavy wire netting, which gave it a cage-like
appearance.
Sanitary facilities seemed wholly adequate and in good condition
in all the cottages visited.
Staff residence quarters
A number of the staff (more than half) resided off the grounds in
the city of Whittier or in nearby suburbs; housing facilities on the
grounds for staff members were not extensive, and in fact had not
been adequate to meet the needs. There was a very attractive resi
dence for the superintendent, and in 1929 one of the older buildings had
been remodeled into apartments of one and two rooms for staff mem
bers, mostly teachers. The cottage supervisors and housemothers
had pleasant rooms in their respective cottages. The night supervisors
lived at the boys’ cottages to which they were assigned for duty.
Dining-room and kitchen facilities
The dining-room and kitchen facilities for both boys and officers
were centralized in one building. A new building for this purpose
had been opened recently. It was very attractive, modern in style
and equipment. The building was of the 1-story English cottage
type, matching the other buildings of the institution. There were
separate dining rooms for officers and boys, but one central kitchen.
Besides the kitchen and dining rooms, the bakery, equipped with
all the most modern appliances, and the cold-storage and refrigeration
plants were in this building.
Chapel and assembly hall
The chapel building was used both for religious services and as a
general assembly hall for entertainments, motion pictures, and various
gatherings at which the entire school population might be in attendance.
The main floor was level, and there was a small balcony. Seats were
the usual wooden theater folding seats. The stage was so arranged as
to be suitable for use in entertainments and small dramatic productions.
Hospital
The hospital was one of the newer buildings, having been erected
in 1929. It was a short distance from the main group of buildings
and stood rather apart. It was of cream-colored stucco and was
pleasing in appearance like all the other buildings. There were 18
individual rooms, all on the ground floor, and no wards. Each room
was equipped as a hospital room and had a radio operated from the
central control station at the institution power house. All the equip
ment was modern and said to be complete. Facilities for minor
operations such as tonsillectomies were available. The dental office
also was in the hospital. There was a hospital diet kitchen in which
the meals for the patients were prepared.
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16
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
School building
The school building was centrally situated in the main group o f
buildings, which consisted of the chapel, trade units, gymnasium,
dining room, and kitchen. It was erected in 1922, a 1-story building
which provided pleasant quarters for the academic school. The
various classrooms were furnished with tables and chairs instead o f
the old-style desks. The library was located in one of the very light,,
airy rooms of this building.
Shops
Except for the general shop erected in 1929, the buildings housing
the trade units were among the older buildings on the grounds. There
were no outstanding features in connection with these shop units.
They were fairly well equipped for trade work. Printing had always
been one of the featured trades at Whittier, and the print shop, in a sepa
rate building, was equipped with modem machinery, including linotype^
Farm buildings
Farming at Whittier was that typical of southern California. The
farm buildings, though not extensive, were sufficient for the needs.
Farm equipment was good and included tractors and up-to-date
machinery desirable for this type of farming. The farm unit waa
located some little distance from the main grounds of the institution.
Gymnasium and athletic field
The gymnasium presented a contrast to the other buildings. It
had been built in 1914 and was not in good repair. One of the walls
was cracked, and the floors in places were in very bad shape. How
ever, the building was kept clean and orderly. Much of the sports
program was carried on out of doors almost the year round, and the
gymnasium was not used extensively for basketball or other sports
but was primarily for floor work in gymnastics. In the spring of
1933 an earthquake rendered the building unsafe for use. The ad
ministration reported in February 1934 that a new gymnasium, tocost about $50,000, was in process of erection. It was designed ta
afford ample room for indoor athletic work. It was to be dedicated
to the memory of former Superintendent Fred C. Nelles. (See p. 19.)
The athletic field was a very fine one, situated at one end of the
grounds. An outdoor swimming pool adjoining the gymnasium was
in use practically the entire year. This, like the gymnasium, did not
seem up to the general standard of the physical equipment in other
things. However, new machinery recently installed provided for
filtering, chlorinating, and warming the water.
3.
P LA N T V A L U A T IO N A N D O P E R A T IN G E X P E N S E
The valuation of the physical plant at Whittier which appeared
on the inventory as of June 30, 1931, was as follows:
Lands______________________________________________
Buildings----------------------------------------------------------------Equipment_________________________________________
T o t a l ____________ ________________________
$70,897.00
994,731.24
234,165.47
1,299,793.71
As a matter of fact this valuation was not particularly significant,
though it represented the amount of money invested in land and
improvements. The land value was the amount for which the acreage
had been purchased. The building item was the total of costs of
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17
WHITTIER STATE SCHOOL, WHITTIER, CALIF.
construction for the various building units. No allowance was made
for deterioration in buildings nor for changes in land values.
The following figures on costs of operation were supplied for the
year ended June 30, 1931:
Salaries____________________________________________ $145, 858. 13
Material and supplies______________________________
84, 598. 02
Service and expense________________________________
54,167. 90
Property and equipment (replacements)------------------14, 048. 32
Total________________________________________
298, 672. 37
As the average daily population of the institution was 330,
per capita cost (cost per boy) of operation was $905.07. The
capita cost per year was figured on the basis of the items in this
It included cost of replacement of equipment during the year,
no charge for items produced and consumed.
the
per
list.
but
4. A D M IN IS T R A T IV E C O N T R O L , STA FF O R G A N IZ A T IO N , A N D
P E R SO N N E L
Administrative control
As the bead of the State department of institutions, which was
created in 1921, is director of institutions for the State, this officer has.
ultimate responsibility for the management of the Whittier State
School. Two local persons were still designated as trustees. Thenduties were advisory only and in practice purely nominal.
No other State department possessed the power to exert adminis
trative control. The State department of social welfare had the right
to make investigations at the school and to make recommendations
based thereon to the director of institutions. The State department
of health and other State services were reported to cooperate freely^
at all times when their aid was requested for particular purposes, but
they had no legal power of any kind in connection with the manage
ment of the institution.
The director of institutions, with the approval of the Governor,,
appointed the superintendent, defined his duties, and fixed his salary_
In practice the superintendent was permitted to assume full respon
sibility for the school’s operation. Practically the only responsibility
assumed by the director of institutions was for the approval of the
general policies and for certain specific duties with which he was
directly charged. Foremost among these duties was approval of the
school budget before it was forwarded to the chief accounting officer
of the State to be presented to the Governor and the State legislature.
Personnel: Number and duties
In 1931 Whittier State School employed 111 persons, of whom all
but 2 (the physician and the dentist) worked full time.10 More than
half resided off the campus. Positions listed were:
Superintendent__________________
Assistant superintendent_________
Secretary to the superintendent11
Principal of the school___________
1
1
1
1
School teachers_____________ ____
Vocational director---------------- —
Vocational instructors 12---------------
81
9
10 A communication from W hittier State School indicates that on Feb. 15, 1934, there were but 90 em
ployees. T he reduction in personnel was the result of a drastic cut in the school appropriations. It will
be noted that this represents a 19-percent cut in personnel. Unless the school population shows a marked:
decrease this will mean an unfortunate change in the very favorable ratio of boys to personnel.
11 A s the secretary had m any duties other than clerical and stenographic, his was an important staff
position.
,
........................... .........
'
Persons listed definitely as vocational instructors on the p ay roll were the instructors in automobilemechanics, aviation, carpentry (2), electrical work, masonry, painting, plum bing, and printing.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
Head group supervisor---------------Group supervisors----------------------Housemothers___________________
Physician (part-time)-----------------Librarian___________________ ; -----Chaplain_____________________ _—
1
38
8
1
1
1
Dentist (part-time)--------------------Nurses_____________
Tradesmen or foremen 13-------------Placement officers----------------------Clerical workers 15----------------------Other personnel14------------------------
1
3
9
3
8
13
Two workers whose names did not appear on the institution pay
roll gave full-time service at this school. One was the psychologist,
the other the psychiatric social worker detailed from the California
Bureau of Juvenile Research for continuous duty at Whittier State
School. Other members of this bureau gave considerable but irregu
lar time to clinical service for Whittier boys. Nine students from
Whittier College in the adjacent city, who were training for Y .M .C .A .
and physical-education work, gave 10 to 12 hours’ service a week
(mainly supervision of recreation and extracurricular activities) in
return for room and board in the cottages.
Personnel: Salaries
The salary scale at this institution ranged from $660 to $4,000.
Salaries for certain positions were as follows:
Superintendent_________
$4, 000
Assistant superintendent2, 820
Medical d ir e c t o r (part
time)_________________
I» 800
Nurses_________________ 1, 020-1, 080
Principal of the school—
2, 220
School teachers_________ 1,140-1, 980
Director of vocational
training______________
2, 700
Vocational instructors. _$1, 440-$l, 800
Director of physical edu
cation________________
1,800
Head group supervisor. _
2, 040
Group supervisors---------- 1, 020-1, 440
Housemothers__________
660
Placement director--------2, 280
Placement officers______ 2, 040-2,100
Clerical workers15______
780-1, 440
In addition to salary, the staff members in residence received full
maintenance, and certain others had one or more meals daily at the
institution.
Personnel: Appointments and removals
Appointments at this institution for all positions except those of
the superintendent, the assistant superintendent, and the chief place
ment officer were under civil-service regulation. However, the State
civil-service commission had held only a few examinations to create
eligible lists from which permanent appointments might be made.
Only 19 (17 percent) of the total number of employees were reported
to have permanent civil-service status. All others were rated as of
temporary civil-service status. It was stated that the civil-service
commission was beginning a more active program and that plans were
under way to hold examinations for the creation of eligible lists for
permanent appointments. On February 16, 1934, it was reported
that 84 (93 percent) of the total number of employees on that date
were under permanent civil service.
Personnel: Terms of service
Tenure of the superintendency at this school since 1912 is shown by
the following list:
» T his group included employees who supervised boys at work but were not designated as instructors
such as baker, barber, shoemaker, laundryman, head farmer, orchard man, gardeners, and supervising cook.
w Personnel included in this miscellaneous group were as follows: 1 seamstress, 3 housekeepers, 1
housemaid, 1 “ institution handy m an” , 2 institutional cooks, 1 storekeeper, 1 power-equipment laborer,
stationary fireman, and 2 dining-room supervisors. Some of these individuals directed boys doing main
tenance work for the institution, but their activity seems distinctly remote from the specific training
^ « S i x did only clerical work, tw o (the bookkeeper and the information clerk) -had additional duties.
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WHITTIER STATE SCHOOL, WHITTIER, CALIF.
March 1912 to May 1927, Fred C.
Nelles. (deceased May 23, 1927).
May to August 1927, vacant.
August 1927 to April 1931, K . J.
Scudder.
19
April to July 1931, Claude S. Smith.
July 1931 to April 1933, George C.
Sabichi.
The following figures indicate the length of service of the 109 full
time workers:
Less than 1 year_________________
1 year, less than 2 _______________
2 years, less than 3 ______________
3 years, less than 4 ______________
32
12
14
9
4 years, less than 5 ______________
5
16
5 years, less than 10_____________
10 years or longer________________ 17
Not reported______________________
4
Among the 32 new appointees in 1933 in addition to the superin
tendent were such important officers as the assistant superintendent,
the vocational director, the director of placement (parole), 1 place
ment officer, the director of physical education, the chaplain, 3 school
teachers, and 3 trade instructors.
Personnel: Qualifications
A limited amount of information as to the background of education
and experience of personnel was made available. The man who was
superintendent in 1931 had been a practicing physician and surgeon
for many years. His educational work included a considerable num
ber of graduate courses in medicine and surgery. He was national
past president of the Exchange Club and had been interested in boys'
work. No experience in institutional administration or in profes
sional social work of any kind appeared in his record.16 The assistant
superintendent at that time was a high-school graduate with some
experience in railroad work and with considerable experience in the
business world as an employer of boys and men. He had done some
work for the Boy Scouts and had served as assistant organizer for a
fraternal order.17
The principal of the academic school was a woman. She was a
normal-school graduate with some years' experience in the public
schools. All the members of her teaching staff had had university or
normal-school training and prior teaching experience. All held State
teachers' certificates. All were eligible for the California State teach
ers' pension, and their service at this school counted toward advance
ment in State classification and toward a life certificate for teaching.
One had had some special training and experience in correctional work
for speech-defect cases.
The vocational director appointed in 1931 was a high-school grad
uate with business-college training. He had experience as a factory
branch manager in mechanical electrical work. The records supplied
failed to show any history of training or experience in the vocational
teaching field.18 The pay roll listed 9 vocational instructors, of whom
only 2 were reported to have had prior experience as vocational
instructors. The others were described as having had practical expe
rience as workmen in their trades. For example, the instructor in
automobile mechanics was listed as having had a high-school education
16 In regard to the new superintendent, see footnote 1, p. 12.
1 7.Theassistant- superintendent appointed in M a y 1933 will be concerned prim arily w ith the business
aQairs of the institution. His business experience was reported to include 10 years as assistant manager
of a large retail automobile com pany. He had been active for m any years in boys’ Work, had sponsored
Hoy Scout troops, served as chairman of committees for B oy Scouts councils in San Antonio and San F rancisco, and had directed the child-welfare work of a fraternal order in California for a number of years
is in Debruary 1934 the institution reported that this vocational director remained b u t a short time and
was succeeded b y 2 professionally trained men recomm ended b y the University of Southern California
Later the position was abolished.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
:and having been assistant engineer with the United States Shipping
Board, night foreman, and tractor driver. Other members of the
staff not definitely classified as vocational instructors also gave some
trade training. They too were practical tradesmen.
The director of physical education had had normal-school and uni
versity training and experience as a teacher of physical education and
as coach in public high schools. He had also been an active Boy
Scout worker.
.
The staff included 38 group supervisors and 1 head supervisor. Six
of these supervisors were described as having had university or college
work. None had stopped short of the eighth grade, although 8 had
had no formal education beyond it. The background of experience
in this group was exceedingly diverse. Eight had had experience in
-other similar institutions. Two had had hospital experience as attend
ants, 1 had been a nurse in a soldiers’ home, and 1 had served as
supervisor in a school for Indians. Noninstitutional experience in
this group in preparation for boy supervision ran the gamut of occu
pations from ranching, dairying, soldiering, carpentering, mechanical
trades, plumbing, pipe fitting, and truck driving to such activities* as
those that fall to the lot of teachers, lawyers, recreation directors,
postmasters, real-estate salesmen, automobile salesmen, press agents,
and professional ball players. One of the 8 housemothers had been a
teacher and 1 a trained nurse.
The placement director appointed in 1931 who would be known in
most schools as director of parole (see p. 44) had a high-school edu
cation supplemented by a business course. His experience was that
of a rancher.19 One of the two placement officers had had university
work and experience in “ production control, United States Army.”
The other had had 2 years in college, with experience as athletic
instructor and in operating a business of his own (type not specified).
Personnel: Living and working conditions
Except for the cottage personnel, housing for the staff was said to be
inadequate and unsatisfactory. As has been stated, more than half
the employees were not in residence at the institution^ Since the
pleasant little city of Whittier is immediately adjacent, this meant no
particular difficulty. In many ways it seemed advantageous. To
have so many of its employees with their families bring a variety of
outside contacts into play tended to make the institution an integral
part of the life of a normal community. It complicated the salary
question to some extent, as is inevitable when some employees are on
full maintenance for themselves and family, some on full maintenance
for themselves only, some on partial maintenance allowance, and some
receiving none.
For those who boarded at the school there was a pleasant dining
room in the new central commissary building, except that cottage
masters and matrons ate in the boys’ dining room. Service in the
staff dining rooms was cafeteria.
Cottage masters and matrons had quite satisfactory quarters in the
various cottages.
The personnel at this school suffered none of the social isolation
sometimes found in State industrial schools. They participated in
is On M a y 1, 1933, a woman was appointed director of placement. She had had charge of welfare work
among the employees of an automobile com pany for 5 years. She received her training in the school of
social service at the University of Southern California and had done advanced work at Claremont College.
She was formerly social worker at Pacific Colony, a California State institution for mental defectives.
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WHITTIER STATE SCHOOL, WHITTIER, CALIF.
21
diverse social activities in the life of the small commercial and college
community of Whittier. Only 40 minutes distant, by way of a wide
paved boulevard, lay Los Angeles, with the amusements and educa
tional and cultural advantages of a big city. For those without cars
of their own there was both bus and interurban car service. Within
easy reach for outings lay the beach resorts along the Pacific Ocean,
or the canyons of the nearby mountains. Under the new manage
ment a social meeting, with dancing and cards, was being held monthly,
members of the personnel and their families being invited. The
administration felt that this social gathering contributed to the
development of good staff morale.
Working conditions were reported to be reasonably good. The
previous administration had made an effort to build up the personnel
to a size that would permit an 8-hour working day, with sufficient
time-off allowance per week, to be put into effect. The executives
had realized that the work was difficult, complex, and trying and that
long hours and duties were in the long run wasteful, since they were
certain eventually to bring the individual workers to the point where
because of sheer fatigue and nervous strain they could not give the
highest quality of service of which they were capable.
Staff organization
The staff had been previously organized along departmental lines.
The data in an organization chart supplied to show the departmental
pattern and the lines of administrative responsibility are reproduced
on page 22.
Administrative leadership and staff teamwork
Staff meetings, with planned programs for discussion of institutional
policies and problems, were not held regularly in 1931, but were said
to be called “ as occasion demands.” The new superintendent, ap
pointed in 1933, stated that he conferred with his immediate staff
each morning regarding routine matters, and that once each week he
met with the supervisors and trade instructors.
5.
A D M IS S IO N S , C A P A C IT Y , AN D P O P U L A T IO N
Intake provisions and policies
Both the legal provisions for intake and the policies adopted by
this institution made possible some restrictions in accepting boys at
Whittier. The school was able to reject boys of too low intelligence
to profit by the training offered and boys who were too old to associ
ate with the younger boys or to fit into the training or disciplinary
program at this school.
Although the legal age for commitment was between 8 and 16 years,
some boys remained at the institution past the age of 16 or even 17
years. These were boys who became 16 before they were eligible for
parole or who had been returned as parole violators.
As transfer of any boy who had passed his fifteenth birthday to the
Preston School of Industry (an institution for boys 15 to 21 years of
age) was possible without further court action, older boys who did not
fit into the program at Whittier might be transferred to Preston.20
Such transfers were often made in the case of parole violators without
their return to Whittier.
ao California, Deering’s Gen. Laws 1931, act 3966, sec. 8.
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W hittier State School
to
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
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WHITTIER STATE SCHOOL, WHITTIER, CALIF.
Owing to the provision in the juvenile-court law that children
should not be committed to the institution unless the judge was
satisfied that their physical and mental condition was such that they
would benefit from the training offered, it had been possible to adopt
a definite policy in regard to the exclusion of subnormal boys. The
school declined to accept any boys having an intelligence quotient of
less than 75. _ This rule was applied in cases of boys from counties
which had facilities for adequate mental examinations and case study
prior to the boy’s commitment. Boys of border-line or presumably
low* intelligence from counties lacking such local resources were
frequently accepted for examination and observation at the institu
tion. Those found to be definitely feeble-minded were returned to
the county for placement elsewhere. The new management empha
sized the fact that no boy was refused admission because of a fixed
numerical minimum I.Q. and that admission was refused only after
careful study of each case by the California Bureau of Juvenile
Kesearch in collaboration with the staff of the Whittier State School.
Boys suffering from contagious or infectious diseases, including
venereal disease, tuberculosis, and even scabies, were not accepted.
Two types of voluntary admissions were permissible at Whittier:
first, by the probation plan, under which a boy might be sent as a part
of his probation treatment but without any formal commitment;
second, by “ voluntary” admission upon request of parents or guard
ians, under an agreement made with them. However, no such
informal admissions had been made for several years.
Capacity and population
Whittier State School had a capacity of 350 boys, with a population
of 319 on November 9, 1931. It was stated that the average daily
population for the year ended June 30, 1931, was 330. The popula
tion at this institution was predominantly white, there being only a
small number of Negroes and Mexican Indians. The available figures
for race were those for the 215 boys committed during the year ended
June 30, 1931. Of these 215 boys, 170 were white, 23 were Negro, and
22 were Mexican Indian. These figures may be taken as indicative of
the proportion of the racial groups in the average population. No
Chinese or Japanese boys were committed during 1931, but such boys
occasionally were received. No information was obtained from this
school concerning the nativity of the inmates.
In his report to the State department of institutions for 1930 the
superintendent pointed out that the age level of boys received during
recent years had become practically stationary, as follows: 25 percent
averaged 15 years; 35 percent averaged 14 years; and the remaining
group consisted of boys 8 to 13 years.21 The age distribution of the
population of 316 boys in residence on one day of 1931 (Nov. 9)
was as follows:
Age
N um ber
Percent
Total...................................
316
100.0
9 years.................... ..................
10 years........................................
11 years........................... *_____
12 years........................................
1
5
10
13
0.3
1.6
3.2
4.1
Age
Num ber
11
Percent
3.S
Biennial Report of the Department of Institutions of the State of California, 2 years ended June
30,1930, p. 146. Sacramento, 1931.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
In addition to those in residence, the school has still under its legal
supervision the group of boys on parole, those absent on approved
leave, and those who may technically be absent without leave or in
escape status. On November 9,1931, 342 boys were on “ placement”
(the term used at this school for parole) and 13 in escape status.
The movement of population for the last fiscal year before the
institution was visited (ended June 30, 1931) was reported as follows:
Population July 1, 1930_________________________ ;---------------------------------------329
Received during the year________________________________________ 357
215
By new commitments____________________________________
Return from placement (parole)_____________________________
72
Return from escape___________ _________ _ — *------------------------- 70
Lost during the year______________________________________________ 348
Released on discharge by court order________________________
30
Released on discharge by order of superintendent____________
8
Released on placement________________________________________222
Released on approved absence____________________
7
Escaped_______________ _______ *____________________________ 74
Transferred_________________________________________________
4
D i e d - ______________________________________________________
3
Population June 30, 1931________________________________________________ 338
6.
R E C E P T IO N A N D A S S IG N M E N T PRO C ED U RE
Reception
Boys were usually accompanied to this school by a probation
officer, though sometimes deputy sheriffs or other law-enforcement
officers brought them from counties having no special juvenile-court
facilities.
Upon arrival, the boys were received and interviewed by the school
secretary, who made the necessary official records. He had a friendly
talk with each new boy, in the course of which he explained the educa
tional opportunities which the school offered and something about
what was expected in the way of cooperation from the boy in return
for these opportunities. It was stated that whenever possible each
new boy was greeted personally by the superintendent at the time o f
admission.
From the secretary's office the boy was sent to the hospital. There
he remained in quarantine for a few days. During that period the
physician gave him the initial medical examination. TVhile in quar
antine the boy remained locked in one of the hospital rooms. These
rooms were all on the ground floor and had abundant light and sun
shine. His meals were served on trays from the hospital diet kitchen..
During this quarantine period the school 'chaplain also made his.
acquaintance and established friendly relationship with him. As soon
as the physical examination was completed and the record showed him
to be free from any contagious or infectious disease, he was released
from quarantine and transferred from the hospital to the receivingcottage.
Receiving cottage
Boys remained in the receiving cottage 4 to 6 weeks. Duringthat time they were under close observation and subjected to study
from six different points of view: Vocational, educational, social,.
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WHITTIER STATE SCHOOL, WHITTIER, CALIF.
25
recreational, psychological and psychiatric, and religious. This
cottage was less attractive and had somewhat less pleasant living
arrangements than the cottages in which the boy was to spend the
major part of his institutional stay. The idea back of this was very
definite and purposeful. It was based on the belief that it was good
psychology for the boys to feel that by the behavior which had resulted
in their being sent to this institution for further education they had
lost the right to certain social privileges and that they might reclaim
privileges and more freedom and personal pleasures by their good
conduct and cooperation. Boys in the receiving cottage did not
mingle with the other boys at the school. A special teacher gave
them instruction an hour and a half each day. Boys from the re
ceiving cottage did all the laundry for the institution and spent what
ever time remained on outside details working about the grounds.
Service cottage
This institution had an unusual provision in the way of an inter
mediate cottage between the receiving cottage and the regular
residence cottages. It was known as “ service” cottage. Boys came
to it from the receiving cottage and remained about 6 weeks, still
under observation and study. They attended a special class con
ducted by a teacher who came to the cottage for that purpose. The
boys did all the kitchen and dining-room work and other routine chores
from which little or no trade-training value could be expected. The
purpose behind this period of definite routine service was that, having
served that time, all boys would then be free from such maintenance
service and could devote the remainder of their stay to school and
vocational training. The executives felt that it was a very successful
plan. It was believed to have elements of psychological value on
the theory that release from drudgery and transfer to more pleasant
living should be earned.
First assignments
When the boy was ready for transfer to one of the regular cottages,
his case was taken to the clinic. The clinic group consisted of the
superintendent, the vocational director, the school principal, the
chief supervisor, the chaplain, the psychologist, the school secretary,
and any other staff members who had an important relation to the
boy in the school. The group met weekly for the careful considera
tion of permanent assignments of individual boys to cottage, school,
trade, and general social treatment programs. The school secretary
presented for each case a summary of the information he had obtained
in his interview with the boy when he was first admitted, together
with an outline of all information he had obtained from the probation
officer, the committing court, or any other source. The psychologist
then added a supplementary report which had been carefully prepared
in advance and which included the results of all examinations to
which the boy had been subjected. These findings included not only
the results of the physical examination and the psychological tests
but also the information obtained on personality traits and behavior
problems. The case was discussed at length informally and frankly.
Out of the discussion grew the decision as to what the boy’s program
of activities should be.
Cottage assignment was based primarily on age and physical devel
opment. Other factors considered in this connection were the boy’s
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
mental status and his previous conduct. Consideration was also
given to his personality problems and the likelihood of his making a
satisfactory social adjustment with the personnel and the boys in the
cottage to which he was to be assigned.
Assignment to school grade was based on the result of the tests
that had been given him by the special teacher who worked with the
boys in the receiving cottage (see p. 25) and on her observations as
to the school level at which he could do most successful work. Con
sideration was given, of course, to the grade he had attained before
coming to Whittier, but the assignment was by no means automatic
and was based on a consideration of the boy’s real needs in the
educational field.
Assignment to vocational training was likewise based on the results
of certain tests which had been given, the boy’s own interests and
wishes with respect to a trade, and consideration whether or not the
trade desired would be likely to lead to better opportunities for him
in the community to which he would probably return.
In addition to these specific assignments this same clinic always
discussed the recreational life of the boy and his particular needs
along that fine. Suggestions were offered and a tentative treatment
program mapped out.
A staff member was appointed as each boy’s counselor, to remam
his “ first friend” during his entire stay at the school. Counselors
were expected to keep in close touch with the personal problems of
the boys assigned to them and to be easily accessible to them at all
times for advice and help.
After the clinic group had reached a decision as to the various
assignments, the boy himself was called in and introduced to his new
cottage supervisor and his counselor in a friendly fashion. He was
told just what his program was to be and why these plans had been
made. The atmosphere was friendly and informal.
7.
T H E B O Y ’ S LIFE IN T H E IN S T IT U T IO N
Daily routine
At Whittier State School the boys lived according to the following
schedule:
6:30 a.m____________ Rising bell.
7 to 7:30 a.m_______ Breakfast.
8 a.m______________ Report to school classes, vocational training,
or work detail.
11:45 a.m__________ Return to cottages.
12 m. to 12:30 p.m__ Dinner.
_ ...
1 p.m ______________ Report to school, vocational training, or
work detail.
4 p.m_______________ School dismissed.
5 p.m ___________ _
Vocational classes and work details dismissed.
5 to 5:30 p.m _______ Supper.
5:30 to 6:45 p.m_____Activities on cottage playgrounds.
6:45 p.m ____________ Activities in cottage living rooms.
8:30 p.m____________ To bed.
9 p.m _______________ Lights out.
General atmosphere
The general atmosphere at this institution was one of relative
freedom from restraint. There was no outward semblance of pnson
or reformatory methods. Boys moved about the grounds singly, m
pairs, or in small groups. Occasionally the visitor might see them
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WHITTIER STATE SCHOOL, WHITTIER, CALIF.
27
moving in cottage-group lines, but even then there was little of the
formal military type of movement. Boys and officers addressed
■each other in much the same way that teachers or recreation super
visors in schools or on public playgrounds do when they meet.
Cottage “ fam ily” atmosphere
Each cottage had its supervisor and housemother, who were
husband and wife. These officers were expected to represent as
nearly as possible the father and mother character in the boys’ lives.
Cottage groups were of reasonable size, varying from 25 to 30 boys.
Although that would be a rather large family in a normal community
each cottage father and mother could know quite intimately all the
boys m their charge and have time to give some individual attention
to each one. No distinctions as to race were drawn at this institution
Colored, Mexican, and white boys lived together in the same “ family.’ ’
It was stated that little or no difficulty of any kind ever arose from
this mingling.
Arrangements for sleeping
Four .of the cottages had individual rooms. The rest contained
dormitories. The individual rooms were attractive and popular.
Ihe dorimtones were light, airy rooms, well equipped as to beds and
b? j •i ng• 1 sleeping arrangements presented the principal evidence
•ot difference between this school and schools for nondelinquent boys.
A night supervisor was on duty all night in each cottage to keep
strict watch over the boys, both in the dormitories and in the single
Tooms.
Arrangements for eating
The new commissary building contained a very attractive boys’
dining room. There each cottage family ate as a unit, with the cottage
lather and mother at a small table close by. The dining room had
nafeteria service. Food was of very good quality and Apparently
abundant. A sample menu for 1 week is reproduced in appendix A
page 289.
J
Sanitary arrangements
Each of the cottages had adequate sanitary arrangements. Modern
plumbing with facilities for shower baths was a part of the equipment
m each one.
Living-room and playground activities
The cottage living rooms were attractively furnished and had a
homelike atmosphere. It was stated that the boys not only were
allowed to make the same sort of use of the cottage living rooms as
they would in their own homes but were encouraged to do so. With
so many boys present, of course, there had to be a certain limit on
the amount of actual physical rough-and-tumble play, just as would
be necessary in a private home. Favorite living-room activities
were games of various kinds, reading, Boy Scout work, and other
handwork.
Each cottage had its own separate playground. The school ideal
contemplated plenty of time both for supervised and for free play.
An interesting experiment was going on and was proving highly
successful. The nine students from Whittier College were aiding in
the program of play supervision under the general guidance-of the
director of physical education.
76870— 35----- 3
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
Miscellaneous arrangements
.
In the cottages with single rooms each boy had a place for his
personal possessions. In the cottages having dormitories mdividuai
lockers were furnished so that each boy might have a place to keep
his clothing and those personal possessions of little value but lull oi
meaning for the boy possessor. Boys were permitted to have their
own clothing as the institution did not use uniforms.
Smoking was not permitted at any time or place. ^
Each cottage had a monitor system. The monitors were boys
selected by the cottage supervisors and given responsibility for certain
types of service, such as seeing that the dormitories and the living
rooms were kept in good condition and that the lawns were properly
cared for. Authorities were not convinced that the monitor plan
was advisable. They were conscious of both advantages and dis
advantages in its use.
.
,
Other phases of the boys’ life, particularly with reference to educa
tion and specialized recreation, will be treated in the sections dealing
with those subjects.
Outside contacts
.
_
Boys were permitted to write twice a month to relatives. There
was no restriction as to the number of relatives to whom they might
write, but special permission was required before they could communi
cate with anyone else. Both outgoing and incoming mail was
censored. This duty was performed by the night nurses at the
hospital. There was no limitation on the mcommg mail, except that
the censors might withhold communications which they felt it would
be unwise to let the boy have. The probable effect of the communi
cation on the boy was always the primary consideration in determining
whether or not to withhold a particular letter. Boys were permitted
to receive packages from relatives, but these packages were mspected
before they were given to them. ^
Relatives were permitted to visit the boys as frequently as they
desired, the only restriction being that they must come during the
visiting hours, which were from 1 to 4 on Saturday afternoon and
from 10 in the morning to 4 in the afternoon on Sunday. Boys
entertained their visitors either on the grounds, if the weather was
pleasant, or in the school rooms at other times.
All sorts of outside contacts of a wholesome character were
encouraged by the administration. Many of the men’s service clubs
in nearby towns were much interested in the school and visited it
fairly frequently. Boys from the school occasionally went m groups
to serve luncheons o r‘ dinners at the men’s clubs. The atmosphere
on such occasions was said to be friendly and informal, and the boys
were treated in much the same fashion as any group of community
school boys would be for performing that kind of service.
8.
Hospital
P H Y S IC A L E X A M IN A T IO N S A N D M E D IC A L CARE
facilities
.
All medical work at Whittier State School was carried on m the
new hospital building. For special examinations which necessitated
X-ray or laboratory work, the facilities at the Murphy Memorial
Hospital in Whittier were available.
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Hospital staff
The physician in charge was a part-time employee. He had a
private practice m the adjacent town of Whittier. The nursing; staff
consisted of three graduate nurses, one of whom was a surgical nurse
Dental care was given by a dentist who was a full-time State employee
School
° ted aU eXCept 9 dayS
°f
eacb montb t0 W ittie r S ta te
Physical examinations
h n S iiil T J b°iT was
a complete physical examination at the
hospital before he was admitted to the receiving cottage. Immuniza10 ns for typhoid, diphtheria, and smallpox were part of the routine.
1L-b ur<S l0S1l ai^4 venereahdisease tests were given only in cases in
which the physician suspected infection. The findings were entered
on a physical-examination blank and made a part of the hospital
records. A summary of these medical findings was always included
as part of the report for the clinic which met to discuss assignments
Corrective work
It was understood that comparatively little corrective treatment
^•ftn i°PeratlVei.chari ci er
being done- It was stated that boys
With known physical handicaps were not usually accepted. The
committing county was supposed to arrange for such correction
beior« s ^ r n g a boy to Whittier. Howefer, corrertion of ^ye
difficulties which could be remedied by provision of proper glasses
and of foot troubles which called for arch supports or othe/m inor
corrective work was part of the treatment program, and each boy’s
nppJSl01Ti?if re®P° ? S\ble for keeping track of the follow-up care he
needed. If the physical examination indicated that the boy was under
ffir ^ r e a tm ^ t^ fiL 01 special 4iet> the Physician issued instructions
1 th?- pro? er kmd t0 remedy the existing condition,
lh e physical-education department was particularly interested in
keepmg track of Physical development. (For further details see
the section dealing with that subject, p. 36.)
Dental work
S i g n a l ^°Rk ^ as done as found necessary by the dentist on the
btate pay roll who devoted the major part of his time to this school.
Other medical care
c. T be Pby sician called regularly every day at the hospital. A daily
a part of tbe routme. Boys from all the cottages were
sent by their cottage supervisors or housemothers for examination or
ffispensa^ treatment at that time. Boys needing attention at any
other time of day were accepted when sent over by the supervising
officer. Boys with acute illness received excellent care.
g
9.
P S Y C H IA T R IC A N D P S Y C H O L O G IC A L SERVICE
Clinical facilities
Psycffiatric^nd psychologies,! service at Whittier State School was
supplied by the California Bureau of Juvenile Research. The work
ol this organization was begun in 1914 as the result of a study of the
boys at Whittier State School conducted by members of the psychol
ogy department of Stanford University. Its work was limited t o X
popuiation of Whittier State School until 1921, X n h became a
State bureau with a State-wide program. This included consultant
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
service to any community in the State on request in addition to serv
ices to the State institutions. In 1923 the State legislature failed to
appropriate funds for the work, but it was continued as the depart
ment of research of Whittier State School, its staff being greatly
reduced and the work curtailed. It was reestablished as a State bu
reau in 1929. The staff consisted of a director (who was a psycholo
gist), a psychiatrist, two additional clinical psychologists, two psy
chiatric social workers, and the necessary clerical assistants.
One of the clinical psychologists and a psychiatric social worker
were assigned to full-tune duty at Whittier State School. They had a
joint office in the administration building.
Psychological tests
All the new boys were given certain psychological tests as a matter
of routine. A variety of tests were used, principal among them being
the Stanford revision of the Binet-Simon test, the Stanford achieve
ment test, the Terman group test of mental ability, the Stanford atti
tude-interest analysis test, and the Arthur performance scale. The
resident psychologist stated that the median intelligence quotient of
the population of the school at that tune was 91.5.
Psychiatric examinations
The psychiatrist for the bureau was not examining all new cases.
This routine service had been discontinued a few months previously,
when the headquarters of the bureau had been removed from Whittier
State School to offices in the city of Los Angeles. Since then the
psychiatrist had examined only those selected for such special study
by the resident psychologist at the school. The cases usually chosen
for psychiatric examination included boys of the seclusive, aloof type,
boys with outstanding mental or emotional abnormalities, and boys
who had distinct sex problems.
Personal histories
The psychiatric social worker was newly appointed and was com
paratively inexperienced. It was the intention that her work would
be supervised from the headquarters of the bureau. One of her duties
was to supplement the social history of each individual boy, as it had
been sent in by the committing court, by personal interviews with the
boys themselves and by visiting the homes from which they had come
whenever possible. It was stated that she was able to visit most of
the homes of boys committed from Los Angeles County. These
usually constituted a considerable part of the total commitments from
the State.
Application of findings
As was indicated in the section on assignment procedures, the sum
marized results of the psychological and psychiatric examinations
were used in practical fashion in the clinic’s consideration of the assign
ment of new boys when they were ready to leave the receiving and
service cottages. These findings were considered in assigning boys to
school grade, to vocational training, and to cottages and in planning
for all extracurricular social and recreational treatment of the indi
vidual boy.
In addition to the use made of these findings in connection with
original assignments, this school had a system designed to provide for
keeping watch over the progress made by the individual boy and the
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31
difficulties he encountered. The counselor was expected to report
monthly on a blank designed for that purpose to the research depart
ment. That blank (reproduced in appendix C, p. 318) contained spaces
for entries showing how many contacts the counselor had made with
the boy during the month; what problems had been discussed with
him; what his physical condition was; what his social adjustment was
in relation to other boys, to his teachers, to his cottage officers, and to
other supervisors; whether his recreational activities seemed to be
meeting his needs; what relationships he was maintaining with his
family; and what the counselor’s opinion was as to his progress or
failure to progress. These reports, together with reports from teachers,
shop instructors, and other officers, gave a basis for clinic discussion of
needed modifications or changes in the original assignments and treat
ment plans. It was intended that the research department should
play an important part in assembling the necessary material and inter
preting the boy’s needs for program changes.
The research department was likewise concerned with the person
ality problems of the boys and their relation to social adjustment.
Each cottage supervisor reported to the resident psychologist on a
blank for that purpose certain facts which might serve as evidence of
each boy’s progress in social adjustment. This blank provided an
opportunity for the cottage supervisor to register his judgment not
only as to a boy’s average conduct rating but also as to his attitude
toward the cottage supervisor and toward other boys, the attitude of
other boys toward him, outstanding personality traits, personal habits,
type of companionships and friendships which he was seeking, and
other items of similar nature. These reports obviously were of value
in dealing with conduct problems and social attitudes.
Although there was no formal procedure by which the bureau per
sonnel were consulted in connection with decisions as to disciplinary
action, the files of the bureau were always accessible to the staff officer
who was responsible for discipline, and there seemed to be a cordial
understanding and working relation between his office and that of the
bureau.
The very considerable amount of information which the bureau
personnel had accumulated as a result of the original examinations and
the follow-up work done while boys were in the institution was made
available to the school placement committee when an individual came
up for consideration for parole. (For further detail as to its use in
this connection see p. 45.)
Attitude of other staff members toward clinical services
Staff members who had been at the school for some time manifested
considerable appreciation of the value of the service rendered by the
research staff and a tendency to use the clinical service in practical
ways in connection with determining their own attitudes toward indi
vidual boys, particularly those with distinctive problems.
Research activities
There had always been a great deal of research activity in connec
tion with the work of the Bureau of Juvenile Research at Whittier
State School. The results of many individual studies had been pub
lished from time to time. In 1931 no special research project was
under way, but the resident psychologist whose time was largely filled
with service to the boys of the institution reported that she expected
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
to start work on a study of reading disabilities very shortly. The
research program of the California Bureau of Juvenile Research was
carried on from its headquarters in Los Angeles.
10.
E D U C A TIO N A L P R O G R A M — C L A S S R O O M W O R K
School staff
The school staff consisted of the principal, three high-school teach
ers, three elementary teachers, one social-science instructor, and one
instructor in “ music and expression.” The last had had to cease
teaching music and devote her time to regular classroom work because
the number of teachers was insufficient. Members of the teaching
group regularly attended the various teachers’ institutes and other
academic association meetings.
School day and school year
Classes were maintained the year round! The school day was
from 8:15 a. m. to 3:15 p. m., with 1 hour and 15 minutes out for the
noon meal and rest period.
Attendance requirements and enrollment
All boys who were not yet 14 years of age and those who were 14 or
over but had not completed the fourth grade attended school all day
5 days a week. The others spent half the day in school and the other
half day in vocational or other work. No boys were excused from
attendance except on written request of some supervising officer or
because of physical reasons. The hospital and the lost-privilege
cottage (see p. 42) sent their population lists to the school daily to be
checked against absentees.
The school enrollment and the time of school for boys enrolled on
November 6, 1931, were reported as shown in the following table:
T im e o f school f o r bo ys enrolled i n sp ecified school grades on N o v . 6 , 1 9 3 1
Boys enrolled
T im e assigned
Grade
Total
A ll day
T otal_______________________
1 288
Eleventh and tenth grades----------Tenth and ninth grades---------------N inth and eighth grades..................
Eighth grade.......................................
N inth, eighth, and seventh grades.
Seventh grade------------------------------Sixth and fifth grades------------------Fourth to first grades------------------U ngtaded........ ............ ..................—
36
36
40
18
35
36
17
20
50
37
17
20
Morning
Afternoon
129
122
18
20
22
19
18
18
16
18
18
16
18
32
18
i The difference between the school enrollment (288 on N ov. 6,1931) and the total population of the instition on approximately the same date (319 on N ov. 9,1931) is due to the fact that boys not released from the
receiving and service cottages for assignment to school grade were included m the total population, and also
to other conditions of institutional life.
Courses given
One of the teachers held classes in the receiving and service cottages,
which the boys in those two units attended for an hour and a half each
school day. This teacher made particularly careful observations and
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33
records which were used by the clinic in placing new boys at their
proper levels in the classroom work.
It will be noted that work was being given in all grades through the
eleventh and that there was an ungraded class for special cases. In
the ungraded class were placed all boys of 14 years or over who had
not yet completed the fourth grade. According to the enrollment
figures, a considerable portion of the school population fell within
that group. Boys who had not completed the fourth grade but were
not yet 14 were grouped in one class for all-day attendance. Boys in
the fifth and sixth grades likewise attended school all day and were in
a single room.
There was an arrangement through which one teacher was giving
individual instruction to a number of boys who were having difficulty
with particular subjects. The teacher, who had training in correc
tion of speech defects, was endeavoring to help the boys who had such
defects. In the class containing the lower grades, an hour and a half
a day was being given to particular reading problems. A few boys
with defective hearing were also receiving special attention.
All work beyond the sixth grade was carried on through a contract
plan which had originated at Whittier State School. It was said to
embody some of the features of the Dalton Plan and to have borrowed
some ideas from the Winnetka Plan. The teaching staff at Whittier
had worked out the adaptations which seemed most likely to meet
the needs of these boys. The lesson schedules had been made up by
the teachers under the leadership of their principal. An interesting
feature of the plan here was that these lessons were carefully graded
within the groups in order that each boy might be given lessons
adapted to his intelligence level. When the contract plan was
adopted, the start had been made with three such levels; that is, all
boys actually able to “ contract” to do eighth-grade work were
assigned to one group, but within that group would be three intelli
gence levels— upper normal or superior, average, and dull normal.
Therefore there would be three sets of eighth-grade contract lessons of
200 jobs each. Later experience led to division of the dull-normal
group on the basis of school retardation and of individual needs, so
that the school had put into use a 5-level division of lessons within
each contract grade. It was felt that this was a successful experiment.
Dull boys were not subjected to the discouragement which tended to
lead to the emotional conflict and hatred of all school work that is
frequently the result of being forced to do exactLy the same amount
of work of the same degree of difficulty as very much more intelli
gent boys. By being given lessons suited to their ability they were
relieved of the feeling of inferiority and given a feeling of achieve
ment which in turn reacted most favorably on their interest and the
effort which they were willing to put forth.
All lessons were closely correlated with the trade which the boy was
learning. For example, a boy who was studying automobile mechan
ics would have for his spelling lesson such words as “ cylinder” , “ me
chanical” , “ battery” , and “ transmission” . A boy who was study
ing carpentry would find his arithmetic lessons concerned with figuring
on amounts of material and costs for simple carpentry jobs. This
effort to correlate the academic work with the trade training was said
to have greatly stimulated the boy’s interest in both.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
A further argument in favor of the contract system was its flexibility.
This was said to be a very desirable feature because of the entry and
withdrawal of boys at irregular times during the year. Moreover,
changes in the educational program of individual boys could be
arranged much more expeditiously and with much less public notice
than under the usual school-grade promotion and demotion from class
to class in which all work is done through recitation and all pupils of
a group progress at the same rate or are considered to have failed.
This again eliminated some of the incidents that frequently tend to
make educational experience a destructive instead of a constructive
force in the development of a boy’s personality.
The Whittier State School administration recognized that many of
the boys who were committed to their care had been problems in their
own communities’ public schools. For that reason they believed that
a satisfactory adjustment to school work was a very important part
of the boy’s social adjustment. They were of the opinion that it was
essential to have teachers selected not only because of their educational
qualifications but also because of their possession of unusual under
standing, personal dignity, poise, patience, and genuine interest in the
problems of boys.
It was reported that very few disciplinary problems arose in con
nection with classroom life that could not be handled by the indi
vidual teachers. The atmosphere was very informal. The boys
passed singly or in groups about the school, not in silent lines.
11. EDUCATIONAL PROGRAM — VOCATIONAL OR PREVOCATIONAL
WORK
For many years vocational training had had an important place in
the training program at this school. Much experimental work had
been done in this field in earlier years during the superintendency of
Mr. Nelles. During his last 5 years it was said that the pendulum
swung slightly back in the other direction so that increased emphasis
had been placed on academic work. In 1927, with the change in
superintendents, emphasis again was shifted to vocational training.
At that time a survey of the school had been made under the direc
tion of the chief of the bureau of trade and industrial education,
which had been outlined by the chief of the division of city secondary
schools of the State department of education. Partly as a result of
that survey a general shop plan was inaugurated in 1928. All boys
were given 4 months’ trial in a selected group of trades. Each class
contained about 15 boys. The instructors observed aptitudes closely
and were thus able to advise and recommend specific training assign
ments on a basis of actual knowledge of the individual. The boy
would then specialize in that particular type of work during the
remainder of his stay at the school. Moreover, the time given to
academic work was reduced to 90 minutes per day, the remainder of
the boy’s time being spent in his vocational work or allied subjects.
Since the recent change in superintendents the general shop had been
abandoned and the traditional half day in school, half day in trade
training had been resumed.
In February 1934 the new administration reported that a committee
of vocational educators in the State was cooperating with the super
intendent and staff at the school and the director of the California
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WHITTIER STATE SCHOOL, WHITTIER, CALIF.
Bureau of Juvenile Research in a survey of the vocational program at
Whittier with a view to measuring its value and significance. They
expected to undertake any revisions in the program that the study
might indicate to be desirable. A similar survey of the educational
work was reported under way simultaneously.
Enrollment
The vocational or other work in which boys were occupied on
November 3, 1931, and the time assigned are shown in the following
table:
T im e o f w o rk f o r b o y s o ccu p ied i n sp ecified vocational or other w ork a ssig n m en ts on
N ov. 3 , 1931
B oys occ upied in vocational or
other work
Vocational or other work
T im e assigned
T otal
M orning
Total________________________________________________
A viation_____________________________________________________ ____
Garage_______________ _________________________________________ _
Power house______________________________________ \_________
Carpentry_______________________________ ’___ ,___ ___________ "____
M asonry______________________________________________
Painting_____________ _____________________________________________
Plum bing________________________________________________ _
.
P rinting.'._______________________________________________________
Farming______________________ _______________ ______
Vegetable garden_______________________________________________
Flower garden_______________ ;_______________________ ,___
Shoemaking and shoe repairing____ _____________________ _________
Tailoring............... ....................................... .
L aundry................................................. ................. ...............
Bakery..................................... ..................... ............................................
H ousework........ ..................... ..................................................
Afternoon
l 146
87
59
16
5
3
7
8
5
3
8
11
14
9
11
6
20
12
8
8
3
2
4
5
2
1
5
8
9
6
5
3
10
8
8
8
2
1
3
3
3
2
3
3
6
3
6
3
10
4
1 T he difference between the number of boys assigned to vocational or other work (146 on N ov. 3,1931)
and the total population of the institution on approximately the same date (319 on N ov. 9,1931) is due to
the fact that boys not yet released from the receiving and service cottages for assignment were included in
the total population and that vocational and other work assignments were not given to the younger boys,
and also to other conditions of institutional life.
The school did not claim to be able in the short time that these
boys were in training to make them ready to take their place in any
trades. The work was considered prevocational, designed to familiar
ize them with the main facts about the industry, the tools, and the
materials which they would have to learn to handle expertly to become
skilled workmen.
From its earliest history the print shop at Whittier had been one
of the outstanding features of its work. It was well equipped and
the instructor was a qualified teacher. Print-shop classes had always
done a great deal of printing for the various State departments and
other organizations. The quality of their work compared favorably
with that of commercial printing.
The class in aviation ground work was a fairly recent innovation.
The Navy had given the school three condemned planes from their
war stock. The 16 boys assigned to that work ranged in age from
12 to 16. Their time was divided between talks by the instructor,
work with the Navy planes, and model work in which each boy
actually constructed to scale a miniature plane.
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FIVE STATE INSTITUTIONS FOE DELINQUENT BOTS
The machine shop, situated in new quarters and equipped with 8
new lathes, offered an opportunity to learn the rudiments of machine
work. In automobile mechanics the boys spent most of their time
learning to do repair work through actual-practice jobs on institution
cars.
.
.
.
The agricultural courses included practical work m the care ot
citrus and walnut trees. The vegetable farm afforded opportunity to
teach methods of truck gardening. Both these courses included in
struction in methods of irrigation essential for all agricultural work
in southern California. Equipment for agricultural work was reported
to be adequate and of modern type. It included tractors, which the
boys were taught to care for and operate.
Maintenance and repair work
The ever-present question in such institutions is to what extent
boy labor should be used in performing the maintenance work of the
institution. The impression was gained that under Mr. Scudder
the vocational-training program had so emphasized training as distinct
from work that maintenance and repair work for the institution had
been badly disrupted. Maintenance work had been done for prac
tice, but much less time had been given to it, and fewer boys had been
assigned to perform that kind of service. The tendency seemed to
be to swing back toward keeping the institution buildings and equip
ment in better repair through the giving of more hours of boy labor
to such maintenance, although still placing emphasis on the training
possibilities in such work when done under the direction of men
experienced in the trades.^
12.
P H YSIC A L E D U C A T IO N A N D AT H L E T IC S
A director of physical education was in charge of the program for
physical education and athletics. He had one full-time assistant and
the aid of 9 college students previously mentioned. These students
worked with the boys on their cottage playgrounds, coached the
cottage teams, and did other related work.
There was no military training of any kind at this institution.
Physical education
There was a daily program of gymnasium classes for all school boys.
In the classes the principal emphasis was on calisthenics. The work
was designed to promote general physical development and to improve
posture. It was stated that posture defects were extremely common
among the new boys. Each boy was weighed and measured and given
certain physical tests each month. The findings were recorded regu
larly, and the director said that the boys were very much interested
in watching their own progress in weight, growth, and muscular
ability. The monthly record proved to be a great incentive to a boy
to stick at routine exercises that were being given him for particular
purposes, which were carefully explained to him.
Each month the director prepared a report which showed the total
number of boys weighed and the total number of pounds gained or
lost. His report for October 1931 showed 271 boys weighed, with a
total of 567 pounds gained and only 13 lost, or a net gain of 554
pounds, a little more than 2 pounds each. O d the monthly report
he listed each boy who was under weight or who had shown no gam
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for some time past, or boys wbo were over weight and gaining too
rapidly A copy of this report went to the superintendent, the re
search department, the physician, the chef, and the supervisors of
the dining room.
Sports program
Competitive athletics occupied a prominent place among institu
tional activities. Each year each cottage developed a team in the
several sports as the seasons changed. There were regularly scheduled
mtramural series in the various sports. The winning cottage team
and the school team composed of the best players from all cottage
teams played games with outside organizations. For example, the
football team was scheduled for 11 games with outside teams. There
seemed to be a very friendly relation between teams from this school
and teams from schools throughout the surrounding territory. It was
stated that the Whittier State School had a well-earned reputation
lor good sportsmanship and that its teams held a record for having
played 4 years without a single foul in extramural contests.
A swimming schedule provided opportunity for practically every
boy m the school who wished to do so to use the sw im m ing pool
daily, including Sunday. Considerable emphasis was also given to
track events. The school was very proud of the fact that two of the
Whittier boys had been able to enter the junior Olympic semifinals
the previous spring.
^ erestin g feature of team membership under the leadership
of the director m charge was that in addition to athletic prowess a
boy must measure up not only in his school work but in his character
traits. A list of candidates for the school football team was sent
around to teachers, cottage supervisors, and other officers who were
asked to answer the following questions with respect to each boyIs he interested in his work? Can he be trusted? Is he loyal to
his/cottage? Is he a bully? Does he cause you any trouble? Is he
underhanded? Does he intimidate other boys? Is he a good or a bad
influence m the group? Does he smoke? Does he work well with other
boys? Is he a good sportsman? D o you consider him a fit candidate
lor the school team?
In other words, team membership at Whittier
was something that stood for a great deal more than mere physical
The director of physical education was strongly of the opinion that
a certain amount of competition in school teams is a good thing
{lu j believed that it must be very carefully supervised in order
that desirable rather than undesirable character traits be strength
ened. He thought that the physical-education classes and the ath
letic contests offered exceptional opportunities for developing a sense
ot spdal or group responsibility and appreciation of fair play and
good sportsmanship, also for teaching boys to restrain their tempers,
nght on equal terms, and take defeat with good grace. Moreover
he thought it enabled the physical weaklings to learn how to defend
themselves, which, in turn, had a very desirable effect on their
self-confidence and their attitudes toward all other types of develop
ment. In other words, the therapeutic aspects of physical education
were considered of paramount importance and athletics was bv no
means treated merely as a form of recreation
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
13. O T H E R R E C R E A TIO N A L A N D
E D U C A T IO N A L A C TIV ITIES
During previous administrations there had grown up at Whittier
an appreciation of the need for a diversified program of activities to
fill the hours when boys were neither at work nor in school. Obser
vation of boys after release revealed that the greatest dangers to their
future adjustment came not while they were at school or on the jobs
found for them but because they had made unwise and undirected
use of their leisure hours. Therefore the fundamental objective under
lying the program of activities at Whittier was to help them to find
new outlets for mental interests and emotional energy and to learn how
to use leisure time in ways that were none the less engrossing because
wholesome. It was believed that the normal boy has a genuine
interest in wholesome play provided he and the opportunity for it
can be brought together. The activity program had been built up
with that definitely in mind.
M usic
Musical training had been an important feature in the Whittier
program. Group singing was used at all assemblies. There had
been two bands, although it was stated that there was only one in
1931. Individual instruction was given in the various band instru
ments to all boys who could demonstrate any ability and who wished
to try out for the band. Instruments were supplied by the school
for boys whose relatives were unable to provide them. It was said
that the services of the band were in constant demand for outside
performances. Many public concerts were given, but an attempt was
made to see that there was no element of exploitation. The band
played at school assemblies and gave frequent concerts for the school.
Boys who showed exceptional talent were given special attention, and
attempts were made to procure individual lessons for them. For
example, a Whittier civic club had provided a scholarship in violin
lessons for a Whittier school boy who showed unusual ability with
that instrument.
This year the special teacher in music and expression had to be
diverted to regular school work because of a shortage of teachers.
Radio
Each cottage was equipped with loud-speakers through which pro
grams regulated from a central station were broadcast to all parts of
the institution. The school had its own small broadcasting station
donated by a civic club of Los Angeles. Through that station the
school band and other entertainment groups were able to present their
programs to the various cottages and to the hospital. It was also
possible for the superintendent and other members of the staff to read
stories or other good books regularly over the air to all the boys at
once. It was regarded as significant that since the installation of the
radio broadcasting system there had been no instance of serious mis
conduct at night. It was also stated that with the radio programs
carefully controlled it had been interesting to note the improvement
in the musical preference of the boys and their growing desire for good
music.
Dramatics
Considerable emphasis formerly had .been placed on dramatics,
including pageantry, as an outlet for the interest of certain types of
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boys, but there was said to be somewhat less emphasis in 1931 because
neither staff nor boys had much time for that sort of activity. The
boys usually put on a play of some kind at Christmas and Easter,
and occasionally one of the cottages would present a “ show” for the
whole school.22
Motion pictures
A motion picture was shown each Thursday from 6:45 to 9 p.m.
The school had a new machine for showing talking pictures. The
films, said to be of relatively high standard, were furnished free by a
Eos Angeles film exchange. Their selection was supervised by a mem
ber of the staff. The weekly picture show was attended by all boys
except the few who had been deprived of the privilege as a disciplinarv
measure.
.
J
Reading
The school had a well-equipped and well-run library which was a
regular branch, of the Los Angeles County Library. A woman who
was a trained librarian was in charge full time. The county library
was reported to be taking special interest in maintaining this branch
m good shape, with consideration for the particular needs of these
boys. The equipment included several library tables with chairs
around them where the boys could sit and read.
Tim library had about 5,000 volumes. Boys who had been assigned
to their permanent cottages had regular library cards and were per
mitted to draw books as they would from any public library. The
receiving cottage, lost-privilege cottage, and service cottage each had
a case of books selected for them by the librarian, as the boys in those
cottages did not have the privilege of drawing books individually.
u? i11 i aiT seemed wel1 supplied with reference books of all kinds
which the boys would need in their school work, and it possessed in
t T - a.
eral supply of appropriate fiction. The librarian stated
that their interest ran largely to the usual boy literature— adventure
western stones, and detective stories. The library also had a num
ber of good periodicals that appealed to boys, and in addition each
cottage received one of the Los Angeles evening papers.
The school classes had regular library periods. From the sixth
grade up the classes came to the library daily for study and reference
work in connection with their contract lessons. In the lower grades
each class had one 45-minute period per week in the library, as did
also the boys from the rooms for retarded pupils, who came to the
library with their teachers weekly.
Boys from the service cottage who were not yet in school also had a
weekly library period.
Boy Scout work
Four cottage groups had been organized into Boy Scout troops.
1 here was very great interest in Boy Scout work among the boys and
much competition in making progress in Scout training. The manage
ment of the school felt that it was one of the best influences at work
among the boys m the school. The regular Scout program, which
included hikes and other activities off the grounds of the school, was
in full effect.
’
. ” Under date of Feb. 16, 1934, the school reported a dramatics instructor again at work rrmVino- dramatic
training again a significant part of the program. Several plays were to be presented in 1934 Particinatimi
this m etonnT 3
°f
treatmeilt pr°Sram>with special effort to reach m ^ v h lu a l^ n ^ ltim b ( ^ f through
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
Scout executives in the district had taken a very friendly and active
interest in the work at the Whittier State School and had contributed
no little part to making it a success. One of the district Scout execu
tives had been very regular in his attendance at the meetings of the
school scoutmasters and their troop committeemen. At those meet
ings problems connected with the promotion of the work were freely
discussed, and much good ‘came out of those discussions.
When a boy who was a Scout was ready to be released tor place
ment, the placement officer sought to arrange for his admission to a
Scout troop in the community to which he was going and to enlist
the interest of the scoutmaster of that troop in being of special help
to the boy during his first months at home. No particular difficulties
in working out such arrangements were reported.
Summer camp
A summer camp for the boys of Whittier State School was conducted
annually at Catalina Island on a camp site that had been given to
the school, and the donor also furnished the Whittier boys free trans
portation to it. Each cottage had 7 to 10 days at this camp 6very
summer. Permanent buildings for the dormitory and mess hall had
been built, and each year some improvements were made by the vari
ous groups while they were there. The Navy had donated an old
motor launch which had been put into good shape for use at the camp.
Other organizations and clubs
Some material received from this institution in March 1934 de
scribes in some detail the establishment of a system of honor clubs
at Whittier, at the suggestion of the superintendent and under his
leadership. He had devised the system while he was m charge of the
Nevada School of Industry in 1918 and installed it later m the Utah
Industrial School when he became its superintendent. At Whittier
it is known as the “ Paramount Honor Club” , with members in each
^ThiThonor club, as its name might indicate, seems to have for its
primary purpose th.6 6DcouragcmeDt of self-control and self-discipline.
Its “ oath of allegiance” pledges members (1) not to escape, nor
attempt to escape, and to do their “ utmost to prevent and persuade
others from escaping” ; (2) when out on any kind of leave to conduct
themselves in such a way as to bring credit upon themselves and the
institution, and to do nothing to endanger the chances of others tor
obtaining future leave; and (3) “ to put forth an honest and honorable
effort to stamp out the use of tobacco among the boys. ” This special
pledge of “ allegiance” was purposely limited to these three rules
which the superintendent and the boys felt could be enforced through
this method. Members of the honor club whose honor-club group
had no “ A.W .O.L.” for 60 days are rewarded by a special party and
by certain credit allowances described as equivalent to about 1 week’s
time off their stay at the institution.
14.
R E LIG IO U S IN S T R U C T IO N
Whittier employed a full-time Protestant chaplain. The man
who held this position at the time of this study had an A.B. degree
from the University of California and had taken theological courses
at Grace Biblical and M oody Institutes. He had had service as an
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Army chaplain, where he held the rank of lieutenant. His experience
also included 5 years’ work as probation officer in Sutter County, a
rural and mining region.
The chaplain conducted nonsectarian services every Sunday after
noon at 3 o ’clock, these services being attended by all boys. These
services, except for their nonsectarian character, closely resembled
church services outside the institution. The school print shop pub
lished an attractive program for each Sunday service.
The pastor of the Whittier Catholic Church conducted Mass each
Sunday morning in the school chapel for the Catholic boys. He also
gave instruction to all boys who wished to prepare for confirmation.
The few Jewish boys were visited periodically by a representative
of the Jewish Welfare Federation, and they were always permitted
to go home for certain of their important religious holidays if it were
possible to arrange the trip.
In addition to conducting Sunday exercises, the chaplain was
reported to be doing a considerable amount of personal contact work
with individual boys, having general responsibility for - their ethical
and moral training. It was one of the chaplain’s duties to interview
each new boy and to take him on a tour of the grounds and buildings,
explaining to him the various kinds of work and training opportunities,
getting personally acquainted with him, and obtaining information
about his religious and ethical background. Boys who were troubled
by unhappy conditions or illness at home were invited to come to the
chaplain for advice and help.
15.
C R ED IT S Y S T E M AN D D ISC IP L IN A R Y M E A S U R E S
Credit system
The Whittier plan did not include a formal merit or credit system.
Before 1931, at the request of the superintendent and in consultation
with staff members, the California Bureau of Juvenile Research had
worked out a 5-point rating scale for boys. A record blank had been
made out to serve for objective measuring of the boys’ attitude and
behavior. This form was printed on a large sheet which contained
spaces for the name of each boy and places for entering daily ratings
for 1 month. During the entire month such a record sheet remained
posted on the bulletin board in each cottage. The cottage super
visor daily entered a rating for each boy under his supervision. The
points 1 to 5 represented varying degrees from excellent response,
numbered 1, down to unresponsive and uncooperative, which was
indicated by 5. The public postings of these ratings enabled each
boy to know at any time just where he stood for the month. At the
end of the month the blanks were filed with the research department.
They formed an important link in the clinic’s consideration of the
progress which a boy was making toward adjustment sufficient to
warrant parole.
Doubt was expressed by some of the staff members as to the practi
cability of this rating method. Although designed to be as objective
as possible, it obviously leaned very heavily on the subjective side.
It was said that despite all efforts to equalize attitudes of cottage
supervisors, there remained considerable variation in their appraisals
of conduct. A cottage supervisor with high standards would give
low ratings for behavior that a more lenient officer would grade two
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
or three points higher. Moreover, there seemed no way of obviating
the day-to-day variation resulting from the fact that inescapable
personality clashes between officers and boys would affect the officers’
ability to give entirely objective ratings.
The monthly summaries of these ratings, together with periodic
reports as to trade and school progress, were entered on permanent
record cards in the administrative offices. With this material was.
included a record of the number of trips to the disciplinary cottage
and the reasons for each trip.
Disciplinary measures
The superintendent retained personal responsibility for the fixing
of policies with respect to the types of disciplinary measures that
might be used. Responsibility for the administration of discipline
in minor cases of misconduct rested with the cottage supervisor, the
teacher, the shop instructor, or other officer under whose supervision
the boy was at the time. Responsibility for the imposition of dis
ciplinary measures in cases of major misconduct was vested in the
chief supervisor, who had full power to determine the extent of the
discipline to be meted out. In exceedingly difficult cases he consulted
the superintendent for approval of the action to be taken.
The principal method of discipline was deprivation of privileges.
The scale for such withdrawal of privileges varied from merely
requiring a boy to sit on a bench on the cottage playground
while other boys indulged in free play, through such things as being
denied attendance at the weekly motion-picture show or participation
in or attendance at athletic games down to complete loss of social
privileges, which meant removal from his own residence group to the
lost-privilege cottage— the disciplinary cottage which was very differ
ent from the pleasant, homelike residence cottages at Whittier.
During their stay in this disciplinary group boys were required to do
the heavy work around the school, such as road work, digging trenches,
and other physical labor. The only play permitted was a 15-minute
period of unsupervised activity in an inside court each morning and
evening. There was no curtailment of food for boys under discipline
in this group. The length of time that a boy remained here depended
almost entirely on the attitude he himself assumed. He was closely
observed at all times. As soon as he expressed a willingness to do his
best to fit into the less restricted social life of the regular cottages and
had given evidence of sincerity in his intent, he was released to make a
fresh start with his own family unit.
In the lost-privilege cottage were four rooms known as “ quarantine
rooms ” where boys could be completely segregated. It was stated that
it was very seldom necessary to use these rooms, but when a boy re
mained stubbornly and actively defiant after all other measures had
been tried, he might be placed in isolation in one of those rooms. He
received the same food as the other boys. He was interviewed at fre
quent intervals to ascertain his attitude and to determine whether or
not the opportunity he had had for quiet thinking about his respon
sibilities toward the other boys and the school had enabled him to
realize his own personal obligations. The emphasis in all of this
lost-privilege work was on the individual responsibility of each boy for
so living that he contributed toward happiness and progress for all
boys in his own group and in the school.
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No corporal punishment of any kind was permitted by the adminis
tration.
The head group supervisor stated that it was necessary to use boy
monitors to a certain extent, as they did not have assistant cottage
managers. He felt that this was not a desirable system but that it
was unavoidable until it became possible to employ additional cottage
personnel. Their use was minimized and restricted to duties that had
as little to do with discipline as possible.
Those in charge of disciplinary action stated that the most severe
measures were employed in cases of bad sex practices, and the next
most severe for escape or attempting to escape, with insubordination
of a pronounced character taking third place. Such things as smok
ing, stealing, and fighting were considered of less serious character.
16.
IN S T IT U T IO N R E C O R D S
The record system which had been developed at Whittier State
School included a central or summary record kept in the office of the
secretary, and detailed records of the study of each boy and his prog
ress in the institution, kept by the various departments.
The summary records consisted of a “ history book” in which all
admissions were recorded in chronological order, a permanent record
card for each boy, and an individual case folder for correspondence
and miscellaneous data. A double page in the history book was
assigned to each boy on admission. On one page was entered identi
fying material such as name, date of birth, facts as to parents’ status,
commitment data, and school grade. On the opposite page were the
boy’s picture, a summary of his parole history, and record of his
escapes, if any.
The permanent record card was a large printed form on a double
card, about 17 by 11 inches. This contained a very complete sum
mary of the boy’s record, including outstanding facts in his previous
history, summary of his treatment and progress while in the school,
and reports concerning his placement history. The summary of his
institution record showed his assignments to cottage, school, produc
tion or utility work, and vocational instruction; his cottage, trade,
and school reports, and disciplinary record; and the medical, physical,
and psychological reports. Quarterly reports while on placement
were entered on the card, including such facts as date, school attend
ance or employment, type of home, and observations as to social
adjustment.
Records of the boys in the institution and on placement were filed as
active cases, those discharged from placement as closed cases.
Numerous record forms had been adopted by the various depart
ments for keeping detailed records of each boy’s institutional history
and progress. The essential facts recorded in these various depart
ments are briefly pointed out in the following comments.
Each teacher in the academic school kept a daily record card show
ing pupil performance and the amount of work done. Record was
also kept of each b o y ’s attendance. The school’s permanent record
for each boy was kept on a loose-leaf form and included his yearly
attendance record, his progress, and grading in habits and attitudes.
A photograph of the boy was also attached to this permanent record.
A regular form was used by the school for transferring a boy to the
76870— 35------ 4
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FIVE
STATE INSTITUTIONS FOE DELINQUENT BOYS
public school when released on placement. A full transcript of the
Whittier School history was sent to any outside principal on request.
All the detailed medical records were kept at the hospital. Blanks
used for recording the physical examination on admission and blanks
giving a summary of medical records were adequate. Copies of the
summaries were sent to the central administration files and to the
research clinic. Forms were supplied for the daily hospital reports
and the daily sick-call reports.
The records of the clinical studies and case histories were kept by
the California Bureau of Juvenile Research. Summaries of data
obtained by the bureau which would be useful to particular depart
ments in the institution were sent to the respective departments.
The research department kept records on social history, intelligence
tests, and personality studies. A special report blank on which the
research department requested reports from the cottage supervisors
contained a considerable amount of information relating to the charac
teristics of each boy. (See appendix C, p. 317.) Another record kept
by the research department that was significant was the monthly
record blank made out by each cottagé supervisor and posted in each
cottage. These blanks were sent to the research department for filing
at the end of each month.
The monthly reports submitted by the physical-education depart
ment showing the number of boys enrolled in that department during
the month and listing boys who were under weight or who had lost
weight, which were sent to the superintendent, the research depart
ment, the physician, and several other officers, were on regular forms
supplied for the purpose. Individual physical-development records
were kept by the physical director on special forms.
A chronological history of each boy’s conduct record was kept and
was available to the chief supervisor at all times.
Special blanks were supplied for monthly reports of each boy’s
progress in his trade assignment.
The placement department kept an individual record for each boy
while he was on placement. These records contained the formal
notice of his placement on parole signed by the superintendent, the
monthly reports sent in by the boys, the records of visits made by
the placement officers, a card listing the dates on which reports were
received and visits made, and other miscellaneous items including
all correspondence concerning the boy. Forms were supplied to the
boys for sending in their monthly reports and contained such items as
data concerning their employment or school record during the past
month, church attendance, and place where leisure time was spent.
When a boy was discharged from placement.^ this record was then
combined with his general record in the administrative office.
17. PAR O LE A N D D IS C H A R G E
At this institution the term “ placement” , which had been sub
stituted for parole, was used both in reference to the staff doing parole
work and to the boy’s release, whether he returned to his own home
or was placed in a foster home.
Although legal provision had been made for the release of boys on
placement and for their discharge, the details as to requirements and
policies of carrying out the program were administrative functions
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of the institution, subject to the approval of the State department of
institutions. (See p. 13.) At "Whittier the placement department
with three placement officers— a director and two assistants— was
part of the institution staff and had its headquarters at the institution.
The director was responsible to the superintendent of the institution
for the placement work. The director at the time of this study was
a recent appointee, but an assistant had been on the placement staff
nearly 10 years. The position of the other assistant was vacant at
the time of the study but was soon to be filled.
The principle that policies controlling release on placement should
be closely correlated with the treatment program of the institution
had been recognized- The average period in the institution was 18 to
20 months. There was no formal merit or time system for earning
placement. A boy’s eligibility for such release was based on his
progress in his school work and vocational training and on his general
attitude and behavior. Very complete progress records were kept of
both work and behavior, and each boy’s readiness for placement was
given careful consideration by a placement committee. This com
mittee included the superintendent, assistant superintendent, secre
tary, vocational director, school principal, chaplain, chief supervisor,
recreational director, psychologist, and the three placement officers.
A list of boys whose grades showed that they were eligible for
consideration was referred to the placement committee every month
by the school secretary. The placement department visited the home
to investigate the home conditions and to discover school and employ
ment opportunities before a case was considered by the committee.
For the committee conference a report of the preplacement investi
gation, a statement of the boy’s precommitment history, and a
summary of his progress and conduct in the institution were prepared.
Each case was discussed at length, and the committee then decided
whether the boy’s progress had been such as to fit him for placement
and whether he would be benefited thereby. This committee was
also responsible for outlining a plan for a placement program in
preparation for the boy’s return to his own home or placement in a
foster home, attendance at school, or entrance into employment.
It was the policy to return boys to their own homes, and foster-home
placements were made only when conditions in their own homes were
found extremely unfavorable.
Each boy was called into the committee meeting and informed in
a friendly way of the decision. If it had been unfavorable to release
at that time, the reasons were carefully and frankly given him. The
superintendent was authorized by law to furnish to any boy on dis
charge, or on leave of absence, suitable clothing and transportation
to his home or to the county from which he was committed, also such
sum of monejr as the rules and regulations of the board of trustees
allowed for this purpose.23 When the boy was released the responsi
bility for carrying out the program suggested by the committee and
for continuing supervision rested on the placement officers.
With a placement staff limited to three officers it was not possible
to carry out for all cases a program based on personal visiting, ade
quate guidance, and assistance in recreational, employment, or school
adjustments. The area served by each officer was necessarily large,
and the case load was heavy, averaging 114 cases. Personal superM California, Deering’s Qen. Laws 1931, act 9255, sec. 23.
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FIVE STATE INSTITUTIONS FOE DELINQUENT BOYS
vision was extremely limited and had been concentrated largely on
those boys who had presented the more serious problems while in
the institution. The placement officers had effected cooperation
with many local agencies and maintained close working relations with
them.
In some instances local agencies had undertaken direct supervision
of cases on request of the placement officer.
For the majority of cases on placement the method of supervision
was mainly that of written reports which were required monthly
on forms furnished by the institution. The information requested,
on these forms included facts as to the boy’s employment or school
attendance; brief accounting of his earnings, savings, and expendi
tures; church attendance; and leisure-time activities. The signature
of parent or guardian was required. On the basis of these monthly
reports each boy was graded and was notified of his grade every
month. The items for grading boys on placement were as follows:
1. Saving, church, education, efforts, employment, and
regular reports.
2. Obedience, school effort and work.
3. Good report from parents, employers, or officials.
4. Indifference, instability, unsteady employment or
school, late hours.
5. Misconduct, bad company, disobedience, lying, untrust
worthiness, no report.
The rating was on the same 5-point basis as that used in the institu
tion. The boy who made an outstandingly good record, particularly
in the item named, was credited with 1. If he made an outstandingly
bad record he was charged with a 5. The average was of course 3,
while 2 was above average, though not outstanding, and 4 was not as
good as an average, though not outstandingly bad.
The usual period on placement was about 2 years, if the boy had
made a satisfactory record. Decision as to final release (discharge
from supervision and jurisdiction of the institution) was made by the
superintendent, on recommendation of the placement department.
The department sent to the superintendent a résumé of the boy’s
record on placement on which to base his decision. The responsibility
for determining what constituted violation of parole was left largely
to the placement officers. Boys who had not entirely satisfactory
placement records but who had committed no new offense were some
times returned to the institution for adjustment. The commitment
of a new offense usually was considered a violation.
Commitment to another institution at any time while on place
ment was cause for discharge; likewise enlistment in military or naval
service. Boys absent without leave were so carried on the records
until they became 21, when they were recorded as discharged.
Under date of February 16,1934, the superintendent of the Whittier
State School and the director of the California Bureau of Juvenile
Research made the following comments with respect to the placement
service:
The boys’ homes are being visited within 60 days after admission, monthly
reports from the boys on placement are actually being received, a complete cardindex system has been installed, and other innovations of great significance have
been made in the placement program. For example, there is a preparóle training
class designed to prepare the boy for the problems he will face in the community.
A placement breakfast is held before the boy leaves, at which time a number of
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WHITTIER STATE SCHOOL, WHITTIER, CALIF.
distinguished visitors, including the State director of institutions; are present, and
an effort is made to give the boy a genuine farewell party. He leaves the insti
tution in a spirit of friendliness, with the understanding that the. Whittier State
School continues to be interested in him while he is on placement and that his
first obligation is to consult with, the placement officer in the event that any prob
lem arises. Furthermore, one aspect of the present program is the making of
adequate contacts with the officials in the community to which the boy returns,
such as the coordinating councils sponsored by the juvenile court and the proba
tion office in Los Angeles County, in order that there may be some dependable
adult in his community ready to help him make the initial difficult adjustments
to community life.
18.
P LA N T A N D P R O G R A M C H A N G E S I N R E C E N T YE A R S
Of the cases analyzed in part 2 of this report (see p. 10), 149 were
of boys from the Whittier State School. Those boys had been under
care in this institution during the years 1917-24, inclusive, the majority
having been committed in 1919, 1920, and 1921. It is therefore im
portant to take note, so far as information is available, of any signifi
cant ways in which the institution and its treatment program at that
time differed from the 1931 program just described.
During the years 1917-24 the plant itself was undergoing certain
changes. Although in its first report the founders had promulgated
plans calling for “ cottages” , each of which was to “ accommodate a
family of 50 boys, each family to be in charge of a man and his wife
and a teacher” , the families “ to be composed as nearly as possible
o f pupils of similar age and similar innocence or culpability” ,24 those
ideals were not put into effect in the early days of the institution.
Housing had been, in effect, of the congregate type. From the begin
ning of his superintendence in 1912 Mr. Nelles had sought to achieve
conversion to a cottage-unit system, and in 1917 the first unit, desig
nated “ home cottage” , was opened. From that time cottage units
were added as rapidly as the appropriations could be procured and the
construction work done. The management “ tried to see that the
buildings in all their details, the settings, and the color schemes em
ployed expressed careful thought, good taste, and were such as would
exert a refining, uplifting influence on the boys; that ‘ home’ should
be felt in every cottage built; and this without extravagance.” 25
Other building operations had added an assembly hall, a school
building, and several shop structures. Since 1924 an extensive build
ing program had completed the provision of adequate cottage housing
and had added the new commissary building, the hospital, the admin
istration building, and further shop space.
There had been some mcrease in population and in staff personnel,
with a slight proportionate decrease in operating expense, as revealed
in the following comparisons for the’ fiscal years ended June 30, 1921
and 1931:
Item
Average number of boys in care__
Employees ____________
Boys per e m p lo y e e __
____
Cost per inmate__
84 General Bulletin N o. 7, W hittier State School, p. 21. W hittier, 1929.
88 W hittier State School, Thirteenth Biennial Report, 1914-16, p. 32.
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1921
272
91
3
$933
1931
330
111
3
$905
48
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
There had been, however, a significant change in population charac
teristics. In its early studies the department of research had re
peatedly emphasized the heavy incidence of subnormal mental levels
and the urgent need of providing State care and training of otherkinds, in a separate institution, for boys definitely feeble-minded.
Through the use of their analyses, along with other data, policies
had been gradually changed until a procedure had been achieved
which permitted Whittier to eliminate boys who were unquestionably
feeble-minded; also many of the exceptionally unstable border-fine
cases. Even though the figures must not be interpreted too literally
or accepted as representing infallible diagnostic groupings, the follow
ing comparison of mentality of boys at Whittier State School in 1918
and 1926 is of interest:
C o m p a ris o n o f m en ta lity o f b o y s i n school i n 1 9 1 8 and 1 9 2 6 1
B oys in school in—
N um ber
Total.
Superior (above 110)__ ...
Average normal (90-110)..
D ull normal (80-90)______
Border-line (70-80).......... Feeble-minded (below 70).
1926
1918
M entality and intelligence quotient
Percent dis
tribution
N um ber
251
100
320
14
56
60
46
75
6
35
136
83
59
7
22
24
18
30
Percent dis
tribution
11
43
26
18-
2*
i California State Departm ent of Institutions, Third Biennial Report, 2 years ending June 30,1926, p. 49.
Sacramento, 1926.
The reduction in the number of feeble-minded boys in Whittier’spopulation had been effected in several ways. Two things had been
of primary importance. Continuous effort had been made by the
superintendent, aided by the department of research, to bring about
a better understanding in the juvenile courts, and in the public mind,
as to the true purpose of the State School— to serve as an adjustment
center for boys with serious educational and social problems who were
possessed of sufficient native intelligence to profit by the training
there available to such an extent as to be able to fit back into commun
ity fife satisfactorily when released from supervision. The second
factor had been the creation of a second State institution for the
feeble-minded.
A bill to create this additional provision for care of the feeble
minded, designated Pacific Colony, had been drafted at Whittier
State School and passed by the State legislature in 1917.26 A site
was procured and the institution was opened in 1921. The object o f
the drafters of the bill had been to provide a simplified environment
in which feeble-minded children and young people could five happily
and usefully. On its opening a number of boys were transferred
from Whittier State School to the new colony. Within 2 years the
colony had to be closed owing to lack of a sufficient water supply, and.
the inmates were transferred to the Sonoma State Home for the feeble2« California, Deering’s Gen. Laws 1931, act 3690.
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WHITTIER STATE SCHOOL, WHITTIER, CALIF.
49
minded until a new site could be secured and proper facilities pro
vided. The new Pacific Colony was formally opened in M ay 1927.
The Whittier administrators felt that the presence of the feeble
minded in residence units, school classes, and shops had interfered
with the progress of the better-endowed boys, so that the removal of
the low-grade group greatly benefited the boys who remained. More
over, the elimination of the feeble-minded made available more
places for normal boys— as all through these years there had been a
waiting list of 35 or so for admission to Whittier. Perhaps the most
important effect of all was setting free for staff members, and especially
for the research personnel, much time that could be devoted to develop
ing more intensive study of the individual boy’s problems and needs
and ma king plans for individualized treatment to meet the specific
needs discovered.
However, the research work suffered some setbacks. It had devel
oped steadily until 1921, when the unit became the California Bureau
of Juvenile Research, with a State-wide program including service to
all State institutions and consultant service to communities that
desired advice on treatment of problem cases. When in 1923 the
legislature failed to appropriate funds for the bureau’s work, research
activities were more or less at a standstill for a brief period until they
were resumed through the generous cooperation of members of the
staffs of the psychology departments of the University of California
at Los Angeles and Leland Stanford University. The workers carried
on as the department of research of Whittier State School. M any
university members and advanced students contributed liberally of
their services during the next few years. In 1929 the bureau was
reestablished on a State basis.
Thus the boys included in this study were under care at Whittier
during a period when the ideal was individualized treatment, based
on scientific study and with the clinical approach, but many obstacles
hindered the practical application of that treatment. These boys may
be considered products of a program that was one of the most con
spicuous forerunners of today’s progressive trends in treatment indi
vidualization on the basis of clinical study. But the program was in
its pioneering period, methods were in the making, and facilities were
frequently inadequate or ill adapted to needs.
As early as 1915, Whittier was trying to adapt its educational
system to the needs of its boys. The school work was being organized
and conducted with a view to arranging a flexible course for the boy
rather than fitting the boy to an inflexible grade. Instruction was
individual or in very small groups where practicable. The work wasungraded, although the public-school curriculum was being followed
as closely as possible. Efforts were being made to correlate the work
of the academic department and the trades. Boys of normal or
superior intelligence were given a maximum of academic work.
Duller boys were given a combination of academic and manual work,
with each teacher possessing wide latitude to adjust the work to the
boy. Subnormal boys were given manual work almost exclusively.
Through the intervening years the research staff and the teachershad worked in close harmony in an effort to evolve methods of instruc
tion best suited to the problems presented by the boy& that came under
their observation. Much research material of practical value was
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50
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
Accumulated. It was found that in many cases a boy’s truancy and de
linquency had followed a requirement to do the impossible in school.
Sometimes clinical study revealed the boy to be possessed of some men
tal peculiarity that rendered him unable to learn by ordinary methods.
Many such boys were helped to discover learning methods by which
they were able to make up much o f their school retardation in rela
tively short periods. Overcoming their former sense of inferiority
and defeat often had almost startlingly apparent beneficial effects on
their personalities and their subsequent social adjustments.
Eventually the contract plan under which the educational depart
ment was functioning in 1931 was worked out and adopted as offering
the most flexible machinery for meeting the widely varying needs of
the individual boys coming for academic work.
For many years instruction in trades had occupied a prominent
place on Whittier’s program. In the biennial report for 1.914-16 the
statement was made that it was the management’s intention “ to so
develop the trades work that definite formal instruction in connection
with it will become possible. We hope to provide courses of training
and instruction through which boys will pass to a regular graduation.”
The same report stated that as yet it had not been possible to offer
“ formal” instruction, in the sense of giving each boy opportunity to
follow a clearly outlined course designed to give him a fair acquaint
ance with a particular trade as well as experience in practice work.27
In effect the instruction consisted of experience in service as appren
tices performing actual work under the direction of skilled and
«experienced tradesmen. This was the type of trade instruction that
prevailed while the boys included in this study were at Whittier.
The psychological findings were considered in placing a boy in trade
training, in an effort to spare him the disturbing experience of attempt
ing something beyond his native capacity or wholly unsuited to his
particular aptitudes.
A very considerable program of athletics and of other recreational
activities had been developed prior to 1918. A Boy Scout troop,
known as Whittier No. 2, had been in existence for some years prior
to 1918. The annual outing at the Catalina Island camp had already
become a feature of the school life. Military training, which was
-discontinued later, was still a part of the program in 1918. The
boys drilled four times a week for about 30 minutes, going through
regular squad and company drill, with United States rifles. It was
asserted that the plan had been to move steadily away from a strict
military system and that the military work was simply a convenient
device for organizing and handling the boys in groups. The large
residence groups were divided into companies. With the construction
of cottages which provided for smaller family units, the military
organization and drill were entirely discontinued. This occurred
during the period of training of the boys included in this study.
Discipline was administered along practically the same lines then
as later. Corporal punishment had been abolished in 1912. As the
program grew rich in activities which brought satisfaction and pleasure
to the boys permitted to participate in them, the loss of such privileges
a s an effective disciplinary measure gained weight.
The disciplinary
•cottage whose population suffered complete withdrawal from the
v
Thirteenth Biennial Report, pp. 21,41.
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WHITTIER STATE SCHOOL, WHITTIER, CALIF.
51
social satisfactions of the normal institutional group life came to be
known as “ lost-privilege cottage.”
The biennial report for 1914-16 contained several references to the
undeveloped parole system and its significance in the whole treat
ment picture. Extracts from that report give evidence of the thought,
that was being given to that aspect of the institution’s responsibility..
After assuming control and direction of its juvenile wards, and spending much
time and money in efforts to train them in self-control, generally by making it
impossible for them to exercise any form of self-control for a number of months,,
[the State] grants them a parole where they m u st exercise the self-control and
self-direction of a well-balanced adult or be adjudged guilty of failure. A fter
declaring that certain boys are not capable of self-control and (by assuming direct
control) that their natural guardians are incapable of controlling or directing,
them, the State proceeds to turn them loose with instructions to do that which
it has firmly declared they are incapable of doing. * * * One parole officer
continues to represent the care which this school is able to give its paroled boys.
The field worker of the department of research occasionally comes in contact
with paroled and discharged boys, in the prosecution of his investigations into
hereditary and environmental influences related to delinquency and dependency.
The unavoidable neglect of important duties toward the State’s wards which
results from this condition constitutes a serious defect in the corrective machinery
of this school, and also (it seems probable) of other institutions.
By 1924 the term “ parole” had been discarded in favor of “ place
ment” in an attempt to get away from terminology that had come
to be associated wholly with penal institutions in the public mind.
But there was no increase of personnel for this work reported until
several years later:
The placement department of the school had hitherto been operated by onesupervisor who was responsible for the placement and follow-up work of moretha'n 225 boys on the placement rolls. Two additional supervisors have been
added to the personnel of the department, which will also have the cooperation,
of a trained psychiatric social worker, connected with our department of research.
It is expected that a more efficient and comprehensive type of work will result.28*
M State Departm ent of Institutions, Fourth Biennial Report, 1926-28, p. 87.
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Sacramento, 1929.
Chapter III.— B O Y S’ VOCATIONAL SCH OO L, LANSING, M IC H .
Unless the text contains some indication to the contrary, all state
ments made here refer to conditions existing at the Boys’ Vocational
School in March 1932, when it was visited for the purpose of securing
descriptive' and statistical material for this study.
1. S T A T U T O R Y P R O V IS IO N S G O V E R N IN G E S T A B L IS H M E N T A N D
O P E R A T IO N
This institution was first established as the “ House of Correction
for Juvenile Offenders” , under a statute approved in 1855. The
general supervision and government of the institution were vested in
a State board of control consisting of 6 members appointed by the
Governor, with the advice and consent of the Senate, for a term of
6 years. The law provided for the commitment of juvenile offenders
o f both sexes, as follows: “ Every person who, at the time of his or
her conviction of a prison offense, shall be under the age of 15 years,
and such other persons so convicted between, the ages of 15 and 20
years as the circuit court and other courts having jurisdiction * * *
may deem fit subjects therefor, shall be sentenced to said House of
Correction for Juvenile Offenders, for the term of their imprison
ment.” 1
. |
No specific purpose, as for education, reformation, or training,
was stated in the original authorization for this institution, and no
provision has ever been made for receiving payment for the care
of inmates.
The institution has undergone three changes in name, the first in
1859 to “ Reform School” , the second in 1893 to “ Industrial School
for B oy s” , the third in 1925 to “ Boys’ Vocational School.” The law
changing the name in 1925 also authorized conversion of the industrial
school into a vocational school. The managing board, after under
going changes in name from time to time, is now the State corrections
commission, and its membership has been reduced from 6 to 3. This
commission is empowered to appoint the superintendent as well as
all other officers and employees, subject to the approval of the Gover
nor; also to fix salaries and other expenses, subject to the approval
o f the State administrative board and in accordance with the State
accounting and budget law, rules, and regulations.2
Only during the first few years were girls received, and so far as is
known only eight were ever committed to this institution. A law
of 1861 specified that only “ male persons” were to be committed.3
The ages of commitment and discharge underwent frequent legis
lative changes as to various details between 1857 and 1917. The
upper limit was placed at 16 years in 1857 and remained the same
1 M ichigan,
8 M ichigan,
■Comp. Laws
* M ichigan,
Laws of 1855, act 78.
Laws of 1859, act 139; Laws of 1857, act 91; Laws of 1893, act 130; Laws of 1925, act 185;
1929, secs. 8164, 17817.
Laws of 1861, act 250.
52
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BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
53
Tuntil 1917, when it became 17 years. During this period the lower
limit was changed from 7 years to 10 years, and then to 12, which it is
at present. Under the early laws, commitment was until the boy
.should become 21 years of age or be discharged. In 1877 the upper
age limit was changed to 18 years, and in 1885 it was again changed
i;o 17 years. The modifications made in 1917, which remain in effect,
provided for the commitment of boys under 17 and over 12 years of
Age, to remain until they reach the age of 17 or are discharged. The
1917 law further provides that “ any boy between the ages of 16
and 17 committed to the State industrial school may, in the discretion
of the court, be sentenced thereto until he shall reach the age of 18
years.” Commitment may be made of boys of the specified ages convmted before any court or magistrate of competent jurisdiction for any
offense punishable by fine or imprisonment, or both, who in the opinion
-of the court or magistrate are fit subjects for the school. Boys under
17 who are delinquent may also be committed to this school.4
Although the law authorized commitment to a specified age, the
Actual time spent by boys in the institution was indeterminate because
•of the provisions for leave of absence, which could be granted during
good behavior. Both leave of absence and parole were granted under
if
regulations prescribed by the State corrections commission
with the approval of the Governor. Under the law, discharge was
automatic when the boy reached the age of 17 or 18 as specified in
his commitment, however, whether he was in the institution or on
parole at the time.6
Xocation
2.
T H E P H Y S IC A L P LA N T
The location of this school was unusual, in that it was situated
within the limits of the capital city of Lansing (population about
78,400) in the heart of a residential area, and only a few blocks from
the business center. One of the large city high schools, with its
athletic field, was directly adjacent to the institution grounds, and
very close to two of the cottages and the institution’s school building.
Originally the institution was well outside the city, but as the
city grew it gradually surrounded the institution. A plan started
about 1917 to move to a rural site 4 or 5 miles from the city was
not carried through, owing to opposition on the part of a group
who believed the urban location more advantageous for the develop
ment of trade training, which should be the major function of this
institution, but the land purchased with this plan in view was retained
as part of the school property.
The campus was not walled or fenced in, and there was nothing to
indicate that it was & school for delinquents, although the general
Appearance marked it as some kind of institution. The grounds
were made attractive by the presence of large shade trees and, in
season, flowering shrubs and many flower gardens.
Acreage
„ The land owned by the institution was in two units, the 220 acres
in the city on which the buildings and surrounding grounds were
situated, and the 961 acres that had been acquired in a nearby rural
section. About 300 acres of the rural unit were under cultivation as
* Michigan, Laws of 1857, act 91; Laws of 1877, act 84; Laws of 1885, act 172; Laws of 1917 act 80- Com n
X a w s 1929, secs. 17802,12834, 12838, 12854.
’
8U’ o o m p ‘
* Michigan, Com p. Laws 1929, sec. 17803.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
a farm project of the institution. The rest was used by other State
agencies. About 31 acres of the city property were planted in fruit
trees and berries.
Both tracts of land were level and the farm land was fertile. The
farm produced all the vegetables for use at the institution, and also the
stock feed needed. A dairy herd kept here was sufficient to furnish all
the milk consumed. Poultry, hogs, and cattle for butchering were
also raised on the farm.
Administrative offices
The general administrative offices were housed in the oldest building
on the grounds, one erected in 1881 and changed but little since that
date. It was dark-red brick, typical in design of the architecture of
those days. This building, which also contained staff quarters and
officers’ dining room and kitchen, stood at the top of the arc of a cir
cular drive leading up to it from the street. About six rooms on the
first floor were given over to office use. The receiving room in which
the boys entertained their visitors was also on the first floor of this
building. Very high ceilings, rather dull brown or tan walls, and dark
woodwork made the offices somewhat cheerless in appearance.
B oys’ residence quarters
The boys were housed in 8 large double cottages and 1 single cottage*
making 17 cottage units in all. The “ family” unit per single cottage
ranged from 31 to 55 or more boys, depending on the capacity of the
cottage. Five of the double cottages, built in 1924 and generally
referred to as “ the new cottages” , were on either side of a long straight
strip of lawn, back and a little to one side of the older group of build
ings. The others, designated as the “ old cottages” , although all
but one had been remodeled, were situated mostly on the main front
campus along the circular drive leading from the street. These cot
tages had been remodeled to look like the newer ones— square, flatroofed, 2-story double houses. They all resembled rows of large
double houses or flats, typical of any midwestern city.
Each cottage had its own dining room and serving pantry, but no
kitchen. The food was prepared in a central kitchen and sent to each
cottage. The cottage dining rooms were pleasantly arranged.
In some of the remodeled cottages there was no special living room,
and the dining room was used for this purpose in the evening. In
the others the living rooms were fairly homelike. There were small
tables for games and reading; each cottage had a radio, and books were
supplied by the school library. A room for rough play was provided
in each cottage, usually in the basement.
All sleeping quarters were in dormitory style, and at the time of the
visit all were very crowded. Double-decker beds were being used in
nearly all dormitories. Special attention was given to the proper
ventilation of the dormitories, and they were well lighted. In the
remodeled cottages the windows were of modern escape-proof style
but permitted ample light and ventilation.
The sanitary facilities in each cottage were adequate, and in the
more recently remodeled cottages especially up-to-date facilities had
been installed. These consisted of the latest in shower-bath equip
ment and a new type of large round washbasin, with a carefully
regulated flow of water.
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BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
55
Staff residence quarters
Housing facilities for staff members were definitely limited, as
aside from the rooms available in the administration building there
were no special quarters for the teaching and office staff. Separate
residences were provided for the superintendent and assistant super
intendent, both small, unpretentious, old, red-brick houses, built in
1881 and 1867, respectively. The cottage managers with their wives,
and in some instances families, had quarters in the respective cottages
of which they had charge. These quarters usually were not more
than two rooms and bath.
A large number of the staff resided away from the institution.
Plans were being considered for providing more adequate housing for
the personnel.
Dining-room and kitchen facilities
Although the boys ate in their own cottages, the food was prepared
in a central kitchen. This kitchen was m a fairly new fireproof
brick building, well fitted with modern equipment.
The staff, except for the cottage personnel, superintendent, and
assistant superintendent, were served in a large dining room in the
administration building. The tables were long ones, seating 10 or 12
people, and service was by inmate waiters. The room was large, had
a very high ceiling, and in general seemed rather bare and cheerless.
The separate staff kitchen was also in this building, and like the
bays’ kitchen it was adequately equipped with modem fixtures.
A separate building housed the storage and refrigeration plants for
the entire institution.
Chapel and auditorium
A very fine auditorium was a part of the new school building. It
had a seating capacity for the entire school population, the staff, and
a considerable number of guests. The seating arrangement, that of
wooden pews, was designed for chapel purposes. The wall dec
orations were unusually attractive, the stencil work having been
designed and applied by the boys under the supervision of the paintshop instructor. The stage curtain and short curtains for the balcony
rail were of the same attractive dark red velvet.
The auditorium was used for all general assembly purposes as
well as the weekly chapel services, motion pictures, and other
entertainments.
Hospital
The hospital building erected in 1930 at a cost of $40,000 was a
2-story, red-brick, fireproof building, well built, well equipped, and
well kept. It had a bed capacity of 56; there were 2 wards of 16
beds each on the first floor; the second floor had 6 rooms with 4 beds
in each, also 2 single rooms. These single rooms were so arranged
and equipped with sanitary facilities that they could be used for
isolation cases when necessarv. The hospital had a well-equipped
surgery, where both minor and major operations could be performed,
and a well-equipped dental office.
School building
The school was likewise one of the new buildings erected in 1930.
It was of brick and was fireproof and modern in every respect. At
each end at the back were the classrooms, principal’s office, and library.
The parts of the building housing the classrooms were two stories in
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56
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
height; the auditorium was only one story. All the classrooms-*
were adequately lighted from outside, and the ventilation was good»
They all presented a very attractive appearance. They were equipped
with regulation desks of modern pattern. The wall decorations*
were cheerful, and in addition many colorful cutouts and blackboard
stencils were on display.
Shops
Two buildings housed the industrial and vocational shops, both:
2-story brick structures. One was erected in 1925, the other was an.
older building that had been remodeled during the same year. Thevarious shops in these buildings were independent units and included
the manual training room, print shop, radio shop, shoe making and
repairing, paint shop, tailor shop, and machine shop. Each wasadequately equipped with modem appliances for its respective trade»
The machine shop occupied the entire second floor of the new indus
trial building, and was the especial pride of the school in its completeand strictly modern equipment. All the shops had a maximum of
light, with windows occupying all the side wall space possible in each»
Farm buildings
The farm which was operated by the institution was several miles
distant from the main institution and seemed entirely separate from
it. Only about 12 or 14 boys lived at the farm cottage, an ordinary
frame farmhouse. The farm buildings included a fairly new dairy
barn, several smaller barns, three farmhouses, hog house, poultry
houses, milk house, implement house, two large silos, and varioussmall sheds.
Gymnasium and athletic field
The large, beautiful new field house was the pride of the school and
of the whole State. It was quite unusual for an institution of thistype, in both size and equipment. All facilities for athletic activities
were found in this building; basket-ball, handball, and volley-ball,,
courts, indoor track, gymnasium, and swimming pool. The basket-ball
court was of full regulation size and was used by outside teams and
for tournaments of various public-school leagues, as well as for theinstitution basket-ball games.
.
The swimming pool was a beautiful tiled pool, kept m excellentcondition. It measured 70 by 30 feet and was graduated in depth from
3 to 9 feet at one end and from 7 to 9 at the other.
There were sufficient showers and dressing rooms in the building so
that activities might be under way in several branches of sports at the
same time.
Each cottage had an individual outdoor playground 400 feet square,
which was used for general outdoor play by the boys during their
leisure-time periods. The athletic field, where football and baseball
games and the track meets were held, was adjacent to the field house»
3.
P LA N T V A L U A T IO N A N D O P E R A T IN G E X P E N S E
The value of the physical plant was stated to be as follows:
Lands_____
Buildings _.
Equipment.
Total.
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$202, 296. 80
1, 212, 325. 00
260, 837. 16
1, 675, 458. 96
BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
57
These items represented the expenditures made by the State and
did not take account of any decrease in value of buildings or possible
increase in value of lands. The financial office supplied the following
statement of operating costs for the year ended June 30, 1931:
Salaries------------------------------------------------------------------- $159, 949. 05
Maintenance and supplies__________________________
191, 678. 30
Operation of farm__________________________________
30, 334. 08
Total------------------------------------------------------------
381, 961. 43
As the average daily population of the institution was 708, the
average per capita cost of operation (cost per boy) was $559.49. This
is computed to include the item for farm costs in order to be compa
rable so far as possible with the per capita cost at other institutions.
At this school the per capita cost was figured from a total item which
included a charge for farm products produced and consumed. The
products were purchased from the farm for institutional maintenance
and the items were included in the total for maintenance and supplies.
Since the farm supplied a considerable portion of the foodstuffs for
the institution, the per capita cost would be considerably lower if it
were possible to isolate and deduct that item.
4.
A D M IN IS T R A T IV E C O N T R O L , STAFF O R G A N IZ A T IO N , A N D
P E R SO N N E L
Administrative control
The administrative control over the Boys’ Vocational School was
vested in the State corrections commission, one of five bodies con
stituting the Michigan State Welfare Department, the head of which
was the State welfare director, appointed by the Governor.
The State corrections commission consisted of five commissioners
appointed by the Governor with the consent of the State senate.
These commissioners were not appointed for fixed terms but served
at the pleasure of the Governor. There was no provision that the
membership should be bipartisan; the commission might be wholly
changed each time that a governor took office. In addition to the
five appointed commissioners, the State welfare director was an
ex-officio member of the commission.
This commission controlled only two institutions, the Boys’ Voca
tional School and the Girls’ Training School. Although ultimate
responsibility for the entire program at each institution rested upon
this commission, in practice the institutional management was left
almost entirely to the superintendent of the school. The superintend
ent consulted the commission with respect to general policies, budget
matters, and particular problems in connection with which he wished
their advice or aid.
The State required that before any appropriated funds might be
released for actual expenditure, the proposed items must have the
approval of the Governor’s administrative board. All requisitions for
farm equipment and livestock were inspected and approved by
members of the staff of the State department of agriculture before
the purchases might be completed. All of the academic school work
was supervised by the State department of public instruction. The
State department of health had no supervisory relationship with the
B oy’s Vocational School, but very close working relationships were
maintained. The State department of health tested the school’s
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FIVE STATE INSTITU TIO N S FOR D ELIN QU EN T BOYS
water supply regularly, inspected the premises for sanitary purposes,
did all laboratory work without charge, and reviewed and approved
all bills of consulting specialists and surgeons who did any work for
the school. It was stated that this latter procedure was instituted
some years ago because of some extravagant charges made by private
physicians for services to inmates of State institutions.
The superintendent of the Boys’ Vocational School was appointed
and might be removed by the State corrections commission. Since
that entire commission might be changed with each incoming gover
nor and since governors were elected each 2 years in Michigan,
this provision made it possible for political pressure to change the
personnel frequently. However, in practice it did not seem to be
working that way, the 1932 superintendent having held office since
1923.
P ersonnel: Number and duties
The Boys’ Vocational School employed 114 full-time and 10
part-time employees. A complete list of individual positions was not
obtained, but a partial list of personnel as supplied by the supérintendent included the following positions:
Superintendent__________________
Assistant superintendent_________
Second assistant superintendent-Steward (purchasing agent)______
Secretary to the superintendent-_
Clerical workers______ :--------- ------School principal_________________
Schoolteachers________._____. ___
Instructors, manual and trade
training 6______________________
Librarian and substitute teacher- _
Athletic director_________
Cottage managers 7______________
Cottage matrons_________________
1
1
1
1
1
6
I
13
14
1
1
8
13
Night watchmen_________________
Detail officers___1_______________
P hysician.--________ - - - - - ______
Dentist (5 half days per week)___
Nurses__________________________
Chaplains (1 part tim e)__________
Bandmaster 8_______ - ______ - ___
Teacher of vocal m u sic--________
Farm m a n a g e r _________
Other farm personnel___________
Trade foreman 9_________________
Engineer and assistants____ ,_____
Other personnel10- ___
21
2
1
1
3
2
1
1
1
4
8
3
15
Personnel: Salaries
At this school the salaries ranged from $420 to $5,000. Complete
data on salaries were not furnished, but information as to amounts
paid for certain specified positions was supplied as follows:
Superintendent_________
Assistant superintendent.
S t e w a r d (purchasing
agent)__ - ____________
Athletic director____________
Physician___________________
$5, 000
3, 200
School principal________
$2, 800
School teachers_________ 1, 260-1, 620
Instructors, manual and
trade training_______ 11 1, 800-2, 400
3,400
2,200Cottage managers_____ 12 1,140-2, 700
4,200Nurses_________________ 1, 200-1, 500
8 Under this classification have been grouped all persons definitely designated as instructors b y the super
intendent. These were the men in charge, or assisting, in the electrical shop, machine shop (4), manual
training work (2), painting (2), printing (3), radio and mechanical drawing, and shoe shop; 6 of these instruc
tors also served as cottage managers, and 1 as relief cottage manager.
i These had no duties as instructors, but they were reported to have certain outside duties connected
-with maintenance work, such as work on the form, on the grounds, in the garden, and in the meat shop.
8 This officer also served as cottage manager.
• These were not designated as instructors, but they supervised boys working with them : Baker, barber,
cooks (2), florist, laundrymen (2), and tailor.
18 Includes 2 housekeepers, 1 wood-shop officer (doing maintenance work without aid of boys), 3 firemen,
1 truck driver, and 8 students from the M ichigan State College of Agriculture and A pplied Science (in East
Lansing). See p. 60.
This was the salary range for shop instructors w ho did not also serve as cottage managers.
12 This was the salary range for all cottage managers, including those who also served as shop instructors.
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BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
Personnel: Appointments and removals
As has been previously stated, the superintendent at this institution
is appointed by the State corrections commission, and he may be
removed at any time by that body. Under the existing system a
new governor can change the commission membership entirely, which
mig;ht in turn result in a change of superintendents on a purely political
basis. All other employees were appointed by the superintendent,
with the approval of the commission, and might be removed by him.
It was reported that under the current management the practice was
to approve, almost without exception, whatever action the super
intendent took in relation to the staff. There were no civil-service
requirements or regulations with respect to any positions at this
school.
Personnel: Term s o f service
Despite the fact that the system would permit frequent changes in
the superintendency at Lansing, that had not been the expenence.
There had been but four superintendents since 1905. The incumbent
at the time the institution was visited (1932) had been in office since
1923.
The approximate length of service of 88 of the 114 full-time employ
ees, as reported by the superintendent, was as follows:
N u m b e r of
employees
Less than 1 year___
1 year, less than 2 __
2 years, less than 3_.
3 years, less than 4_.
4 years, less than 5_.
5 years, less than 10
10 years or more___
Not reported_______
3
3
2
.—
...
—
10
4
49
17
26
Tenure of office among the teachers ranged from 3 to 16 years, that
of the vocational instructors from 2 to 10 years. Of the cottage
managers and matrons only 2 had been appointed within the year,
16 had been at the institution for more than 5 years, and 4 for more
than 9 years.
Personnel: Qualifications
Data obtained as to education and previous experience of personnel
were meager. The superintendent had Had some years of experience
as head of the Michigan State police before becoming chief executive
of the Boys’ Vocational School. In his police work he had become
exceedingly interested in boy behavior and in ways and means of
giving the boys who come into conflict with the law a “ chance to come
out of it.” The assistant superintendent was reported to have had
previous institutional experience, but in prison work.
The school principal and four teachers held B.A. degrees. Of the
other teachers, 4 had had 2 years of college work, and 5 had had 3
years. One teacher who had the B.A. degree had taken special
training for teaching modern ungraded classes. All had life certifi
cates for teaching in Michigan and had had experience teaching in
the public schools before appointment.
The athletic director was a normal-school graduate who had
specialized in physical education. Among the instructors in trades
were 2 college graduates and 1 normal-school graduate with a fife
certificate to teach. Others in this group were skilled tradesmen,
with practical experience in their particular fines.
76870— 35------ 5
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FIVE STATE IN STITUTIONS FOR D ELIN QU EN T BOYS
The superintendent stated that practically all the cottage managers
had had a high-school education, and that many of the cottage matrons
had had work in normal schools in preparation for teaching.
Among the part-time employees were eight young college students
who were given board and lodging and $25 per month for certain
hours of duty in connection with group supervision. Their principal
assignments were to assist in organizing and supervising recreational
activities in the cottages and on the cottage playgrounds during the
evening hours and on Saturday. The superintendent considered
these students’ greatest contribution to be in the attitude they were
giving the boys on ethical standards, rather different from anything
some of the boys had ever encountered before. He expected much
from the socializing influence of the acquaintance they were giving
the boys with the pleasures and the values of clean sportsmanship
and good teamwork.
Personnel: Living and working conditions
It was reported that 76 employees were obtaining full maintenance
at the school, 1 was taking meals only, and the remaining 47 received
no maintenance. Housing for those who resided on the campus Was
not adequate nor satisfactory. The administration hoped to be able to
remedy the condition to a certain extent by remodeling the old school
building, which had been vacant since the occupancy of the new school.
Cottage masters and matrons were quartered fairly satisfactorily m
the various cottages. Thejr had their meals in the cottages, at
separate tables in the boys’ dining room. Other employees ate in the
officers’ dining room in the administration building. The food was
good and plentiful.
The location of the Boys’ Vocational School within the city ot
Lansing meant that in this institution, as at Whittier, there was no
lack of opportunity for normal social life for the personnel.
A considerable number of the staff had very heavy work, l o r
example, seven of the cottage masters carried full duty as vocational
instructors in addition to ufamily” responsibilities as cottage heads.
The cottage relief officer was also an instructor. The cottage master s
day was described as beginning at 6 a.m. and running through to
6:30 p.m. one day and to 8:30 p.m. on the next. Cottage masters who
were not instructors were reported to be detailed to carry on various
maintenance jobs, with boys assisting. One of the cottage matrons
also did double duty by teaching full time. Another cottage matron
acted as school librarian and office secretary to the principal. Another
served as secretary to the superintendent.
..
Cottage personnel were allowed a half day off one week, and a full
day off the following week. All employees received 14 days’ vacation
allowance annually. Sick-leave allowance was said to be flexible,
discretion resting with the superintendent.
Staff organization
The staff was not organized formally along departmental lines, and
no organization chart was available. However, certain phases of the
program at this institution did, in practice, constitute independent
departments with one staff member serving as an executive head.
For example, the school principal was given full authority and fullresponsibility for academic instruction. The athletic director had
full charge of the athletic program and all athletic activities. The
assistant superintendent was directly in charge of all maintenance
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work that was not done as part of a vocational course. On the other
hand, the vocational work was not departmentalized. Each shop oper
ated as an independent unit, with its instructor responsible directly to
the superintendent. Likewise each cottage master worked directly
under the superintendent himself, without other supervision or
direction.
Administrative leadership and staff teamwork
The strong personal influence of the superintendent was clearly
apparent. Results seemed to be obtained through highly individu
alized leadership rather than through the method of staff education
and group thinking and planning. Staff meetings were not regularly
scheduled, with planned discussion of problems and policies. When
ever the superintendent felt the need of doing so, he called staff meet
ings, usually in small groups, for some announcement or instruction
with respect to a particular field.
5.
A D M IS S IO N S , CAPACITY, AN D P O P U LA TIO N
Intake provisions and policies
The age limit for commitment as specified by law was between 12
and 17 years. Commitments were for the period until the boy became
17 years of age or was discharged according to law. There were
further legal provisions that boys 16 years old at the time of com
mitment might, at the discretion of the court, be committed to the
institution until they should become 18. Unless committed until 18
or discharged earlier for some reason, boys were automatically reieased from the institution’s supervision the day they became 17 years
old, whether they were m the institution or on parole. It had become
the general policy of the courts, particularly in Wayne County (con
taining Detroit) and Kent County (containing Grand Rapids) to use
the provision for extending the commitment of 16-year-old boys to
the 18-year age limit for discharge. Under this type of commitment
boys might be returned for parole violation to the time they became 18 13
In its commitment provisions the law stated that such boys of the
ages specified as in the opinion of the court or magistrate were “ fit
subjects for commitment to the industrial school” might be so com
mitted. The superintendent, under the authority of the State correc
tions commission, could refuse to accept a boy who was deemed an
subject-” . T hf Policy was not to accept active cases of
venereal disease or of tuberculosis. Boys received on commitment
},° be obviously feeble-minded could be returned under
the ht-subject clause for commitment to the institution for feeblei/-f Becaus? .° f cpngestion at the latter institution it had been
difficult for some time to get cases, except the very worst ones, transhowever, and the Boys' Vocational School had to accept some
low-grade boys who no doubt should have been at the other institution
I here was no provision for transfer from this institution to other
correctional institutions m the State.
Capacity and population
^
^ me
institution was visited, its population of 684 bovs
S e X t in t e X n t
^
°apacity °f 575 rep0rted ^
Of the 684 boys in residence March 21, 1932, 589 were white, 93
were Negro, 1 was American Indian, and 1 was Mexican. Figures as
13 Michigan C om p. Laws 1929, secs. 17082, 17086.
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
to nativity were available for the resident population as of October 1,
1931, and were accepted as representative. Of the 578 boys in the
institution on this date, 346 were native born, of native parentage;
213 were native born, of foreign or mixed parentage; and 19 were
foreign born.
.
., . _
,
The age distribution of the 486 boys received in the last fiscal year
preceding the study— July 1, 1930, to June 30, 1931 was as follows:
Number
of boys
27
50
109
154
137
9
12 years.
13
14
15
16
17
years.
years.
years.
years.
years.
More than half (291) of the 486 boys committed were 15 and 16
years of age. It was reported that 9 boys were 17 years old at ad
mission, although the general policy was not to receive boys of that
age on first commitment.
. . .
,
,
The group under legal control outside the mstitution as of JVlarch 1,1932, was 458 boys nominally on parole, and 8 boys who were absent
without leave (escaped). For the last fiscal year before the mstitu
tion was visited (ended June 30, 1931), the movement of population
was as follows:
Population July 1, 1930----------------------------------------------------------------------------Received during the year--------------------------------------------------------------**32
New commitments------------------------------------------------------------------488
Parolees returned----------------------------------------------------------------Escapes returned------------------------------------------------------------------ ™
Returned from placement------------------- - — - -----------------------”
Returned from own home (not parole violation)------------------l
Lost during the year--------------------------------------------------------------------632
Released on discharge
Released on parole—
Escaped_____________
Died________________
161
440
29
2
Population June 30, 1931—----------------------------------------------------------------------6.
R E C E P TIO N A N D A S S IG N M E N T PRO C ED U RE
Reception
This school had a regulation that it would receive boys only from
the 1st to the 10th of each month. This policy was well known to
the counties throughout the State. During that period boys were
brought to Lansing by county welfare agents or law-enforcement
officers. New boys were received by the superintendent’s secretary,
who signed the necessary papers, took such additional information as
was required, and then turned the boy over to the receiving cottage.
A little later during his stay at this cottage each boy was interviewed
by the secretary to obtain a somewhat more complete case history.
Receiving cottage
Boys remained in the receiving cottage 3 weeks to 1 month; that is,
at the end of each month all boys were transferred to residence cot
tages. The receiving cottage of this school was not noticeably dif
ferent from any of the other residence cottages for boys. During
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their stay there, however, new boys had no contact with the rest of the
school population, being considered in quarantine. They did not go to
school. They did no institution work except all the housekeeping at
their own cottage and the care of its grounds. During this period the
boys received their examinations by the physician and the principal
of the school. The receiving-cottage manager was expected to make
a special study of each boy and to be prepared to report his observation.
(For form for this report see appendix C, p. 313.)
First assignments
Cottage assignment was made largely on the basis of age and physi
cal development, with some consideration of mental level and prior
conduct. Assignment was made by the superintendent, but the
recommendation of the receiving-cottage manager was reported to be
the deciding factor in the choice of cottages.
Assignment to school grade was made by the school principal on the
basis of the history which he had procured as to the boy’s prior school
experience and status, together with the results of such examinations
as he had given during the boy’s quarantine period.
Assignment to vocational training was made by the assistant super
intendent, who was the staff officer entirely responsible for the main
tenance work of the institution. In making assignments he was said
to be very largely influenced by the boy’s own choice as to what he
wished to learn. Naturally, the assignment would be to a certain
extent influenced by the maintenance needs and the size of the various
shop groups at the time of assignment.
7.
T H E B O Y ’ S LIFE IN T H E IN S T IT U T IO N
Daily routine
The daily schedule for the boys at this school was as follows :
6 a.m----------------------------- Rising bell, followed shortly by 15 min
utes of calisthenics.
7 a.m----------------------------- Breakfast, followed by cottage house
work.
8:15 a.m------------------------- Report to detail and then to school, voca
tional training, or work squad.
11:30 a.m----------------------- Return to cottage.
12 noon-------------------------- Dinner.
1:15 p.m ------------------------ Report to school, vocational training, or
work squad.
4:30 p.m ------------------------ Dismissal from school, vocational train
ing, or work.
5 p.m----------------------------- Supper.
6 to 8 p.m---------------------- Recreational period.
8:30 p.m ------------------------ In bed.
General atmosphere
The general atmosphere was somewhat more formal than that
observed at the Whittier State School (Calif.) described in the pre
ceding chapter; that is, more marching lines of boys in semimilitary
formation were observed. Although somewhat intangible, the feeling
of continuous close supervision was more in the air here, but there were
no physical evidences of restraint in the way of walls or barred windows.
Cottage “ fam ily” atmosphere
Each cottage had a manager and matron who were husband and
wife. The superintendent desired to have these two individuals stand
as nearly as possible in the relation of father and mother to the boys
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
under their care. This became, however, quite difficult with the
groups so large as they were in this institution, living in the compara
tively small space that each cottage provided. The ideal was for the
cottage manager to seek to know and understand thoroughly every one
of his boys. The superintendent felt that the cottage manager should
be able to guide and control the boys in such a way that formal disci
plinary measures would not be necessary. He was quite severe in his
judgments of his cottage personnel, stating that he believed many of
the difficulties which they encountered in bringing about improvement
in a boy’s general conduct and attitude were due to their own mental
laziness or lack of ability. Although he called it common sense and
intelligence, what he was aiming at was the application of mentalhygiene principles in individual-boy treatment.
Arrangements for sleeping
All cottages had well-ventilated dormitories, adequately provided
with beds and bedding. They were kept in good condition. They
were, however, crowded beyond their capacity in several of the cottages.
This required that boys sleep in double-decker beds. Insistence was
placed on careful attention to temperature and ventilation of the sleep
ing quarters at all times.
Each dormitory was supervised by a night watchman all night long.
This supervision was obviously for the purpose of enforcing rules and
regulations and preventing expected misconduct.
Arrangements for eating
Each cottage had its own dining room, but food was prepared in a
central kitchen, and at each meal a detail of boys brought the food
from the kitchen to their own cottage in specially constructed push
carts with thermos containers. There it was served from a pantry
which had facilities for keeping things hot. The boys sat at small
tables furnished with white tablecloths and china. The cottage father
and mother ate at a small table in the same room. It was stated that
silence during the meals was not required. However, in the one
cottage visited during a meal hour the boys did not carry on conversa
tion. This might have been due to the presence of strangers in the
room.
Food was good and there seemed to be an abundance of it. A sam
ple menu for one week is reproduced in appendix A, page 290.
Sanitary arrangements
Physical hygiene of the finest kind was insisted upon as a major
duty. Sanitary facilities were good. In the old cottages that had
just been remodeled a new large round washbasin had been installed,
of the type that has a carefully regulated flow of running water which
the boys could use for washing of faces and hands. All cottages were
reported to have ample shower fixtures. Individual towels were
supplied, and each boy was furnished with a toothbrush and paste.
Cottage officers were expected to see that the boys made use of these
articles properly.
Living-room and playground activities
Living rooms in the cottages were comparatively small for the
number of boys who were expected to make use of them. Some
cottages had only a combination dining room and living room. This
meant no comfortable living-room furniture. Time indoors had to
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BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
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be spent on the straight chairs at the tables in more or less restricted
fashion. It was stated that the boys used the rooms for playing
games and reading and that silence was not required. However,
the impression was gained that little informal, normal, spontaneous
conversation and play went on in these crowded living rooms. This
difficulty was obviated to a certain extent by the evening use of the
field house for recreation purposes by each cottage at prescribed
periods each week and by use of a basement room for some play.
At all times when the weather would permit, all the daytime and
evening leisure hours were spent out of doors on the cottage play
grounds. The superintendent insisted that each boy must take part
in group play. He stated that many boys had to be taught how to
play with other people; that they had never had opportunities to
take part in free play. Supervision of the activities on each cottage
playground was the responsibility of the cottage manager, and he
was expected to see that his boys developed play morale of a whole
some character. The college students were very helpful in this
connection.
Miscellaneous arrangements
Each cottage contained lockers so that every boy had a place all
his own where he might keep his clothes and any other individual
personal possessions.
The boys’ everyday suits were of olive-drab wool in winter and of
khaki in summer. For Sunday they had gray cadet uniforms. Each
boy also had a suit of overalls for work or rough play. All clothing
was commercially made. The superintendent stated that he could
purchase better material on the open market at less cost than if he
had the clothes made in a tailor shop at the school.
Smoking was not permitted; the principal reason given was the
fire hazard, rather than that it was wrong.
The character of the boy’s fife along other lines, with particular
reference to training and recreation, is described in other sections of
this report.
Outside contacts
Boys were permitted to write letters twice a month. They could
write to relatives or to certain approved adults, such as probation
officers, judges, or pastors. Both incoming and outgoing mail was
censored by the school teachers or the cottage manager. Boys
might earn through good conduct the privilege of writing as often as
they wished.
Boys might receive visits once a month from their immediate
family or other persons who had secured permission from the superin
tendent. Visiting hours were from 8 a.m. to 4 p.m. daily, except
Saturdays, Sundays, and holidays. Visitors were permitted to stay
as long as they wished within those limits. There was a system of
admission cards for visitors, each visitor being required to have a
card before a boy was allowed to see him. The visits usually took
place in rooms in the administration building.
Boys were sometimes permitted to leave the institution to go home
for a visit. Quite a number were permitted to spend Christmas at
home. The superintendent’s permission was required for this
privilege.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
8.
P H YSIC A L E X A M IN A T IO N S A N D M E D IC A L CARE
Hospital facilities
Medical work at this institution was housed in the new building
already described. (See p. 55). The hospital was not prepared to do
X-ray nor laboratory work, these being taken care of through facilities
in the city of Lansing or in State laboratories.
Hospital staff
The physician in charge gave full time to looking after the physical
health of the school population. A dentist was at the school half
the day 5 days each week and was subject to emergency call on other
days. Three registered nurses, a housekeeper, and a night watchman
completed the regular staff. Consulting surgeons were regularly
employed for certain types of specialized work.
Physical examinations
Each boy on admission was given a complete physical examination.
For all boys the routine included Wassermann test, throat cultures,
urinalyses, immunization against diphtheria and typhoid fever, and
vaccination against smallpox. The findings were recorded on regular
forms and became a permanent record at the hospital.
Corrective work
The hospital report for 1931 revealed a considerable amount of
corrective surgical work undertaken, as shown by such items as
“ 200 tonsillectomies, 15 herniotomies, 50 circumcisions, 3 operations
for osteomyelitis.” The same report showed that 6 boys had received
treatment for syphilis and 2 for gonorrhea.
Glasses were fitted at State expense. If visual defects were noted
during physical examination, a boy was sent to a consulting eye, ear,
nose, and throat specialist for the proper prescription.
Dental work
All necessary dental work was done at State expense.
Other medical care
Each morning at 8 o’clock the daily sick call was held. Cottage
officers sent their boys for medical examination or dispensary treat
ment at that time. There was a strict regulation at this school that
every boy who wished to see the doctor must be permitted to report
at the morning sick call. No other officer was permitted to judge as
to whether or not a boy was in need of the doctor’s attention. In
addition to the routine sick call, boys were permitted to report to
the hospital for attention at any time during the day that occasion
might require. The annual report showed a daily average of 22 boys
reporting for sick call.
Boys with acute illness of any type were cared for in the hospital
until completely recovered and able to take their places in normal
cottage life and school activities. Cases of acute illnesses and acci
dental injuries received care promptly. The daily average of boys
in the hospital during the previous year was 12.
9.
P SY C H IA T R IC A N D PSY C H O L O G IC A L SERVICE
Psychological tests
The principal of the school gave the Stanford revision of the BinetSimon test to all new boys during their stay at the receiving cottage
as a part of his examination to determine where each boy should be
placed in school.
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BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
Psychiatric examinations
Specially difficult cases that were suspected of being psychopathic
or psychotic were referred to the State hospital at A n n Arbor for
examination. The psychiatrist at that hospital kept such boys there
under observation long enough to make a diagnosis and to advise as
to what further treatment each boy should receive, either in the
Boys’ Vocational School or in some other institution.
This school had no resident psychiatric or psychological personnel.
10.
E D U C A T IO N A L P R O G R A M — C L A S S R O O M W O R K
School staff
The school personnel consisted of the principal and the 13 teachers.
The general impression gained from visiting all the schoolrooms was
that the teaching staff included individuals of ability, maturity, and
pleasing personality.
School day and school year
The school day was from 8:15 to 11:30 a. m. and from 1:15 to 4:30
p.m. From the fifth grade down, all boys attended school all day 5
days a week. The others attended school every other day, going to
shop work on alternate days. The school year was 10 months in
length.
Attendance requirements and enrollment
All boys were required to attend school unless excused by the school
principal. He had the authority to excuse from school attendance
any boys 13 years old or over who were found to be mentally unable
to do any school work to which they might be assigned. Once
assigned, boys were not excused except for illness.
The school enrollment as of March 21, 1932, and the ages of boys
attending all day on alternate days or 5 days in the week were as
shown in the following table:
A g e o f b o y s enrolled i n a sp ecified school grade or class on M a r . 2 1 , 1 9 3 2 , a n d the tim e
o f school attendance 1
B oys enrolled
Age of b oy
Grade and time attended
Total
T o ta l...............................................
512
Attending all day on alternate
days........................ .....................
384
Ninth grade............................
Eighth grade...............................
Seventh grade________________
Sixth grade.......................................
Attending all day 5 days in the
week................... ...............
Fifth grade..........................
Fourth grade...........................
Opportunity room ........... .
Special class..................................
11
12
years
6
years
13
years
14
years
15
years
16
years
17
years
15
44
90
161
163
32
i
3
17
65
126
146
26
i
1
2
9
U
7
7
22
37
34
30
= == = =
4
80
102
103
99
--- ..
3
-
23
"
32
—
128
6
12
27
25
35
50
26
27
25
1
5
12
4
14
3
5
8
2
6
10
3
2
2
3
8
18
years
17
1
i The difference between the school enrollment (512 on Mar. 21,1932) and the total population of the insti
tution on the same date (684) is due to the fact that boys not yet released from the receiving cottage for
assignment to school grade were included in the total population, and also to other conditions of institutional
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
These figures show that school retardation was very common among
boys committed to this institution. Adjustment in school was con
sequently more difficult and demanded more time and thoughtful
analysis, especially in view of the congestion due to the necessity of
admitting to the school some boys of decidedly low intelligence level.
Courses given
As is indicated in the enrollment table, regular classroom work
through the ninth grade was offered. The curriculum followed that
of the Michigan public schools in all essentials. In addition to work
from the fourth grade through the ninth grade, there were two special
rooms. One was known as the special class. This was for boys of
very low grade mentally. A considerable amount of handwork was
done by these boys, and fairly simple projects were undertaken. The
other specialized class was known as the opportunity room. In this
group were placed boys who were badly retarded in school but who
actually possessed enough mental ability so that they could make up
some of their work; there were some boys who were having difficulty
with particular subjects and who needed a great deal of individual
attention. The teacher in charge of this group had been well trained
for that particular work and showed considerable ingenuity in devising
original projects to arouse and hold the boys' interest. The classroom
had many colorful decorations, all made by the boys themselves.
They had constructed a little puppet theater of which they were very
proud. They had made furniture and settings suitable for the pro
duction of several simple stories in which the characters were repre
sented by clothespin puppets appropriately dressed.
Teaching methods throughout all classes included much project
work. As much visual material was used as it was possible to procure,
although the school did not have the proper equipment to show edu
cational films or lantern slides. The boys made a considerable
amount of poster material themselves so that all the school rooms
presented an attractive appearance. One of the rooms was doing a
transportation story by the project method, and one was setting up
an exhibit which would illustrate in simple fashion the principal fea
tures of municipal, State, and National governments.
One special feature in this school was the emphasis on training in
penmanship. Buttons were awarded and bulletins were posted to
show the progress made by the different boys in each room. The
reason for such emphasis was said to be the observation that effort to
achieve the muscular control necessary for good penmanship seemed
to have an excellent effect on muscular coordination and control in
general, in which these boys especially needed assistance.
The grading followed that used in the Michigan public schools and
was the usual A, B, C, D, and E system, E meaning complete failure.
Monthly reports were prepared and filed in the principal's office as
permanent school records.
II.
ED U C A T IO N A L P R O G R A M — V O C A T IO N A L O R P R E V O C A T IO N A L
WORK
As its name indicates, this school had placed heavy emphasis on
vocational training for many years, with a number of new develop
ments during the past 12 years. Prior to that time the institution
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B O YS’ VOCATIONAL SCHOOL, LANSING, MICH.
had owned only the Lansing property. Then the plan was evolved
for removing the entire school to a rural site; and more than 900 acres
of farm land some 4 or 5 miles out of town were purchased for that
purpose, as has been stated (see p. 53), and several hundred thousand
dollars was appropriated for the erection of new buildings on that
site. But vigorous opposition arose. Many influential persons,
including the present superintendent, were strongly of the opinion
that a larger-farm program was less to be desired than the develop
ment of trade-training facilities on the urban site. They contended
that relatively few of their boys came from rural areas and that very
few would ever adopt an agricultural career. After much discussion
this group prevailed. The State legislature canceled its order as to
the expenditure of the appropriation on the new farm lands and per
mitted its use for the erection of new cottages, shop buildings, and
the field house on the Lansing campus.
Enrollment
The vocational or other work at which boys were occupied all day
on alternate days was reported as follows on March 21, 1932:
Number
o f b o ys
Total------------------------------------------------------------------------- 384
9
Baking_______________________________________
Barbering___________________________________________________ 12
Farming (including general farm work, outside work, and extra
details)__________________________ .________________________ 44
Horticulture________________________________________________
4
Laundry and sorting room_________________________________ ” 25
Painting_______________________________________________________ 10
Printing_____________________________________________________ IQ
Shoemaking and shoe repairing_____________________
10
Choir and vocal music______________________________________
14
27
Manual training____________________________________________
Tailoring____________________________________________” 10
Mending department. ..._____________________________________
9
Radio shop__________________________________________________
7
Store_______________________________________________
4
Machine shop___________ _
_____
43
Band__________________________________________________________ 65
Work assignments 14____________ _______________________ " “ ~~~ 35
No report as to assignments_________________________________ 46
The management were particularly proud of the machine shop,
which they said rated as the best for schools of this character in the
United States from the point of view of equipment and instruction.
During the first few weeks each boy was required to go through a hard
course of routine work, that was held to put his character to the test.
Each boy had to learn to chip and file and to do his work with a high
degree of accuracy. He then progressed through easy stages to the
more complex operations until he was able to make simple tools. It
was claimed that if a boy had a reasonable amount of aptitude and
applied himself diligently he could learn enough in 8 months so that
he c°idd be placed in a good job in this line outside the institution.
Although the print shop was turning out a great deal of satisfactory
work, the instructor did not consider that he could do more than help
a boy to take the first steps toward trade skill in the 6 to 10 months
that each boy remained in training, as the printing trade requires
7UdSi^°ks c° nsidered to have some training value, to which boys were assigned as follows: Kitchen
work, 17; vegetable room, 10; janitor work, 6; office work, 2.
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FIVE STATE IN STITUTIONS FOR D ELIN QU EN T BOYS
several years’ apprenticeship. The instructor stated that most of
the boys encountered great difficulty because of their very inade
quate educational background. The shop printed forms and reports
of many of the other State institutions and departments, in addition
to doing all the printing for the vocational school. Much of their
work would compare well with commercial products.
One shop housed the classes in mechanical drawing and radio, con
ducted by an instructor who was said to possess unusual ability and
initiative. Boys at work there seemed to be taking great pride m
their achievements and to be finding satisfaction in the production of
useful equipment. They had made radio equipment for the hospital
and all of the cottages.
.
,
It will be noted that this school classed musical work, both vocal
and instrumental, in its vocational department. It was not known,
however, how many boys were able to make any vocational use of
this training after leaving the institution.
The agricultural work was under the direction of a superintendent
who was a practical farmer and achieved a good record of farm produc
tion. The training which the boys assigned to farm work were receiv
ing was probably directly comparable to that which they would get
from working for a successful farmer, with all the good features and
all the limitations as to general and specialized agricultural knowledge
that this would imply. At certain seasons large groups of boys worked
practically as farm laborers, doing work that had little training value
except in the matter of building up work habits. It was believed
that this participation in the production of quantities of food which
all were to enjoy might have some value in establishing a certain satis
faction in group activity and an appreciation of social responsibility.
Maintenance, repair, and construction work
Much of the other “ training” was in effect performing the main
tenance and repair work for the institution, but the administration
sought to have the training features of such work emphasized so far
as was possible. Many of these work assignments necessarily offered
little training except in the general direction of habits of regularity,
reliability, and thoroughness that are requisite in a good worker.
One assignment which was not shown in the list supplied was the
number of boys employed on construction work. In Michigan all
construction of new buildings or remodeling of old ones was done by
the State department of construction, or by a private contractor under
the supervision of this State department. At the Boys’ Vocational
School practically all building had been done by this department with
the use of boy labor. This not only cut costs, but it was also con
sidered that the boys received much good training in construction
work “ on the job.” Boys were said to show genuine interest in tasks
of that description and to regard such assignments as preferable to
much of the shop work. They were just completing the remodeling
of one of the older cottages at the time the institution was visited.
12. P H YSIC A L E D U C A T IO N AN D A T H LE T IC S
The program of physical education and athletics was directed by a
normal-school graduate who had specialized in physical education and
had taught in the public schools and served as athletic coach. Some of
the other officers at the institution who had other duties served part
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BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
71
time as his assistants, as did also the college students who were em
ployed part time. The indoor work was all done in the field house,
the unusual facilities of which have been described earlier in this
report. (See p. 56.) For outdoor activities the cottage playgrounds
and the large athletic field were used.
Physical education
No regular gymnasium classes were scheduled, but the boys in each
cottage were given 15 to 20 minutes of setting-up exercises each morn
ing under the direction of their cottage managers. No particular
corrective work with individuals was undertaken. There was, how
ever, a close relation between the physician and the athletic depart
ment, so that boys with any physical weakness might be watched and
protected from overexertion or from activities of a kind that might
be harmful.
Although no regular gymnasium classes were conducted, the field
house was a beehive of activity every evening. Each evening three
cottage families used it. Three teams from each cottage played!
against each other in the various sports appropriate to the season.
Each cottage had a first, a second, and a third team. The director
sought to make sure that all boys actively participated in games dur
ing the evenings assigned to their cottages at the gymnasium.
Each boy was taught to swim unless he had some physical disability
which rendered it undesirable. Every cottage had one evening at the
pool a week, each evening beiog divided into 3 periods so that the
boys of 3 cottages might use it at once.
In winter when the temperature reached freezing the athletic field
was flooded for ice skating. The school had six tennis courts, but for
some reason tennis was not particularly popular, being considered
something of a “ sissy ” game by the boys. Practically no apparatus
work was undertaken. It was considered too dangerous, ow ing to
the reports that many boys had been injured doing stunts with the
apparatus.
The field house contained showers and dressing rooms. Habits of
cleanliness and personal hygiene were taught in connection with the
gymnasium and athletic program, though not through any formal
methods.
J
Sports program
A very lively athletic program was carried on throughout the year
mdoors m winter and outdoors whenever the weather permitted!
hootbali was said to be the most popular branch of athletics so far
as the school as a whole was concerned.
a
V 0ACati°-n a i“scl1001 footba11 team belonged to the Michigan
Athletic Association and played a regular schedule with high-school
teams. To be eligible for the school team the boys were required to
have a B average throughout their .school work. There were no
cottage football teams, although all cottages had footballs for play
on their own cottage grounds.
* J
In basket ball there was a large organization for intramural com
petition, with 79 teams organized into what was practically 10 leagues.
I he winning team m each league was presented with a banner or
token which became the permanent possession of the cottage. The
best players won a place on the school team, which was scheduled for
14 games with outside teams. The field house had an excellent
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72
f iv e
state
in s t it u t io n s
for
d e l in q u e n t
boys
basket-ball court with ample space to accommodate spectators. It
was often used for tournaments and contests not only of local but also
of State-wide importance. Three-fourths of the scheduled games with
outside teams were played on this court, and all boys attended.
In baseball there was also an extensive intramural seasonal com
petition, with 42 teams constituting 6 leagues. The winning team in
each league was presented with a trophy donated by the baseball
manufacturers.
.
,
,
Considerable attention was given to track events. An annual track
meet was held on the Fourth of July.
Military training
In accordance with the legal requirement that all the boys at the
school “ be formed into a cadet corps ” ,15military traimng of a modified
type was being given to ah the boys. When the weather permitted,
the boys of each cottage were given 15 mmutes of drill daily by their
cottage managers, who were under the general supervision of the
athletic director in regard to this matter. Some of the cadet officers
of the cottage companies served as cottage monitors for the groups.
The smaller boys drilled with wooden model guns, the older ones
with dismantled rifles. Competitive drills were held each year on
Memorial Day and on July Fourth.
The superintendent gave great credit to the athletic director, the
facilities at the field house, and the busy program of athletic activities
for minimizing disciplinary problems at the school. He was con
vinced that these normal outlets for bottled-up physical and mental
energy and the opportunities for rough-and-tumble play were vitally
necessary for the boys’ mental and emotional development as well as
for their physical growth.
13. O T H E R R E C R E ATIO N AL A N D ED U C A T IO N A L A C TIV ITIES
Although the major emphasis in recreation at this school was on
athletics, certain other recreational activities were going on all the
time, though not under any specialized supervision or direction.
Considerable prominence had been given to hand training. The
band instructor was experienced in instruction and in band leadersUp It was stated that be often accepted boys who wished to try
for the band but who had never had any musical training whatever,
and usually he could gradually bring them to the point where they
mold take part in the institution’s band work. The first band conT t e d of aP7?-pTece organization. Usually about 100 boys were
competing for places on it. The school had been able to send the
ban ? to the national competitive meets regular^ for the past few
years. It won the national championship at Denver m 1929 and
second place in 1930 and 1931; 83 bands competed m 1931. The
superintendent expressed great pride in the band.
,
The teacher of vocal music directed a boy choir. She also had
developed a group of singers who were able to put on very creditable
concert p rogfam i Both the band and the chorus were said to be in
great demand for entertainments .in Lansing andl nearby cities and
they were permitted to do a certain amount of that kind of work.
Michigan, Com p. Laws 1929, soc. 7815.
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BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
73
Radio
Each cottage living room had a radio which had been made in the
radio shop at the vocational school. The programs were not centrally
controlled, supervision being left to the cottage personnel. The
hospital had also been equipped with radios so that boys who were
ill could have the benefit of the programs.
In addition to the radio each cottage had a phonograph which had
not entirely lost its popularity.
Dramatics
There was no particular emphasis on dramatics at this school, as
no staff member had much time to devote to such work. Special
programs were usually developed for the various holidays. These
programs were supervised by the music teacher.
Motion pictures
The school had recently obtained apparatus for showing talking
pictures. A motion picture was shown each week on Sunday morning
following the Sunday-school hour. The films were provided without
charge by a film exchange in Detroit. The superintendent stated
that one of the women employees in the office of this exchange was
very much interested in the school and assumed personal responsi
bility for selecting the films. He rated her judgment as to suitable
pictures as excellent. The weekly film was attended by all boys
except those deprived of the privilege for disciplinary reasons.
Reading
The institution library was housed in a beautiful room on the first
floor of the new school building. The walls were a pleasant tan
and cream, the hardwood floor was nicely polished, and colorful
cretonne curtains were at the windows and potted flowers were on
the tables. The room was in charge of a woman librarian who also
did some of the school office work and served as substitute teacher,
secretary to the principal, and cottage matron.
The library contained about 3,500 volumes, all catalogued. It sent
25 to 30 books to each cottage once a month. The books were
carefully selected with reference to the type of boys at each cottage.
At the end of the month the books were returned and a different
set issued. The library was constantly used for reference work in
connection with classroom instruction. Certain periodicals were sent
to each cottage regularly. Among these were magazines dealing with
popular mechanics, outdoor life, and current events, and a few news
papers of serious type.
Boy Scout work
. This school had one Boy Scout troop, composed of boys from the
different cottages who had expressed a desire to become Scouts. The
scoutmaster was one of the college students whom the school employed.
The Scout troop took one long hike each year.
14. R E LIG IO U S IN S T R U C T IO N
“ Recognizing that the moral well-being of the youth cannot be con
served without due attention to the Bible” ,16 the school had arranged
for close attention to religious education, taking care that there
*• Boys Vocational School, Lansing, M ich, (souvenir booklet), p. 13.
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74
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
should be no sectarianism in the teaching and that family preferences
should be scrupulously respected.
A resident Protestant chaplain was at the service of boys from
Protestant families. He conducted Sunday school for them every
Sunday morning. The Sunday-school group did not break up into
small classes, but all boys had quarterlies and were expected to pre
pare their Sunday-school lessons. Instruction included the require
ment that each boy commit to memory the Ten Commandments, the
Lord’s Prayer, the Beatitudes, certain psalms, and other outstanding
scriptural passages.
On Sunday afternoon the entire school population attended strictly
nonsectarian services in the auditorium. Visiting ministers of various
denominations addressed the boys on these occasions. The boys’
choir furnished the music.
The spiritual needs of boys from Catholic families were attended
by the pastor of the Church of the Resurrection in Lansing, employed
on a part-time basis by the school. While the Protestant boys at
tended their Sunday school each Sunday morning, the Catholic priest
conducted Mass and gave instruction to Catholic boys.
There were too few Jewish boys to warrant the making of any
special provision for religious instruction through group services.
Every effort was made to meet their needs through occasional visits
from members of their own faith.
The full-time chaplain spent a great deal of time with the new
boys in the receiving cottage. He sought to establish a friendly,
personal relationship with each boy and to gain his confidence. The
chaplain also spent much time with boys in the hospital and main
tained close contact with boys worried because of sickness or other
troubles in their homes. When a boy was about to be paroled the
chaplain wrote to a pastor or to some religious organization in the
boy’s home town, asking that every effort be made to assist the boy
to make the necessary adjustment. He reported that in his opinion
the cooperation given by the ministers in the home communities
usually was good. This chaplain was the officer who took all parolees
to their trains or busses and gave the last words of advice to them when
they left the institution.
15.
C R ED IT S Y S T E M A N D D ISC IP L IN A R Y M E A S U R E S
Credit system
This school did not have a formal merit or credit system. It had
a grading system by which each cottage manager graded every boy
under his care daily with respect to behavior and effort. The symbols
used were A, B, C, D, and X . At the end of the month each teacher
and shop instructor reported to the cottage manager the grades of
each boy under his supervision. The cottage manager then combined
their three ratings into an average rating which became the boy’s
monthly grade. These grades then formed a basis for deciding what
progress a boy was making toward satisfactory adjustment.
Disciplinary measures
The system for meeting disciplinary problems at this institution
was rather loosely knit. The superintendent followed the policy of
vesting considerable authority for discipline in his cottage managers.
He expected his cottage managers, as he phrased it, to “ use their
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Federal Reserve Bank of St. Louis
B O YS’ VOCATIONAL SCHOOL, LAN SIN G , MICH.
75
heads ” on these problems. His attitude was that if a cottage manager
came into serious conflict of any kind with an individual boy, it was
usually the cottage manager’s fault. He contended that it was the
managers’ duty to study and understand the personalities of their
individual boys so as to be able to manage them with relatively little
friction. In his opinion the key to successful management was
getting the right type of cottage personnel. When exceptionally
serious problems of discipline arose, the cottage manager referred the
case to the superintendent.
The primary disciplinary measure was deprivation of privileges.
Boys might be denied attendance at motion pictures or other enter
tainments and might be forbidden to participate in play or games of
any kind, either on their cottage playgrounds or at the field house.
There was no fining. Once a boy’s monthly rating had been estab
lished, it remained permanently at that point. No curtailment of
food was permitted. Cottage managers were allowed to place boys
“ on line” for limited periods and might require them to drill while
others played.
Until early in 1931, use was made of a disciplinary cottage. This
was discontinued because the space formerly used for that purpose
had to be taken for a regular cottage unit while one of the old buildings
was being remodeled. The superintendent stated that they had gotten
along so well without a segregation unit that he doubted if he would
ever reinstate it. He felt that when there was such a disciplinary
unit the cottage managers formed a habit of depending too much on
it when they could really solve individual disciplinary problems much
more satisfactorily within their own units if they would work hard
enough at it. He was of the opinion that a disciplinary unit provided
cottage managers with too easy a way out of a difficult situation. In
the case of a few persistent runaways, return to the receiving cottage,
where closer supervision could be given, was resorted to.
There were no details to hard work for disciplinary purposes.
According to the superintendent’s statement, that was no particular
punishment for some of his boys, as a number of them did not care
to do anything else, because they did not wish to “ use their heads.”
In other words, rough manual labor under a “ boss” was the extent
of their ambition.
N o corporal punishment of any kind for any reason was permitted.
Any breaking of that rule, if detected, resulted in quick action against
the offending staff member by the superintendent.
A very definite impression was gained that discipline was thoroughly
individualized. Circumstances, the boy’s personality, his emotional
state at the time of the misconduct, and other related facts were
taken into consideration in dealing with each problem of major mis
conduct that was referred to the superintendent. He appeared to be
attempting to inculcate in his cottage personnel the same attitudes
toward disciplinary action in minor cases.
There was no clear-cut scale of offenses on the basis of relative
importance. Probably active insubordination would here be rated
as the most serious offense. Boys who escaped on the first attempt
were usually talked to by the superintendent and then sent right back
to their home cottages. Persistent runaways were required to return
to the receiving cottage because they could be watched more easily
there. Sex offenders were carefully watched and every effort made
76870— 35------ 6
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
to prevent incidents of that kind. Smoking was not permitted.
The fire hazard was the primary reason, and this was carefully
explained to the boys. Whenever discipline had to be meted out
because of smoking, it was this fire hazard that was impressed upon
the boy as the reason and an effort was made to have him see how he
was endangering others by his violation of that regulation. The su
perintendent expressed great impatience with relatives w;ho, although
they knew the rules of the institution, persisted in giving the boys
tobacco. Whenever an instance of that kind was discovered the
offending relative had his visiting privilege cut off at once.
16.
IN S T IT U T IO N R E C O R D S
The record system kept by the administrative office at this school
consisted of a card file, which contained most of the record data, and
a case folder for each boy, in which were kept correspondence and
miscellaneous information. For the boys on parole, copies of reports
of the home investigation preceding parole and any visits by the
supervisors from the State welfare department were filed in the
case folder. Reports relating to parole were on special blanks. The
commitment papers were filed separately in the vault. Records of
-medical care were kept by the hospital and records of school work by
the education department.
The system did not include any case records organized along the
lines of case-work procedure or chronological history. The card file
(5 by 8 cards) included all the identifying face-sheet information about
the boy and his parents; brief statements regarding previous history;
monthly conduct grades while in the institution; list of any physical
defects; results of mental tests, if given; record of escapes; record of
placement on parole with address, dates of parole and return, and
reasons, if applicable; date of discharge. Cards of three colors were
used, white for first commitment, blue for first return, and red for
boys returned more than once. The cases of boys in the institution,
on parole, and discharged were filed separately, both in the card file
and in the file containing the case folders.
Except in special cases and in the cases of boys committed from
Kent and Wayne Counties (which have special facilities in their
juvenile courts), the social data about the boys received by the institu
tion were very meager. The information entered on the card file
concerning the family and previous records was secured largely from
the boy himself in the interview by the school secretary shortly after
admission.
The results of the physical examination given upon entrance were
recorded on a medical blank and filed in the hospital office. Fairly
full hospital and follow-up examination records were kept for individ
ual cases.
The permanent record of each boy’s academic schooling while in
the institution was kept by the education department and filed in
the principal’s office. Monthly report cards and a master sheet
showing grades and progress constituted the record forms used.
A “ chart for defective child” was kept for each boy in the special
class, and forms were furnished for use by teachers wishing to transfer
boys from the grades to the special class.
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BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
77
No detailed records were kept showing a boy’s progress in his trade
or vocational training, nor were individual records kept by the
physical-education department. A small card file (3 by 5 cards) in
the same color scheme as in the larger file was used for recording
chronologically the boy’s assignments to trade and work and indicating
his school grade. These were filed in his case folder when he left the
institution.
Forms were supplied by the State welfare department for reports
on home investigations, placements, transfers on parole, returns, and
supervisory visits. Copies of these were sent to the department, and
one was kept with the institution records.
17. PAR O LE A N D D IS C H A R G E
The provisions relating to parole, discharge, and parole supervision
at this school differed from those in any of the other institutions
studied. As has been stated, commitments were for a definite
period— until the boy became 17 years of age if he had been under 16
when committed, or until 18 if he had been 16 years old at commit
ment. Boys might be paroled by the superintendent, under the
authority of the State corrections commission, before they reached
the age for discharge. (See p. 53.) These provisions resulted in
long parole periods for the boys who were under 15 at time of commit
ment, and short parole periods for the group 16 or older. Some
courts did not commit to 18 years, and in such cases the boys 16 at
time of commitment might reach their seventeenth birthday before
being paroled. Frequently boys returned for parole violations were
discharged directly from the institution, since discharge, whether from
parole or from the institution, was automatic upon the boy’s reaching
the age specified in the court commitment (either 17 or 18 years).
There was no parole supervision in the administrative program of
the institution. All the parole work was done by the State welfare
department through its State supervisors and its county welfare
agents. As a matter of fact, no staff was engaged in parole super
vision exclusively, as both the State supervisors and the county welfare
agents had many other duties.
The county welfare agents in counties of less than 150,000 inhabi
tants were only part-time workers, paid on a per diem basis ($5 a day)
while actually on duty. Counties of 150,000 or more could employ
full-time agents on salary. At the time of this study only 3 counties
had full-time agents and 80 had part-time agents. Among their other
duties were investigations for and supervision of placements from the
State Public School (an institution for dependents at Coldwater,
M ich.); in many counties they served as probation officers for the
courts and supervised mothers’ aid. In most cases they were the
only paid social workers in the county. Except for full-time agents,
no special qualifications were required. Many of the county welfare
agents were actively engaged in other occupations; some had retired
from business or were occupied mainly in political activities. Some
were so old that the value of their services was questionable; one
interviewed was 90 years of age and several others were found to be
very elderly. In a few instances the education or occupation reported
would indicate no fitness whatever for the work; one was a care
taker for a livery stable who was reported as having about a thirdgrade education.
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The State welfare department had five supervisors for the entire
State. They were expected to visit State wards, including parolees
from the Boys’ Vocational School and the Girls’ Training School and
children placed out from the State Public School. So far as was
discovered, the supervisors’ qualifications did not include any special
training for parole work.
In Wayne and Kent Counties, which contain the cities of Detroit
and Grand Rapids, the county welfare agent and the juvenile court
had an informal agreement whereby the probation department of
the juvenile court accepted responsibility for parole supervision.
Thus in at least two counties an agency engaged primarily in work
with juvenile delinquents was responsible for supervision of boys
paroled from the vocational school. Qualifications based on special
training were required for the members of both of these probation
departments.
Eligibility for parole was determined through the school’s general
grading system. (See p. 74.) It was necessary to have earned
six marks no lower than B to become eligible.
As has been noted, the immediate authority for granting parole
was vested in the superintendent of the institution. Approval of
the State corrections commission, which was required to make his
action valid, was almost invariably given to his recommendations.
Notification of a boy’s readiness for parole was made to the State
welfare department, which then requested that a visit be made to
the boy’s home by the county welfare agent in that county. Report
of this visit was made in duplicate to the department, which sent one
copy to the institution for use in deciding whether the boy should be
returned to his own home. It was difficult to appraise the adequacy
of these investigations. In the few records examined the reports were
brief and did not seem to give sufficient information upon which to
form a judgment as to the fitness of the home. Often the report
was a mere recommendation by the agent, without proper supporting
data.
From the information available it appeared that the supervision or
assistance given to parolees by either the county welfare agents or
the State supervisors was considerably below the standards of regular
parole work. The supervisors were reported as “ usually getting
around” to visit parolees about three times a year. Their reports
of such visits were made in duplicate, one copy for the State welfare
department files and one for the institution that had released the
parolee. The questions on the blank for reporting such visits were
answered very briefly indeed, and few really pertinent data regarding
the boy’s progress were given. These reports frequently did not even
indicate whether the boys had been seen. It was considered the duty
of these State supervisors merely to “ check u p ” on the boys by these
occasional visits. They did not attempt to offer any employment,
school, or recreational adjustment service. The pressure of their
other work was stated to be heavy and the responsibility for helpful
supervision of parolees was left largely to the county welfare agents.
These agents were not required to make detailed reports of their
work to anyone, and it was found that a number of them did not even
keep records for their own use. During the field study for part 2 of
this report (in the summer of 1930) some agents interviewed could
not tell how many boys and girls they had on parole, and one who had
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BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
79
only two boys could not recall their names. It was found that visits
were seldom, if ever/ made to the boys’ homes, the general policy
being to require parolees to report to the agents. Several agents
held office hours at the courthouse on Saturday mornings; if the
boys came in, all right; if not, no effort was made to follow them up.
In a number of the counties the boys who did not live in the same
town as the county welfare agent were expected to report to him by
mail. Several agents excused boys from reporting after a few months.
One agent stated that he did not ask boys to report in person, as it
would take too much of his and the boys’ time ; he further remarked
that the boys were afraid of being returned to the institution and that
this was why they “ succeeded” without close supervision. Another
county agent, who was very busy with welfare investigations, gave
the parolees only perfunctory attention. The parolees, he said, were
a “ nuisance” and he mostly “ let them sink or swim.” On the other
hand, a few county agents stated that they tried to do everything
possible to assist the boys by helping them secure employment and
proper recreational connections.
In Wayne and Kent Counties, where the parolees were under the
supervision of the juvenile-court probation department, it was
reported that the supervision was also largely done by the office
reporting method. However, some home visits were made, and some
assistance was given to parolees in finding employment and making
school adjustments.
The boys were not required to make any written reports to the
vocational school, but the superintendent stated that a considerable
number wrote personal letters to him, and in that manner the insti
tution did hear from a number of its parolees. Foster fathers of
boys placed in farm homes were asked to keep the school informed
o f the boys’ progress, but no regular reporting was required.
Placement of boys on farms, when their own homes were unsuitable
for their return or when they had no home, was customary. A list
o f suitable farm homes was on hand most of the time. The farmers
made personal application to the institution, investigation was made
by the county welfare agent at the request of the State welfare
department, and if the home was found Suitable it was then placed
on the list.
Boys could be returned to the institution for violation of parole
until they became 17 or 18 years of age, as the term of their commit
ment specified. Decision as to what constituted sufficient violation
o f parole to warrant return to the institution was generally made by
the judge of the committing court, with the advice of the county
agent or State supervisor. It was stated that boys were seldom
returned unless they got into serious difficulties involving new offenses.
Michigan has no legal provision for transfer to other correctional
institutions. Therefore, although commitment to another correc
tional institution while on parole technically constituted discharge,
such cases were generally carried on the institution records and not
formally discharged until the boys reached the age limit. In special
cases full discharge might be granted prior to the discharge age. This
most frequently occurred when for some legitimate reason a boy
wished to move to another State before his parole period was com
pleted. Formal discharge papers were issued to the boys by the
institution.
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As has been indicated, there was no real record of the boy’s progress
or of his conduct while on parole. In many instances the institution
was not even notified when a boy on parole was committed to another
correctional institution. The copies of the reports of the visits by
the State supervisors, copies of the home investigations before parole,
and casual letters from the boy to the superintendent constituted the
total of the parole records.
When leaving the school on parole or discharge, each boy received,
in accordance with the law, a complete outfit of new clothes, which
he had been permitted to select himself, transportation to his
destination, and such sum of money, not exceeding $50, as was deemed
necessary for sustenance for a period of 30 days.17 During the year
1932 a total of $2,936 was given to 175 boys who were released. The
amount given to each boy varied from $5 to $40, depending on the
need in each case. The superintendent expressed the belief that this
financial aid in many instances was of great practical help in render
ing the boy independent of his old associates “ long enough for him
to get his feet on the ground.”
Each boy also received a certificate to show that he was rightfully
on parole or “ leave of absence” (the term used officially). Three
express conditions were specified in this certificate as follows:
First: That he lives a correct and moral life and violates no National, State, or
municipal law.
.
. . . .
Second: That his conduct and surroundings be at all times satisfactory to the
State corrections commission.
Third: That he makes a satisfactory report of his residence, and circumstances
in life, either in person or by letter as often as instructed, t o -----------------, county
agent; or, if, for any cause that cannot be done, that he reports directly to the
superintendent of this institution.
For boys returning to Detroit, the certificate specified the juvenile
court as the agency to whom they were to report.
18.
PLA N T AN D P R O G R A M C H A N G E S IN R EC EN T Y EA R S
Of the cases analyzed in part 2 of this report, (see p. 10), 150 were of
boys from the Boys’ Vocational School. These boys had undergone
training in this institution during the years 1919-25, inclusive.
That period was one which saw considerable change taking place in
the institution and in its treatment program.
The State legislature in 1917 had authorized the State board of
control to make arrangements for the removal of the school from its
location in Lansing to a farm, site not far from the city; $100,000 had
been appropriated for the purpose in 1917, and $600,000 in 1919.
After the farm land had been acquired, the struggle began which cul
minated in legislative action canceling the previous plans and author
izing the use of the appropriations for buildings and equipment at the
Lansing site, except for such expenditures as were necessary to make it
possible to carry on a supplementary farm project on the new land.
As a result of this change a very lively building program was going
on at the Lansing campus during the period 1919 to 1925, in which
the boys included in this study were under care. Four new double
cottages were erected. A large industrial building to house several
shops was completed, and the pride of the campus, the field house,
17 Michigan, Com p. Laws 1929, seo. 17826.
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BOYS’ VOCATIONAL SCHOOL, LANSING, MICH.
81
was being built. In the time that had elapsed since the last of this
group was paroled the program of improvement had continued. All
the old cottages had been remodeled, and the new school and hospital
buildings had been erected and occupied.
The following data show some changes in the 10-year interval from
1921 to 1931 (fiscal year ended June 30):
Item
Average number of boys in care
Employees_____________________
Boys per employee____________
Per capita cost________________
600
73
8. 2
$487
708
124
6. 7
$540
Although the school population had increased, the number of em
ployees had increased more rapidly, so that there was a better ratio
between boys and employees. Tins increase in personal service may
have been the cause of the slight increase in per capita cost. In the
report for the biennial period ended June 30, 1920, the superintendent
had stated that the institution was “ badly handicapped by reason of
the fact that it has not been possible to go into the open market to
secure just the right kind of people to handle the boys” , adding that
competent shop supervisors could not be secured because a man who
was really capable was unwilling to take charge of a cottage together
with his shop duties, and it was not possible to pay some men for
cottage work only and others for shop work only.18 Even by 1931
this difficulty had not been entirely overcome.
Overcrowding was undoubtedly a feature of the institutional fife
during this period. Moreover, according to the report quoted in the
preceding paragraph, many of the buildings were in “ a deplorable
state of repair” , the plumbing was antiquated, there were no recrea
tion rooms for the boys, no school building, no gymnasium.
School work was carried on under considerable handicap, with
classrooms scattered about the campus and centralized supervision
difficult. Normal-school graduates were procured whenever possible,
but the report commented that it was difficult to attract the highest
type of teacher to institutional teaching with the salaries payable.
Statements indicated the awareness of the management of the handi
caps under which the teachers worked, special note being taken of the
large classes, and the presence in the regular graded rooms of large
numbers of mentally subnormal boys, who not only could not profit
by the institutional training themselves but also interfered with the
progress of the brighter boys.
The institution had always emphasized industrial work in prepara
tion for self-support on release. But reports indicate that the shops
were handicapped by inadequate quarters and poor equipment, until
the funds appropriated in 1917 permitted the erection of the new
industrial building, the remodeling of the old shop quarters, and the
installation of a great deal of new equipment, including the entire
machine shop which was especially featured in the 1932 program..
18 Biennial Report of the Board of Control of the Industrial School for Boys, Michigan, 1920, p. 6.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
Most of these improvements were made during the last months that
boys studied were at the school or after their release.
The same is true of the development of the extensive athletic pro
gram now so prominent a part of the treatment activities and credited
by the superintendent with greatly reducing disciplinary problems.
The superintendent appointed in 1923 had abolished corporal punish
ment and put a great deal of energy into getting facilities for con
structive activity on the athletic field and in the gymnasium as an
outlet for the natural physical energy and exuberance of healthy
youth.
Parole supervision had not changed to any extent in the 10 years
since the first of the boys in this study were initially released on parole.
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Chapter IV.— STATE H O M E FOR BOYS, JAM ESBURG, N.J.
Early in March 1931 the State Home for Boys at Jamesburg, N.J.,
was visited for the purpose of obtaining descriptive and statistical
material for this report. Except as otherwise indicated, all statements
refer to conditions prevailing at that time.
1. S T A T U T O R Y P R O V IS IO N S G O V E R N IN G E S T A B L IS H M E N T A N D
O P E R A T IO N
The New Jersey State Home for Boys was established in 1865 as
the State Reform School for Juvenile Offenders. From its beginning
it provided care for boys only, and its purpose, as specifically stated
in the law, was their reformation. The Governor of the State, the
chancellor, and the chief justice constituted a board of control, which
was to appoint six suitable persons as trustees or managers of the
institution. This board of trustees was to be generally responsible
for the institution, to see that strict discipline was maintained, to
provide employment, to bind out inmates, to discharge or remand
them, and to have charge of the office personnel. The law further
stated that they should require the boys to be “ instructed in piety and
morality, and in such branches of useful knowledge” as could be
adapted to their age and capacity, “ and in some regular course of
labor, either mechanical, manufacturing, agricultural, or a combi
nation of these, as is best suited to their age, strength, disposition,
and capacity, and in such other arts and trades as may seem best
adapted to secure the reformation, amendment, and future benefit
of the boys. ” The commitment age was between 8 and 16, and boys
could be committed on conviction of an offense which might be
punished by imprisonment other than for life. Specific reference to the
term of commitment was not made in this first law, but it empowered
the trustees to bind boys out as apprentices or servants until they
should become 21 years of age, or for less time. In 1900 a law “ to
establish and regulate the State Home for B oys” changed the name
from State Reform School for Juvenile Offenders to State Home for
Boys. The form of management remained the same until 1918. In
that year a law creating the State department of charities and cor
rections placed general control of the State Home for Boys under the
authority of that department, and in the following year an amendment
which is still in effect established in place of the department of char
ities and corrections a department of institutions and agencies.1
This department is the executive agency of the State board of control.
The board of managers of the State Home for Boys is now appointed
by the State department of institutions and agencies with the approval
of the Governor. The board of managers consists of not less than
five nor more than seven members, at least two of whom paust bo
women. This board, with the approval of the State department,
appoints the chief executive (superintendent) of the institution.2
1 N ew Jersey, Laws of 1865, p. 886; Laws of 1900, eh. 93; Laws of 1918, ch. 147; Laws of 1919, ch. 97.
J N ew Jersey, Cum . Supp. 1924, secs. 34-53, 34-55.
83
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
The age limits for commitment remained the same, boys over 8
and under 16 years. Under the present statutes boys may be com
mitted until they reach the age of 21, unless the detention is termi
nated earlier by the board of managers, in accordance with rules and
regulations formally adopted. Placement on parole after a period
in the institution is authorized. Indenture or binding out to service
is. not permitted, but under the parole system a boy may be placed
in a home other than his own if this is thought to be for his best
interest.3
,
Payment for care of boys by the parents was authorized m the
1900 law as follows: “ Every boy committed * * * shall be
personally liable for his own maintenance and all necessary expenses
incurred therein on his behalf) and the parent, guardian, or relative
who would have been bound by law to provide for and support him
if he had not been sent to the said home shall be liable to pay for such
maintenance and necessary expenses.” 4 The board of trustees was
authorized to remit all or part of such liability or to sue in the name
of the superintendent in case of failure to pay. Under the present
law it is the duty of the judge at the time of examination to inquire in
to the ability of the parent or guardian to pay the expenses of com
mitment proceedings and the boy’s board) and his findings, with the
amount ordered, are to be endorsed on the warrant of commitment.5
2.
T H E P H Y S IC A L P LA N T
Location
The State Home for Boys had a rural setting, 2 miles from the
village of Jamesburg and about 27 miles from the capital city of
Trenton. Jamesburg was accessible on a branch of the Pennsylvania
Railroad from Trenton and also from northern New Jersey. There
was bus service to New Brunswick, 15 miles distant. Although not
on a main highway, the institution was readily reached by several
Automobile routes.
There was a brick archway at the immediate entrance to the grounds,
but no fence or wall. The buildings and surrounding grounds were
about a mile back from the main road and grouped around a series
•of quadrangles. Each building was, however, separate. Well-caredfor lawns, with many large shade trees and flower beds in season,
surrounded the buildings.
Acreage
The institution was situated on rolling farm land with thinly
wooded areas. The school campus was on land slightly higher than
the immediately surrounding area. The land owned by the institution
was quite extensive, a total of 889 acres. About 150 acres were used
for the buildings, lawns and roads, athletic and drill field, and play
grounds for the cottages. All but about 150 acres of the farm was
under cultivation; some 75 acres were in pasture and 75 were waste
land. About 489 acres were given over to the raising of general farm
products, 50 to truck gardening, and 50 to orchards and berry patches.
Administrative offices
The first building at this institution was erected in 1866, and in
this were the administrative offices. It was a large, 3-story, darks Ibid., sees. 34-141, 34-146, 34-147, 34-148.
4 New Jersey, Laws of 1900, ch. 93.
• New Jersey, Cum. Supp. 1924, sec. 34^144.
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STATE HOME FOR BOYS, JAMESBURG, N.J.
85
red brick building, of old-style architectural design. The offices,
which included those of the superintendent, assistant to the superin
tendent, psychologist, parole secretary, business administration, and
food supervisor, were on the first floor. In the basement were rooms
that could be used by the boys when they received visitors, also a
club room for the men staff members. The second and third floors
were used for staff residence quarters.
Boys’ residence quarters
Nine single and two double cottages were in use, and three more
single cottages were under construction. Four of the older cottages
still in use dated as far back as the period 1871 to 1879; of the other
two (double) cottages one was erected in 1906 and the other in 1913.
All these old cottages were of dark-red brick, square in shape, three
stories in height. Their use was being discontinued as fast as new
cottages became available.
The new cottages were a light-red brick, semicolonial in style, and
only two stories in height. They were all of similar design and fitted
in with the general style of architecture used in the entire recent
building program.
All provision for sleeping quarters was on the dormitory plan. The
dormitories in the cottages visited, both old and new, were well
equipped as to beds, bedding, and sanitary facilities. Lighting and
ventilation were satisfactory, although the dormitories were all quite
crowded, 30 to 50 boys sleeping in each.
Meals were prepared and served in a central kitchen and dining
room ; hence the cottages did not have dining rooms or kitchen facili
ties, except that one of the cottages built in 1930 had a dining room
and a service pantry, the plan being to use this as an honor cottage for
boys about to be paroled, these boys to eat in their cottage.
Owing to their newness and the modern style of the building, the
living rooms in the recently erected cottages appeared more attractive
than those in the old ones, but all were comfortably furnished with
chairs and small tables, books and games. All had pretty colored
curtains, attractive posters and pictures, and the atmosphere created
was that of a “ homey ” living room where the boys might enjoy their
leisure. Each new cottage had a room for rough play in the basement.
Sanitary facilities were modern and adequate in all cottages. The
shower and wash rooms were in the basement as a rule.
Segregation cottage
This cottage is described separately from the boys’ residence quar
ters because it was designed for special treatment in connection
with the disciplinary program at the institution. This cottage,
situated about one-half mile away from all the other buildings, was
a small, square, 1-story building of brick and steel construction.
Inside were 16 individual cells, constructed of heavy wire mesh, with
glass front. They all faced a central court or room in the center of the
building. Boys regarded as difficult cases were locked in the cells at
night, others slept dormitory-fashion in the open space in the center
of the room. The small dining room in this cottage was very plain
and bare, with long tables and benches as the only furniture. There
were adequate sanitary provisions, which included shower baths.
The supervisor and matron had living quarters in the cottage.
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Hamlet
The hamlet, one of the very special features in the institutional
program, was about 2 miles from the institution proper. This was a
small unit to provide special treatment for problem and psychopathic
boys. Though details with regard to the hamlet are given elsewhere
(see p. 117), some brief mention of it seems fitting in connection
with description of the physical plant. It had a 1-story frame
building of bungalow type intended for only a small group at any one
time. Sleeping quarters were in a dormitory room comprising one
wing of the house. A large room in the other wing served as dining
and living room combined. The officer and matron in charge had
their rooms in the house also. The hamlet contained a small church,
theater, and even a store and post office. These had been entirely
constructed by the boys and were built from odds and ends of mate
rials. There were also a few small sheds and a poultry house and yard.
Landscaping had been done by the boys. Artistic log bridges were
built over the small stream that ran through the grounds.
Staff residence quarters
The rural location necessitated that practically all of the employees
be housed at the institution. A few who were residents of Jamesburg
lived there.
The superintendent’s residence was an attractive tile and frame
house, built in 1920. It was situated on the entrance drive, about half
way between the entrance archway and the administration building.
A building containing five attractive apartments furnished living
quarters for the assistant to the superintendent, the business manager,
the director of education, the director of department of cottages and
discipline, and the secretary to the superintendent. Some of the old
cottages formerly occupied by boys had been remodeled into 2- and
3-room apartments for staff members. Other facilities were provided
in single rooms and small apartments in various buildings, including
the second and third floors of the administration building, the third
floor of the old dining room, and the third floors of some of the old
cottages.
All available space was being used to provide staff housing. The
building program in progress included four single cottages and a build
ing with apartments for 22 single men. With completion of these
additional facilities, it was thought that provision for staff residence
would be quite adequate.
Dining-room and kitchen facilities
In January 1932 the new refectory was completed. This building,
of semicolonial style, in light-red brick, contained the central kitchen,
the bake shop, and the boys’ and officers’ dining rooms. It was cen
trally situated, close to the administration building. The dining
rooms were pleasant, with good lighting and ventilation. The walls
were tiled in a soft tan with a rose tint, the windows were attractively
curtained, and the entire atmosphere was one of good cheer. Although
both dining rooms were equipped for cafeteria service, this method of
service was not being used. In the boys’ dining room the service was
at tables seating eight boys each and supplied with white table linen
and china dishes. In the officers’ dining room, except for one table
seating eight, small tables for four were used.
The kitchen and bake shop had excellent equipment, including
cookers, electric stoves, dishwashers, and other labor-saving appli
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STATE HOME FOR BOYS, JAMESBURG, N.J.
87
ances. The equipment in the bake shop was all electrical, including
the two large ovens. The wall decoration was the same throughout
the building, a soft shade of tan tile with a rose tint. The floor in the
kitchen and bakery was a red composition, easily kept clean.
Chapel and assembly hall
At this institution the chapel and assembly hall were entirely
separate. The chapel was one of the old buildings (erected in 1898)
on the main drive as one entered the grounds and in the first group
o f buildings from this approach. The building was of dark-red brick,
resembling a small rural church. Seating capacity was limited, but
as the services for Protestant colored boys, Protestant white boys,
and Catholic boys were held at different times it was adequate for
these three groups separately.
All affairs which the entire institution population attended were
held in the assembly hall, which was in the school building. This
had adequate seating capacity for the inmates, staff, and a few guests.
Hospital
Another of the older buildings still in use was the hospital. In
comparison with the plans for a new hospital which showed a proposed
capacity of 90 beds, the one in use at time of this study seemed inade
quate with its bed capacity of only 18. There were 2 wards with 8 beds
each and 2 single rooms. There was an operating room, fully equipped
to perform major operations, and a well-equipped dental office. A
large wing added in 1920 was being used as the receiving cottage.
About this time the hospital itself had been remodeled and the operat
ing room added. Although housed in an old building, making general
upkeep more difficult, the hospital was kept in excellent shape. Wall
decorations were cheery and everything was in good repair. Equip
ment was modern and adequate.
School building
The school building, at the opposite end of the campus from the
administration building, was three stories high and was constructed
of red brick. It had been erected in 1911. In this building, besides
the regular classrooms, were a number of the vocational shops, classrooms for special activities, school library, gymnasium, and auditorium.
The classrooms were of ample size, well lighted and ventilated.
Tables and chairs, rather than the old-fashioned desks, were used in
all classrooms. The library room was well arranged, cheerful, and
attractive. Classrooms for special activities included those for clay
modeling, art, drafting, dramatics, band, and special classes in hand
work.
Shops
As vocational and manual education were a part of the general
department of education, a number of the shops were centralized in
the school building along with the classrooms for academic work and
extracurricular activities. These shops included printing, woodwork
' s » automobile mechanics, tailoring, manual training, and shoe shops.
All these shop rooms were adequately equipped, and lighting and
ventilation were good.
In addition to the shops quartered in the school building, the
masonry, paint, steam-fitting, electric, plumbing, machine, carpen-
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
ter, and blacksmith shops were in various buildings.
separate central shop building.
There was no
Farm buildings
Fifteen farm buildings, including various small sheds, were within
a short distance from the main institution grounds. There were
no outstanding special features in connection with the farm units.
Two of the barns and a poultry plant were among the buildings
recently completed in the building program under progress. Farm
equipment included up-to-date machinery such as was necessary to
do modern farming.
Gymnasium and athletic field
The gymnasium was on the ground floor in the right wing of the
school building. It had a floor space 45 by 90 feet and was equipped
with a fair amount of apparatus for gymnastic work. It had a
dressing room with showers, a store room for equipment, and an office
for the director of physical education.
Although there was a small balcony in the middle of one side of the
gymnasium, even with this space there was room for only part of the
boys at a time to attend games and athletic contests held there.
The athletic field was directly back of the school building. It had
a quarter-mile track and two baseball diamonds, one of regulation size
and one slightly smaller for the younger boys. Each cottage had a
playground used by the respective cottage boys during their leisure
hours when weather permitted. These playgrounds each had basket
ball standards; and equipment was provided for outdoor games,
including basket ball and baseball.
3.
PLA N T VAL U A T IO N A N D O P E R A T IN G E X P E N S E
The plant valuation of the State Home for Boys was as follows:
Lands__________________-_______________ $145,171.40
Buildings___________________ ____________ 1) 521, 946. 00
Equipment______________________________
90, 000. 00
Total_____________________________ 1,757,117.40
This valuation allowed for no depreciation on buildings. The
figures represented the total expenditures made by the State for the
purposes specified. The business office stated that the valuation on
buildings as here given was probably about 20 to 25 percent above
the insurance valuation. The following figures were supplied to show
the cost of operation for the institution for the year ended June 30,
1931:
Salaries__________________________________ $171, 758. 56
Maintenance and supplies------------------------------ 149, 358. 85
Current repairs____________________________ 12, 954. 26
Miscellaneous_____________________________
13, 475. 77
Total_________________ ____ ________
347,547.44
As the average daily population was 625, the average per capita
cost (cost per inmate) was $556.07. This per capita cost was figured
on a net basis, the maintenance and supply item having had $57,259.12
deducted as representing the value of farm products consumed and
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Federal Reserve Bank of St. Louis
STATE HOME FOR BOYS, JAMESBURG, N.J.
89
charged in the statement of gross expenditures. In other words, this
figure represented the cost per boy without reference to goods produced
and consumed.
4.
A D M IN IS T R A T IV E C O N T R O L , STA FF O R G A N IZ A T IO N A N D
P E R SO N N E L
Administrative control
The New Jersey State Home for Boys was administered by the State
department of institutions and agencies under the general supervision
of the State board of control. (See p. 83.) The State board of
control consisted of 9 members who were to be appointed by the
Governor. These appointments required the approval of the senate.
Board members were not paid and the board was nonpartisan. The
board met at regular intervals and board meetings were well attended.
The executive officer for the board was the commissioner of institu
tions and agencies, who was in direct charge of the administration of
the department of institutions and agencies.
The State Home for Boys had a local board of managers consisting
of seven members appointed by the State department of institutions
and agencies, with the approval of the Governor, for 3-year terms.
On them rested the responsibility for actually running the institution,
their executive officer for that purpose being the superintendent.
It was said that they actually did mold policies and exercise adminis
trative control, subject always to the approval of the State board
of control. They met monthly at the institution, meetings were
well attended, and the superintendent stated that all members were
actively interested in the treatment program and that each gave a
great deal of support to the school.
The institution maintained very close cooperative relations with
several other State departments. The State board of education was
often consulted on problems in its field and acted frequently in an
advisory capacity. The State department of health had general con
trol over sanitary conditions and hospital practice. It made inspec
tions periodically and was notified immediately on discovery of the
presence of any epidemic or contagious disease. Representatives
of the State department of agriculture were said to visit the institu
tion frequently and to give extremely helpful advice, especially in
the field of animal husbandry.
Personnel: Number and duties
This institution had 172 employees, of whom 4 gave part-time
service, these being the 3 chaplains and the organist for church
services.
The pay roll listed the following positions at the time the school
was visited:
Superintendent______________
1
Assistant to the superintendent__ 1
Secretary to the superintendent__
1
Business manager____________
1
Clerical workers_____________ 13
1
Director of education 6________
Elementary teachers__________ 9
Manual-arts and manual-training
teachers_________________
4
Vocational instructors 7________ 12
• A t this institution the director of education has charge of academic work, manual-training courses, and
vocational instruction.
7It is difficult to draw the line between employees definitely giving vocational instruction and those
directing work without specific instructional features. In this particular pay-roll group has been included
these officers: Automobile-mechanics instructor, blacksmith, carpenters (3), electrician, mason, painter,
plumber, printer, shoemaker, and tailor.
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Federal Reserve Bank of St. Louis
90
FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
Director of physical education---Supervisor of cottages------------Cottage masters_____________
Cottage matrons____________
Assistant cottage masters--------Night sergeant---------------------Watchmen_________________
Housekeeping officers-------------Resident physician----------------Resident dentist_____________
Nurses-------------Laboratory technician------------Orderly------------------------------
1
1
16
16
16
1
18
7
1
1
3
1
1
Assistant psychologist------------1
Library clerk----------------------1
3
Chaplains (part-time)------------Scout executive_____________
1
Maintenance foreman-------------- 1
Farmer____________________ 1
Assistant farmer------------1
Farm officers 8---------------------- H
Engineer---------------------------1
Other mechanics and laborers 9— 10
Supervisor of food----------------- 1
Kitchen and dining-room officers- 7
Other employees 10----------------- 7
Some additional service was given to this institution in connection
with the work of its psychological dime by members of the State men
tal-hygiene division, which assigned one psychologist full time to the
State Home for Boys, and a psychiatrist one day a week to the mstitution.
.
,
Further services of a wholly volunteer character were given by mem
bers of the faculty and student body of Princeton University, largely
in connection with the program for religious instruction. (See p . 118.)
The absence of any parole personnel will be noted. Parole service
for all institutions in the State of New Jersey was given by the staff
of the State parole bureau. (See p. 124.)
Personnel: Salaries
The salary scale at this institution ranged from $480 to $7,000.
Salaries for certain specified positions were as follows:
Superintendent___________ $7, 000
Assistant to the superintend
ent__________________ 2,500
Business manager-------------- 3, 000
Resident physician________ 3, 000
Nurses_________________ 1>200
Director of education---------- 2, 580
Teachers___________ 1, 080-1, 440
Manual-training in
structors_________ 1, 200-1, 500
Vocational instructors.. $1, 080-1, 680
Director of physical
education________
1, 200
Supervisor of cottages__
1, 980
840-1, 380
Cottage masters_____
Cottage matrons_____
480— 660
Assistant cottage mas
ters_____________
840— 960
840-1, 560
Clerical workers_____
All but two of the full-time employees received maintenance in
addition to salaries. A few received meals only.
Personnel : Appointments and removals
All positions except that of the superintendent and secretary to the
superintendent were subject to civil-service regulations; 78 employees
were rated as of competitive and 92 of noncompetitive civil-service
status. The superintendent was appointed by the local board of
managers, subject to the approval of the State board of control. Full
responsibility for appointing and removing employees rested on the
board of managers, but in practice that board left the superintendent
quite free to exercise his own initiative in connection with appoint
ments and removals of all other employees, with due observance of
civil-service regulations.
8These include 6 general farm
officers, 1 dairy officer, 1 truck gardener, 1 poultrym an, 1 florist, and 1
• This'group includes 1 steam fitter, 1 ice-plant operator, 3 “ firemen and helper” , 3 assistant enginemen,
io This group includes 1 organist (part-time), 1 “ charge attendent” , 2 relief officers, 2 sewing-machine
operators, and 1 school janitor.
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Federal Reserve Bank of St. Louis
STATE HOME FOR BO YS, JAMESBURG, N .J .
yi
Personnel: Terms of service
The superintendent in charge when the institution was visited had
been continuously in office since M ay 1927. He also had served in
the same capacity some years previously— as acting superintendent
for a short period in 1919 and then as superintendent from 1920 to
1923. Information was available as to the terms of service for the
168 full-time employees, as follows:
Less than 1 year_____________ 44 4 years, less than 5___________
1 year, less than 2___________ 16 5 to 9 years________________
2 years, less than 3___________ 20 10 years or more__ __________
3 years, less than 4___________ 12 Not reported,_______________
13
32
30
1
Personnel : Qualifications
A. certain amount of detailed information as to the education and
prior experience of employees was available. The staff at this school
had academic degrees as follows: One Ph.D., 1 M .D ., 1 M.S., 1 M .A.,
4 B.A., and 6 B.S. degrees. One staff member was w o r k i n g toward
an M .A .; 14 had spent some time at a college or university but had
not jret completed the work for a degree. The value of professional
training and experience was clearly recognized by the administration,
and staff members were encouraged to continue their educational work.
The superintendent was primarily an educator. His educational
background included training at three normal schools and at Columbia
University, and his experience included teaching in both grammar and
high schools and administrative work as school principal. He had
served as superintendent of schools in Auburn Prison, as superintend
ent of a George junior republic, and as superintendent of the Preston
School of Industry in California. He had spent some time as acting
warden at Sing Sing and as warden in the Westchester County peni
tentiary in New York. He had also served a short term as director
o f education and parole in the State offices at Trenton, His thorough
acquaintance with theory and practice in the field of correctional
work was recognized in many parts of the country, and he had often
been called on to help make special surveys and reports on conditions
in correctional institutions in cities and States. His experience and
his ability were recognized by his coworkers in that field in their choice
of him to hold important positions in the American Prison Conference
and the National Conference of Juvenile Agencies.
The assistant to the superintendent had a Ph.D. degree. He had
studied in the University of Chicago, Columbia University, Harvard
University, and the University of Pennsylvania. His public-school
experience included^ not only ^teaching in both country and city
schools but also service as principal of city public schools and as direc
tor m special schools of various kinds, including continuation schools.
He had given courses in psychology at New York University and had
served as first assistant director of education and parole in the State
offices.
The director of education held the degrees of B.S. and M .A., the
latter from Columbia University. He had had 10 years’ experience
as school principal in New York and New Jersey and had done
government educational work during the World War. In addition
to his academic work he had taken training in carpentry, electrical
work, and machine work and had served as instructor in those trades.
He had had 6 years’ experience as director of vocational education in
public-school systems.
76870— 35------ 7
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Federal Reserve Bank of St. Louis
92
FIVE STATE INSTITU TIO N S FOR D ELIN QU EN T BOYS
Among the teachers were 3 with B.A. and 2 with B.S. degrees.
Three were graduates of normal schools or teachers’ colleges, others
had taken many special courses in educational work at normal schools,
colleges, and universities.
There was less specific information available as to the educational
background of cottage personnel. However, among both cottage
masters and cottage matrons a considerable number were reported to
have a high-school education, and some had spent some time m college.
One cottage master held a B.A. degree in agriculture from the Univer
sity of Minnesota. One of the assistant cottage masters held a B a5.
degree from the University of Illinois. As to prior experience, the
usual diversity of background was clearly apparent here. Among the
cottage masters were men with experience in the Army and m the
Navy, in office work, and in various occupations; painters, carpen
ters, salesman, policemen, and farmers. The records showed com
paratively little previous institutional experience.
Personnel: Living and working conditions
The administration at this institution believed it important to pro
vide satisfactory living conditions for personnel in order to have them
maintain a high degree of efficiency in their work. A genuine effort
was being made to furnish not merely adequate but also comfortable
and attractive living arrangements for them. This was indicated m
the fact that a new building had been recently opened, and four new
separate staff houses were under construction. Practically the entire
staff resided at the institution. They constituted a small community
of their own because the nearest city or town of any considerable size
was Trenton, 27 miles away. A minimum amount of community con
tacts were to be found in the nearby village of Jamesburg.
The personnel ate in a pleasant central officers’ dimng room m the
same building as the boys’ dining room. The food was of excellent
quality and the service was good.
.
Although an effort was made to limit the hours of work per week to
a reasonable number, it was stated that so far it had proved impossible
to relieve the cottage personnel from being practically on duty about
72 hours a week. Of course many of those hours were not spent m
very hard service, but continuous duty of that kind causes fatigue
that needs to be offset by a certain amount of free time. Other per
sonnel had varying hours of work. Office personnel worked an 8-hour
day with a half day off on Saturday. Hours for others varied from
the 30-hour week of the teachers to the 48-hour work week of such
maintenance officers as engineers and dining-room officers. Other
personnel with long hours of duty were those at the hospital, whose
service was reported to average some 50 hours a week. Provision for
time off was as generous as possible for all employees. Annual vaca
tion allowance was said to be 3 weeks for staff members and 2
weeks for all other employees. All workers were entitled to two
weeks’ sick leave with pay.
Staff organization
The staff at this institution was well organized and departmental
ized. The data from an organization chart which was supphed are
reproduced on page 93.
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Federal Reserve Bank of St. Louis
N E W J E R S E Y S T A T E D E P A R T M E N T O F IN S T IT U T IO N S A N D
A G E N C IE S
ST A T E H O M E FO R BOYS
---------------------------- J___________________
M E N T A L -H Y G 1 [E N E C L IN IC
B O A R D OF M A N A G E R S
.
PAROLE
BUREAU
----------
S U P E R IN T E N D E N T
Business manager
Secretary
A C C O U N T IN G
Chief clerk
Clerks
Stenographer
Telephone operator
Storekeeper
HOU SEHOLD
Supervising matron
Matrons:
Adm inistration
building
Private rooms
Relief
Farm supervisor
Dairyman
Farm officers
Poultryman
Seasonal farm hands
Stableman
Truck gardeners
Food supervisor
Chauffeur
M A IN T E N A N C E
Foreman
Blacksmith
Carpenters
Electrician
Assistant electrician
Mason
Painter
Plumber
Steam fitter
Tinsmith
F U E L , L IG H T ,
AND POW ER
Engineer
Assistant engineers
Firemen
Ice-plant operator
Truckm an
LAUNDRY'
Laundryman
Laundresses
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Federal Reserve Bank of St. Louis
Secretary
Baker and cooks
Creamery officer
Dining-room officers:
B oys’ room
Officers’ room
C LASSI
F IC A T IO N
AND
PAROLE
Secretary
Clerk-stenog
raphers
HAM LET
Director
Assistant
Matron
—
Assistant
to
superin
tendent
1
COTTAGE
FORCE
Masters
Assistant masters
Matrons
H O S P IT A L
Dentist
Nurses
Clerk-stenog
rapher
Chaplains
COTTAGESAN D
D IS C IP L IN E
Supervisor
Secretary
Medical
director
Detail
officer
EXTRACUR
R IC U L A R
A C T IV IT IE S
Athletic instructor
Bandmaster
Librarian
M u sic teacher
Scoutmaster
T
R E L IE F A N D
N IG H T F O R C E
N ight sergeant
N ight watchmen
Director of education
Secretary j Janitor
TEACH ERS
Academic:
Arithmetic
English
Geography
History
Third grade
Special class
Manual education:
Mechanical
drawing,
science,
mathematics
Manual arts,
arithmetic,
spelling
Applied arts,
history, civics
Clay modeling,
cardboard
construction,
geography,
English
Tinker shop
Vocational:
Automobile
mechanics
Machinist
Printing
Shoe repairing
Tailoring
W oodworking
STATE HOME FOR BOYS, JAM ESBURG, N .J.
I
94
FIVE STATE IN STITUTIONS FOR D ELIN Q U EN T BOYS
Administrative leadership and staff teamwork
The executives at this institution believed firmly in the necessity
for genuine team work on the part of the entire staff. The keynote
of the whole institution was the idea that the basic program is educa
tional and that every activity of the boys must be considered from
that point of view. Hence every employee who in any way came into
contact with the boys was considered an educator. It was regarded
as imperative that they all understand the objectives 9 1 the school and
know something about the modern methods by which it was hoped
some of those objectives might be achieved.
, . .
In order to keep all workers in touch with these objectives, confer
ences were held frequently, not for the entire staff but for small groups
of workers whose duties were related. The superintendent stated
that he felt such conferences to be of inestimable value. They were
carefully programmed so that vital questions of policy might be dis
cussed. Ample opportunity was afforded for participation m the dis
cussions by every employee, and such discussion was encouraged.
During the visit to the institution a meeting for cottage masters only
was held one evening. The meeting lasted until nearly midnight.
One of the main items under consideration was a more thorough anal
ysis of the possibilities in the job of assistant cottage master. Discus
sion was lively and productive of many good ideas.
.
The superintendent stated that one of his prmcipal dreads was lest
any of the staff, including himself, become too smug and contented
with the present ways of doing things.
_
Even a casual visitor would have observed that the stall at tins
institution included some interesting personalities and that a great
deal of rather original work, some of it of more or less experimental
character, was being done. This is only possible where there is a
measure of administrative leadership and where the workers receive
encouragement from those in authority.
5.
A D M IS S IO N S , C APA CITY, A N D P O P U L A T IO N
Intake provisions and policies
Delinquent boys from 8 to 16 years of age were accepted on court
commitment. In 1929 the law creating a State-wide system of juve
nile and domestic-relations courts vested in these courts exclusive
jurisdiction over boys under 16. Previously, boys within such age
found guilty of any crime except murder in any court of record might
be committed by the court to the State Home for Boys by warrant,
instead of after judgment and sentence.11
■
.
Boys who had passed their sixteenth birthday but who previouslyhad become court wards might also be committed to the age of 2 1
years, if the judge desired. In practice, however, most of the older
boys were sent to one -of the two State reformatories either Annandale, a reformatory for the less hardened offenders aged 16 to 30,
or Rahway, a reformatory for the more hardened 16 to 30 years of age.
The provision for transfer of boys past 16 from the State home to
either of the reformatories made it possible for the institution to elimi
nate older boys who did not fit into the training program, or who were
unsuitable to remain in a group consisting largely 9 f younger boys.
Such transfers might be made on the recommendation of the classin N ew Jersey, Cum . Supp. 1924, sec. 34-142; Laws of 1929, ch. 157.
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Federal Reserve Bank of St. Louis
95
STATE HOME FOR B O YS, JAMESBURG, N .J .
fication committee, with the approval of the State commissioner of
institutions. Boys who had been committed to the State home re
mained State wards until they were 21, and could be returned for
violation of parole. The general practice was not to return them
to this school if they were past 16 years of age.
Boys of very inferior mentality could be transferred to institutions
for defectives on recommendation of the classification committee,
approved by two physicians and the judge of the county in which the
State home was located, after a hearing had been held.12
Capacity and population
The State Home for Boys had a population of 631 boys on March 3,
1932. This number was slightly in excess of the normal capacity,
which was 625.
The proportion of Negro boys at this school was relatively high— 30
percent of the population on February 29, 1932 (451 white and 191
Negro).
Boys of native birth but of foreign or mixed parentage outnumbered
those native born of native parentage— 379 in the former and 255 in
the latter group. There were only 8 boys of foreign birth.
Among the admissions during the year ended February 29, 1932,
shortly before the institution was visited, the 14- and 15-year-old
groups comprised slightly more than half of the commitments for the
year. The ages of the 460 boys committed were as follows:
8 years___:__________________________________________________
1
9 years______________________________________________________ 13
10 years____________
21
11 years_____________ r — - _____________________ _____________
32
12 years__________________________________________
46
13 years_____________________ ___________________________II~I 93
14 years-------_________
112
15 years_____________________________________________________ 126
16 years or over_______________
16
During the year ended February 29, 1932, a total of 358 boys were
received on new commitments and recommitments, 102 parolees were
returned to the school, 185 boys were discharged, and 312 were placed
on parole. The movement of the population in detail during the last
fiscal year before the institution was visited (ended Feb. 29,1932) was
as follows:
Population Mar. 1 , 1932_______________________________ ______ 637
Received during the year___ ___________________ ,_______ 9 71
New commitments (including recommitments)____________ 358
Parolees returned_________________________________ 102
Escapes returned________
13 8
Returned from approved absence________________ ____ , 360
Other_____________________ ___________
15
Lost during the year_________
966
Released on discharge_______
185
Released on parole ________________________________ 312
Released on approved absence________________________ 3 5 7
Released on transfer_______________________________ 76
Escaped_____________________________________ w”~ 15 4
Died____ .__________________ ________________ ____ ______ I I I I
2
Population Feb. 29, 1932______________________________________642
U N ew Jersey, Cum . Supp. 1924, secs. 34-155 and 34-188.
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Federal Reserve Bank of St. Louis
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FIVE STATE IN STITU TIO N S FOE D ELIN Q U EN T BOYS
The policy of permitting boys in “ A ” class (the highest group in the
credit-earning system) to make week-end visits home, and the policy
of letting the boys go home for Christmas under certain conditions,
account for the large number released on and returned from approved
ft D S 0 H C 0 S •
The large number of boys on parole in New Jersey 1,177 on
March 3, 1932— may be accounted for by the fact that the average
period on parole from this school was comparatively long. The legal
maximum is to 21 years of age, as has been stated (see p. 84), but a
policy had been adopted of provisional release before that time in
cases of boys with satisfactory records. (For detailed discussion see
section 17, p. 124.)
6.
R E C E P T IO N A N D A S S IG N M E N T P R O C ED U R E
Reception
Bovs were brought to the State home at any time by an officer from
the committing court, usually a deputy sheriff. Each boy was
received first by the supervisor of cottages and discipline, who in a
brief friendly interview told him something about the institution, the
opportunities offered, aijd the spirit of the place. The supervisor
signed whatever papers were necessary to acknowledge delivery of the
boy and made the necessary first record. The boy was then sent to
the receiving cottage.
Receiving cottage
The receiving cottage consisted of quarters in one wing of the hos
pital. As soon as possible each new boy was given a complete physical
examination by the resident physician.
.
While in the receiving cottage the boys had very limited contacts
with the general life of the institution. They were not completely
segregated, since they did go to the central dining room for their
meals, but they did not attend school or the institution’s general rec
reation programs. The only work which they did outside the cottage
was work about the lawns and grounds.
Boys remained at the receiving cottage about 4 weeks, lh at
period was used for psychological study, for physical examination, and
for personal interviews and observations on the part of various other
staff members in preparation for their first assignments.
First assignments
Assignments were made by the classification committee maintained
in accordance with the requirement of the State department of insti
tutions and agencies that each State correctional institution maintain
a classification committee. The regulation was the result of consider
able thought on the part of State executives with respect to improving
State procedure in the treatment of delinquents. At this institution
the classification committee had been working very actively for some
time. It consisted of the superintendent, the assistant to the super
intendent, the supervisor of cottages and discipline, the physician, the
psychologist, the director of education, one of the clerical force who
acted as classification secretary, and, if possible, a representative from
the State division of parole.
.
...
After the boy had been examined by the various specialists, his case
was listed for consideration by the classification committee for the
purpose of deciding on his cottage assignment, and his general training
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Federal Reserve Bank of St. Louis
STATE HOME FOR B O YS, JAMESBURG, N .J.
97
and treatment program. Prior to the meeting of the classification
committee each examining specialist presented to the secretary a
report of his findings. From those reports the secretary made a
classification summary which combined in outline form the principal
findings and the recommendations of each specialist. In addition the
case summary included a statement as to the results of a preinstitutional investigation and all the facts available bearing on the boy’s
social history.
At the meeting of the committee the secretary presented the case
summary, and the members of the committee informally discussed
the boy and his problems. The various specialists did not always
agree in their recommendations. When that was the case the discus
sion continued until a plan was approved by a committee majority.
Cottage assignment was usually made in accordance with the
recommendation of the supervisor of cottages, as that officer was most
familiar with the actual characteristics of the cottage personnel and
the different cottage populations. Very careful consideration was
given to the boy’s characteristics in relation to those of the cottage
father and mother and of the boys with whom he was to live.
School assignment was almost invariably based on the recommen
dation of the director of education. His recommendation was based
on certain tests which had been given and on the information secured
as to the boy’s previous school history and academic attainments.
Vocational assignment was reported to be made as a result of con
sideration of the boy’s age, physical development, and mental level,
also his own preference if it was reasonable. This school made a dis
tinction between industrial and vocational-training assignments. An
industrial assignment meant practically a straight work job on
maintenance duties. Very often boys were given industrial assign
ments first. These constituted a preliminary try-out. Intensive
supervision during that period made it possible to get a better appre
ciation of the boy’s attitude and aptitudes so that he could be more
intelligently placed in vocational training at a somewhat later date
7.
T H E B O Y S ’ LIFE IN T H E IN S T IT U T IO N
Daily routine
At Jamesburg the boys’ fife was regulated by the following schedule:
6:30 a.m____________ Rising whistle.
7 a.m_______________ Breakfast.
7:45 a.m____________ Report to industrial or vocational train
ing assignments.
8:20 a.m____________ Report to school.
11:30 a.m___________ Dismissed from school, shop, and work.
12 m_______________Dinner.
12:55 p.m___________ Report to school, shop, or work.
4 p.m______________ School, shop, and work details dismissed.
4:55 p.m____________ Prepare for supper.
5 p.m_______________Supper.
5:30 p.m. to 7 p.m_____Recreation.
General atmosphere
In general the impression given by the outward appearance of living
arrangements and activities at this institution was that of a closely
regulated boarding school. It was the intention of the management
that everything about the boys’ life should have a training aspect and
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Federal Reserve Bank of St. Louis
98
FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
should be considered educational in that it was preparation for normal
community life. However, the size of the group under care required a
certain amount of regimentation, which tended to create an institu
tional aspect. Long lines of boys marching two by two on the way to
and from their various assignments contributed greatly to that impres
sion. On the other hand, little feeling of repression was anywhere
apparent. The boys neither looked nor acted as if they were domi
nated by fear of any kind. Conversation and laughter were noted
frequently in all groups of boys observed.
Cottage “ fam ily”
atmosphere
The size of the cottage group at this school ranged from 30 to 50
boys. Each group, or “ family ” , was under the direct care and super
vision of a cottage master and his wife, who assumed the attitude of
father and mother toward the boys in their charge. In many of the
cottages there was obviously a very real interest and affection between
the cottage father and mother and their boys.^ At this school each
cottage had an assistant cottage master. This position was newly
created, and there was much interest in the development of a distinct
sphere of activity for it. The administration’s idea was that the man
holding that position would have most of his time free to devote to the
right kind of leadership and supervision for the leisure-time activities
of the boys. All three cottage officers were expected to become thor
oughly and intimately acquainted with the personalities and the
problems of each of their boys and to devote time, thought, and effort
to helping individual boys overcome, their particular difficulties. The
larger the cottage group the more difficult this became.
Arrangements for sleeping
All cottages had dormitories, and all that were visited were in excel
lent order. They were more crowded than the administration would
like to have had them, but at the time of the visit they were n ^
seriously overcrowded. The system of night watchmen on duty in
each cottage dormitory throughout the sleeping period was found in
force at this institution.
Arrangements for eating
The boys ate in a very pleasant, large, central dining room. Each
table seated eight persons and service was in family style. Boys
marched to meals in line and stood in silence until all were in place.
At the sound of a musical gong they were seated. They then said
grace in unison, at the close of which the gong was again sounded as a
signal that they might begin to serve. They were permitted to carry
on conversation while they ate. As they left the dining room they
were again required to march in silent lines. It was stated that this
was merely to maintain order, as it was difficult with so many boys to
keep the conversation and the shouting between tables within the
proper bounds if permitted at all.
. .
Food was of good quality and seemed to be quite sufficient. A
sample menu is reproduced in appendix A, page 29.
Sanitary arrangements
Each cottage was equipped with adequate sanitary facilities.
Shower and wash rooms were in the basement of each cottage. Each
bov was supplied with a toothbrush and received clean towels weekly.
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Living-room and playground activities
During the hours spent in the pleasantly furnished cottage living
rooms the boys appeared to behave much as any large group of normal
youngsters would. They were free to talk and play as they pleased
within reasonable bounds. Many of the boys spent most of their
evenings on Boy Scout work; others read or played games.
Whenever the weather permitted, all free time was spent out of
doors on the cottage playgrounds. Although boys on these grounds
were under constant supervision, it was the intent that they should
have some time for free and spontaneous activities in addition to the
organized games in which they participated.
Miscellaneous arrangements
This institution did not have a separate regulation-size locker for
each boy nor much equipment which would provide places for boys to
keep private possessions. It was stated that each boy was permitted
to have a small box in which he might keep a few things of his own.
Smoking was not permitted.
The boys wore institution clothing of cotton khaki, which was
laundered at regular intervals. On Sunday they wore regular suits of
dinerent kinds, tho institution having no uniform. The everyday
clothes were made in the tailor shop of the school, but the Sunday
suits were purchased in commercial lots. Members of the Boy Scouts
or the Rangers who wished to wear their uniforms on Sunday were
permitted to do so.^ The shoes which the boys wore were purchased
from another State institution which manufactured them.
Life in this institution was rich in opportunities for boys to find
outlets for their individual personal interests. Description of those
various outlets in the educational and recreational field appear in other
sections of this report.
Outside contacts
Each boy was encouraged to write to his parents or close relatives
every Sunday. The letters were written in the boys’ own cottages
and read by some one of the cottage officers. Incoming letters were
read m the office of the supervisor of cottages and discipline. Letters
were withheld from the boys rarely, and only if they contained statements that were likely to prove upsetting to the boy and to interfere
with the adjustment which he was making. Boys were also per
mitted to receive packages from home. Such parcels were inspected
m order to prevent the sending in of forbidden articles, especiallv
tobacco.
J
r\
hours at this school were Tuesday and Friday afternoons
On those days boys were permitted to receive visits from any close
relatives The administration preferred that boys should not be
visited oftener than once a month, and so informed relatives. The
reason given was that visits from relatives often made the boys
homesick and unhappy and interfered with their progress. Parents
who worked during the week were given special permission to visit
their boys on Sunday. Visits were usually made in the living room
of the boy’s own cottage or, during the summer months, on the
grounds adjacent to his cottage.
Boys who had won special privileges through their good conduct
and their rapid progress toward satisfactory adjustment were allowed
to go home for week-end or holiday visits, provided their parents or
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FIVE STATE IN STITUTIONS FOR D ELIN Q U EN T BOYS
some other close relative could come for them and bring them back»
More than 100 boys had been allowed to spend Christmas at home
in 1931, and only two had failed to come back at the exact time at
which they were due; these two were very young boys whose
parents neglected to bring them back as expected.
Outside contacts of other kinds were much encouraged. The
members of the staff often took boys out with them when they were
addressing various groups about the work of the ^school. The boys
often took part in programs in different communities. Every effort
was made to have them considered and treated not as delinquent
boys but as school boys with abilities and interests like those of other
normal youngsters.
8.
P H YSIC A L E X A M IN A T IO N S A N D M E D IC A L CARE
Hospital facilities
As the medical work here was done in one of the very old buildings,
the capacity was not sufficient to meet the needs of the school without
considerable crowding at times. Despite the unsuitable housing,
the equipment was modern and in good shape. Plans for a new
hospital showed a proposed capacity of 90 beds.
Hospital staff
The physician in charge, a graduate of the University of Pennsyl
vania Medical School with 5 months’ experience as staff physician
for the Philadelphia Hospital for Mental Diseases, who had been
appointed September 1, 1931, was aided by a consultant in surgery
employed on a part-time basis to assist in all cases requiring major
operations. Other consulting specialists were paid on a fee basis.
The dentist, who devoted full time to the dental work of the school,
the two registered nurses and two attendants on duty full time, and
the laboratory technician completed the hospital staff.
Physical examinations
On entrance all new boys were given quite thorough examinations.
The examination routine included weighing and the measuring of
height and hip width. A Wassermann test of the blood (and of
spinal fluid if indicated), nose and throat cultures for diphtheria, the
Dick test for scarlet fever, blood-chemistry test, basal-metabolism
test, urinalysis, and complete blood count were made. All boys
were immunized against typhoid, paratyphoid, and diphtheria and
were vaccinated against smallpox. Chest X-rays were made when
indicated, although not as a matter of routine. Arrangements for
pulmonary X-rays and for X-rays of fractures were made with the
Trenton State Hospital, and every boy having a heart murmur was
sent to Trenton to have an electrocardiogram made.
The findings from the physical-examination work were placed on
a record blank, which became a permanent part of the hospital files,
and always were summarized for the classification committee’s use
in consideration of assignments for new boys.
The examining physician was much interested in research designed
to develop more adequate standards. He was making careful records
as to nationality and race in each case in order that these data might
be available for study.
Each boy was weighed and measured each month. Any boy for
whom a decided variation was noted was given a special examination
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to determine what corrective treatment was needed. Any boy
having serious physical defects, such as very improper posture or
poor heart condition, was reported to the director of physical educa
tion in order that precautions might be taken against unsuitable
physical exertion and in order that correction of his defects might be
undertaken.
Corrective work
A considerable amount of corrective medical and surgical work was
done as a regular part of institutional treatment. Minor operations,
such as circumcisions and removal of adenoids and diseased tonsils,
were performed at the hospital by the resident physician. M ajor
operations were performed there by a consulting surgeon.
Boys with venereal disease were quarantined in the hospital until
rendered noninfectious. When tests showed them to have reached
the noninfectious stage, they were assigned to cottage life, but treat
ment was continued and reexaminations wjere made regularly.
Dental work
All necessary dental work was done for the boys at State expense.
The hospital was equipped for dental X-rays.
Other medical care
Sick call was held daily. Boys were sent to the hospital line by
their cottage officers or might come of their own volition. No officer
was permitted to forbid any boy’s reporting to the hospital, if the
boy expressed a desire to do so. Decision as to the necessity of
treatment rested exclusively with the physician.
Boys needing hospital care were transferred from cottage to hos
pital promptly and were given such care as long as was necessary.
With the limited facilities, occasional mild epidemics of various kinds
caused considerable crowding. Otherwise, care appeared to be first
class.
9.
P SY C H IA T R IC A N D P SY C H O L O G IC A L SERVICE
Clinical facilities
The mental-hygiene clinic at this institution had one psychologist
on the institution pay roll and one paid by the State mental-hygiene
division and assigned to the State Home for Boys, as has been stated.
(See p. 90.) Both psychologists worked directly under the super
vision of the chief clinical psychologist of the State mental-hygiene
division. The clinic staff occupied offices in the administration
building.
Psychological tests
The resident psychologists interviewed all new boys. They gave
psychological examinations to all boys, unless a boy had been so
examined very recently and a copy of the findings had been forwarded
to the school.
The Kuhlmann-Anderson tests were used as a matter of routine,
and the Binet-Simon test was used occasionally. One of the psychol
ogists stated that they found a large proportion of the boys to be non
verbal types and to have language handicaps of various kinds. They
therefore made it a practice to use a considerable number of different
performance tests. These included such standard tests as the Healey
pictorial completion test, the Witmer form board, the Witmer block,
the Porteus maze, and the Stenquist mechanical-aptitude tests.
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FIVE STATE INSTITUTIONS FOR D ELIN Q U EN T BOYS
All boys were seen again by the clinic personnel before reclassi
fication during their stay at the school and before their parole hearings.
One of the psychologists furnished figures indicating the mental level
of the school population on March 1, 1932, as shown in the following
table:
M e n ta l level o f w hite a n d N e g r o b o y s enrolled i n school o n M a r . 1 , 1 9 8 2
B oys enrolled
Negro
W hite
Total
M ental level
N um ber
T o t a l............... ........... ...
Percent
distribu
tion
N um ber
Percent
distribu
tion
Percent
distribu
tion
N um ber
628
100
455
100
173
100
15
132
425
56
2
21
68
14
94
318
29
3
1
1
22
.9
21
38
107
27
70
6
62
16
The average mental age of both the white and Negro boys appeared
to be lower than their chronological age. The figures reported by the
psychologist were as follows:
Average age and intelligence quotient
Average chronological age--------------------- _ __years. _
___d o __
Average intelligence quotient----------------- _.percent. _
W hite boys
14. 5
11. 1
82
Negro boys
13. 8
10. 2
75
Psychiatric examinations
A psychiatrist from one of the State hospital staffs came regularly
one day a week to examine boys referred by the psychologists as a
result of their interviews and tests. In addition the resident physician,
who was very much interested in psychiatry and who had had some
experience in a hospital for mental diseases, gave a brief psychiatric
examination to each boy at the time of his physical examination. He
wrote up a summary report and a problem analysis for each case.
Personal histories
At the time of their interviews with new boys the psychologists
obtained from them as much personal history as possible to supple
ment such social history as had been furnished by the committing
courts or had been obtained through correspondence or by a report
from a parole officer who had visited the boy's home immediately after
admission.
Application of findings
The findings of the clinical staff were recorded and a summary
prepared for use of the classification committee in making first
assignments for boys on leaving the receiving cottage. The clinical
reports were very carefully considered and usually given great weight
in making all assignments.
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1U3
The system in operation at this school for following up a boy to
determine his progress under the original plan seemed to be function
ing effectively. When the original assignments were made a date was
hxed at winch the boy was to come before the committee for reclassi
fication. The committee secretary was responsible for seeing that
each case should be considered at the proper time. This did not
mean that a boy’s case could not be called up for review at an earlier
date if that seemed desirable to any staff member, but it guarded
against any boy’s being forgotten and staying in the original assignments if they were not proving particularly helpful to him. The
clinical findings and additional study by the clinic personnel, together
with reports from cottage supervisors, teachers, trade instructors, and
other officers, formed the basis of the discussions and decisions on
any changes in the plan of treatment. A second reclassification date
was then set at which time the boy’s response to treatment was
further analyzed. Always the clinical findings were made a part of
the discussions.
The psychologists gave particular attention to personality problems
and to boys who were exceptionally unstable and often in difficulty.
b? ys themselves had free access to the clinic, and the spirit was
such that many boys came voluntarily to talk over their problems or
toconsult the psychologist about some desired change o f assignment.
fine special residence cottage for certain boys found to be emotlonally unstable (the “ hamlet” ) is described on pages 86 and 117
there was no definite provision for consultation of the clinic per
sonnel with respect to disciplinary action in particular cases and no
requirement that the psychological and psychiatric findings be used
m that connection. However, the director of discipline, who was also
a member of the classification committee, had all these findings at
hand and used them in reaching his decisions. It was customary for
the clinic staff to be asked to render advice in connection with release
of boys from the segregation cottage.
The clinical findings likewise played an important part in the deter
mination of fitness for parole. They were particularly useful in deter
mining the kind of placement to be made and the type of work and
social contacts that would be suitable and useful in aiding in a bov’s
adjustment in the community.
Attitude o f other staff m embers toward clinical services
Many officers at this institution were consulting the clinic personnel
m regard to their handling o f difficult boys. They came freely to the
offices of the clime, sometimes for advice, sometimes to protest against
the action of the classification committee and to learn the reasons for
1+*
felt
.t
could give much help to some of the
staff membem, particularly cottage supervisors, in understanding prob
lem boys and m attaining more objective attitudes toward their m isconduct. It was also felt that such interviews were indirectly helping
individual staff members with maladjustments of their own that were
bringing them into conflicts with boys.
A later report from the institution stated that it had become the
invite different staff members to attend the weekly meetings
of the classification committee, and that this had brought about more
tolerant and sympathetic understanding of one another’s problems.
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FIVE STATE IN STITUTIONS F O B / D E LIN Q U E N T BOYS
R6S6&rch activities
Research work was a definite part of the program of clinical service.
The clinic had undertaken to set up and standardize for certain of the
performance tests some forms that would be more applicable to boys
of the types committed to the institution. One of the psychologists
was to work in close cooperation with the new resident physician,
who particularly desired to carry out a number of research projects.
10.
E D U C A T IO N A L P R O G R A M — C L A S S R O O M W O R K
The staff seemed of the opinion that the e q u i p m e n t was reasonably
adequate, though their rather complex program could utilize a great
deal more than their budget permitted; the school building was at
all times a perfect beehive of activity.
School staff
.
.
.
All educational work at this school was centralized in its department
of education. As shown in the institutional-organization chart re
produced on page 93, the director of education was in charge of the
academic school, the manual-education school, the vocational school,
and all so-called “ extracurricular” activities.
,
The teaching staff included both men and women, all of whom held
State teachers’ certificates or had qualified under State civil-service
regulations. (Persons holding State teachers’ certificates were not
required to take a written civil-service exammation.)
School day and school year
The school day was from 8:30 to 11:30 in the morning and from 1 to
4 in the afternoon. The school year consisted of 10 months, fior
the younger boys a summer session of 2 terms of 4 weeks each was
operated Boys attended school one-half day and spent the other
half day in industrial, vocational, or extracurricular pursuits. Many
activities customarily classed as recreational were recognized at this
institution as having a definite educational function and were listed
as a component part of the educational program. These included
music, dramatics, library use, and scouting.
Attendance requirements and enrollment
Under the New Jersey, compulsory school attendance law aU chil
dren. must attend school unless they are above 14 and have completed
the eighth grade, or unless they are above 15 and have completed the
sixth grade. A permissive clause in the law, however, authorizes
an “ approved educational program” in lieu of completion of the
sixth grade; furthermore, boys between 14 and 16 who hold work
permits are required to attend continuation school 6 hours a week.
The classification committee at this institution conformed stnctly
to these legal requirements with respect to school attendance, they
did not, it will be noted, require some of the older boys to continue
with regular academic classroom work.
. . ,
,, , .
The school enrollment and the time of school for boys enrolled in a
specified school grade or class on March 17, 1932, were as shown m
the following table:
m
N e w Jersey, L a w s ó f 1931, eh. 307.
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STATE HOME FOR B O YS, JAMESBTJRG, N .J .
T im e o f school f o r b o y s en rolled i n a sp ecified school grade or class o n M a r . 1 7 , 1 9 8 2
B oys enrolled
Tim e assigned
Grade or class
T otal
M orning
Academ ic work:
>378
177
10
10
10
10
17
201
17
9
13
11
20
M anual education:
Afternoon
28
19
32
14
15
1514
17
17
17
26
8
1
11
9
16
15
36
30
28
32
30
17
15
13
15
14
19
15
15
17
16
11
8
12
12
i The difference between the school enrollment (378 on M ar. 17,1932) and the total population of the insti
tu tion (631 on M ar. 3, 1932) is due to the fact that a number of the older boys had their school work in con■nection with their vocational assignments instead of in the classroom (see p. 104) and that boys not yet
released from the receiving cottage for assignment to school grade were included in the total population,
and also to other conditions of institutional life.
The ages of boys enrolled in a specified school grade or class on
March 17, 1932, were as shown in the following table:
A g e o f b o y s enrolled i n sp ecified school grade or class o n M a r . 1 7 , 1 9 8 2
B oys enrolled
Age of boy
Grade or class
Total
T otal............ ...................
14
11
12
13
15
9
10
16
8
17
years years years years years years years years years years
2
74
103
10
1
4
17
3
>378
Academic work:
N inth grade________________
Eighth grade........................ ..
Seventh grade------------ --------Sixth grade_________________
Fifth grade..............................
Fourth grade..........................
Third grade_________ - ______
Second grade________—--------
20
Special class I .........................
Special class I I --------------------Special class I I I ................ —
17
17
26
M anual education:
Group I ............. ......................
Group I I A __________________
Group I I B ...... ..................... ..
Group I I I .......................... ........
“ C o-op” g r o u p ....................
Mechanical-drawing class___
36
30
28
32
30
12
5
18
29
47
10
28
19
32
14
2
1
6
1
4
5
1
1
3
1
2
3
3
8
4
2
3
1
1
2
3
5
6
2
7
5
1
2
6
10
2
. 12
5
8
2
1
7
5
2
4
76
7
3
10
1
1
1
12
20
4
10
6
1
4
1
1
3
1
2
4
6
2
1
4
2
3
13
13
13
1
4
4
7
7
4
23
8
2
2
20
4
4
6
> The difference between the school enrollment (378 on M ar. 17, 1932) and the total population of the
institution (631 on M ar. 3, 1932) is due to the fact that a num ber of older boys had their school work in
connection with their vocational assignments instead of in the classroom (see p. 104) and that boys not yet
released from the receiving cottage for assignment to school grade were included in the total population,
¡and also to other conditions of institutional life.
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FIVE STATE IN STITUTIONS FOR D ELIN QU EN T BOYS
From these figures the frequency of school retardation among these
boys is apparent. The school administration expressed a belief that
educational maladjustments had played an important part in bringing
about the social conflicts resulting in institutional commitment and
stated that the boys’ social histories, as procured from various sources
and summarized for the classification committee, revealed that many
of the boys appeared to have been at some time conduct problems or
maladjustment problems in school, truants, loafers, mischief-makers,
or neighborhood nuisances if nothing worse. Assuming that the
public schools in the boys’ home communities had failed to satisfy
their developmental needs, the educational group at the State Home
for Boys had set about trying to analyze those needs and to devise
ways and means of meeting them more adequately.
As a prelude to the brief description of some of their unusual devices,
it seems appropriate to summarize the administration’s conception of
its general educational objectives. From their own statement o f
goals these particular extracts have been chosen. They aim “ to
train boys in the actual processes, habits, attitudes, acts of partici
pating, functioning, democratic citizenship.” They seek to adjust
the social attitude of the individual boy, “ specifically to stabilize
jangling, temperamental, discordant, noncooperative personality mis
fits.” They attempt to build up “ an attitude of voluntary respon
sibility.” Lastly, they aim “ to reveal those facts, develop those skills,
produce those attitudes and habits which are currently accepted asconventional and which will best allow each individual to adjust to
his own environment” , and “ to equip every boy with the intellectual
tools of thought that he . . . will best be able to turn to his service.” 14*
Courses given
As is indicated in the enrollment lists, the school was divided
into a section for academic work and a section for manual education..
This division was based partly on the mental abilities or limitations o f
the individual students and partly on an attempt to meet the needs o f
boys of certain types through different teaching methods and materials..
In the academic school, grade work was taught from the first
through the ninth grade and three special classes were conducted for
subnormal boys and boys badly retarded. These boys were taught
in three classes that were graded somewhat by mental level and also
by temperamental difficulties. Special class I was for boys with
a mental age of approximately 5 to 9 and chronological age 10 to 15.
Much use was made of simple hand work and of pictures and dramati
zation of materials. Boys were shown the use of simple tools. They
were taught a certain amount of needlework, and this class made
sheets, towels, coffee bags, and other so-called “ flat work” for institu
tional use. While handling the actual materials they learned to
name the articles and spell the names correctly. Boys in special class.
II were slightly younger, the average chronological age being 9 to
14 and mental age 5% to 10%. The work done was some What like
that of regular first and second grade public-school work except that
more hand work was done and more colorful materials were used in
order to arouse and hold the attention of the boys. Special class I I I
included boys whose chronological age was 10 to 14 and mental age
6 to 10%. To this group were assigned the boys Who were to be
u Educational Program; a Plan of Organization and Description' of A ctivities, pp. 8, 9, and 10.
Jersey State H om e for B oys, 1930.
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STATE HOME FOR B O YS, JAM ESBURG, N .J .
107
given more complicated manual tasks and more individual attention.
In all the special classes a certain amount of academic instruction was
given along with the hand-craft projects. This included reading,
spelling, and very simple arithmetic, all correlated very closely with
the materials and projects with which the boys' hands were occupied.
The regular second-grade work followed quite closely the usual
course in public schools except that the emphasis in this institution
was somewhat different. Since truancy had been the major cause of
commitment of most of the younger boys, an attempt was made to
overcome dislike of school and to substitute genuine pleasure in
accomplishment. Each boy was carefully watched, and so far as
possible the tasks assigned to him were those known to be within the
possibility of achievement for him if he made the necessary attempt.
Each success was given praise that provided surprisingly effective
incentives to greater application.
The third-grade work was conducted under a partial contract
plan, and all beyond that grade was done under a full contract plan.
That is, in the third grade part of the work was done by the class as a
whole, all members having the same daily assignment, and part was
individualized so that each boy finished certain lessons which he
contracted to do as rapidly as he wished, regardless of the progress
made by others in the group. Above the third grade all work was
assigned on a contract basis, individual pupils progressing as rapidly
as they were able to complete the daily assignments which they
accepted “ under contract." The contract plan in use here was the
Dalton plan with a considerable number of modifications and adapta
tions. From the fourth to the ninth grade each subject was taught
by one teacher, the grade work being departmentalized. Four major
subjects were included below the ninth grade— English, history,
arithmetic, and geography. Among the ninth-grade courses were the
elements of algebra and vocational mathematics, English, industrial
history, vocational civics, and mechanical drawing. Much more
time was spent in the third and fourth grades on language, reading,
spelling, and composition. It had been found that there existed a
tremendous variation in the stages of progress in the different subjects
among these boys from schools all over the State and that a great
amount of individual aid and attention was required. M ost of this
was among the third-grade boys.
The school staff were enthusiastic about the practical values of the
contract plan in view of the constantly changing population and its
widely divergent character, also of the varying amount of previous
school work of the boys who were admitted. Great care was taken
to introduce the boy gradually and without discouragement or con
fusion into his work under the contract plan. All the way through
all the courses, regardless of subject matter, emphasis was placed on
habits of study and of lesson preparation that would contribute some
what toward the general objectives of the department of education.
Teachers gave much individual instruction and help until the boys be
came familiar with the Various reference books and other available ma
terials to be used in getting their lessons. This opportunity to go ahead
as fast as they chose was said to be particularly stimulating to the
brighter boys, Once they understood it and were brought into contact
with materials and subject matter that appealed to their interest. On
the other hand, the dull-normal boys likewise responded in gratifying
fashion to these methods, which relieved them of their former feeling
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
of inferiority engendered by group recitations and group tests in
which they had to compete publicly with the boys of far superior
intelligence.
The manual-education classes were developed in an attempt to pro
vide teaching materials and methods that would meet the needs of
boys whom the psychological clinic diagnosed as of nonverbal mental
type. These boys, it was found, might reveal just as high a mental
level as the verbal types, provided the test materials did not require
the use of language, written symbols, and abstractions. Obviously
they needed a different approach to the same educational objectives.
The manual-education school was divided into five groups. Group I
approximately paralleled the academic sixth and seventh grade
work. Groups IIA and IIB were practically equivalent to academic
fifth grade; Group III, to the third and fourth grades. The “ C o-op”
group was designed especially for retarded older boys of 15 years or
thereabouts. This was a still further differentiation in order to meet
individual problems. It was conducted by an instructor with much
ingenuity and understanding who used a unique plan for dividing the
boys’ activities between academic and shop work under very close
individual supervision and with great flexibility of both group and
individual programs.
^
These other three manual-education groups (except the “ Co-op
group) spent 3 weeks each in classrooms devoted to the following
subjects, in rotation every 3 weeks:
1. Applied art— Subject matter dealing with history and civics or
citizenship.
2. Clay modeling and cardboard work— Subject matter m geography,
English, and spelling.
3. Woodwork— Subject matter in mathematics, spelling of words
used in connection with this work, p „
4. Metal work {sheet metal, bent iron, etc.)— Full-sized patterns were
drafted for objects to be made and such objects constructed with
these patterns.
;
.
Throughout this educational program visual aids were widely used.
The stereopticon was used extensively. The microscope brought
a new world of natural phenomena within the boys’ range of
knowledge. Educational films were used in order to show them the
application of scientific principles to industrial uses. The school
equipment included a semiportable projector used to present 35-mm
films and also apparatus for projecting 16-mm pictures. They also
had 2 lanterns, and 2 stereoscopes, with several hundred slides and
stereographs. Each year much material was obtained free through
the cooperation of the lending department of the State museum. A
careful schedule was prepared at the beginning of each school year
and was mimeographed so that each teacher might have a copy and
know exactly when specified material was to be shown, so that all
classes whom it could possibly help might have opportunity to see it.
All the classroom work in both schools was correlated with the voca
tional work in which the boy might be spending his other half day;
and as all the educational work sought to prepare the boy for social
and economic adjustment back in his home community, the teachers
therefore made it relate, so far as they could do so, to the fife from
which he had come and to which he would return.
In each schoolroom, posted on the bulletin board where the boys
might consult it at any time, was a daily-progress card for each boy.
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STATE HOME FOR B O YS, JAMESBURG, N .J .
The teachers reported that the moral effect of this card was very great,
that the boys watched it closely and were greatly disturbed when they
received a poor mark.
11.
E D U C A T IO N A L P R O G R A M — V O C A T IO N A L O R PR E Y OC A T IO N AL
WORK
As has been indicated in the preceding section, the vocational
school was under the supervision of the director of education. Its
aims were described as being to give the boys knowledge of the funda
mental principles of some specific trade, skill in handling tools, appre
ciation of the need for orderliness and accuracy, and understanding
of the proper use of shop equipment from a safety standpoint. Special
attention was being given to the development of such personality
traits as dependability, diligence, initiative, self-confidence, and
resourcefulness in relation to their work.
Enrollment
The vocational or other work in which boys were occupied on
March 17, 1932, and the time assigned were reported as shown in
the following table:
T im e o f w ork f o r b o y s occu p ied i n sp ecified vocational or other w ork a ssig n m en ts on
M ar. 17, 1932
Boys occupied in vocational or other work
Vocational or other work
Tim e assigned
Total
A ll day
Autom obile mechanies
Blacksmit hing________________________________________
Carpentry__ " ________________________________________
Farming:
D airy_______________________________________ ______
P oultry raising_______________________ _______ ____
General farming____________________________ ______
T ruck farming^__________ _________________ _______
Greenhouse w o r k !_____________________________________
Laundry________________________________________ ______
M asonry______________________________________________
Painting_______________________________________________
Printing
Shoemaking and repairing______________________ . _____
Steam fitting_____ J____________________________________
Tailoring__ I __________________•
_________ :______________
Woodworking _
Coal force__ 1________________1__________ _____________
Dining-room w ork____________________________________
Engine room __________________________________________
General h ou sew ork ..._________________________________
Ice house_________________________ ____________________
Power house (three 8-hour shifts)___________________ ___
School force________________ ____ ______________________
M orning
162
Afternoon
1520
225
6
8
3
3
3
1
2
2
1
4
4
3
4
8
2
1
1
28
11
2
79
30
5
32
31
11
22
7
4
11
6
7
4
2
2
21
14
5
3
7
6
5
3
2
7
5
24
11
6
5
1
1
1
1
2
133
10
4
24
17
3
5
3
1
4
1
1
10
10
6
6
5
5
14
2
8
1
3
5
3
50
24
18
14
22
2
86
1
18
2
1
54
4
3
15
3
4
4
3
20
8
8
11
8
2
2
1
3
2
1
1
1
2
2
5
4
i The difference between the number of boys assigned to vocational or other work (520 on M ar. 16,1932)
and the total population of the institution (631 on M ar. 3, 1932) is due to the fact that boys not yet released
from the receiving cottage for assignment were included in the total population and that vocational and
■work assignments were not given to the younger boys, and also to other conditions of institutional life.
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These enrollment and assignment figures reveal that boys were
engaged in many kinds of work that did not bring them within the
definite vocational courses offered in the department of education. As
has been shown (see p. 93), the school had instructors in the following
lines of work: Automobile mechanics, electrical, printing, shoe
repairing, tailoring, and woodworking. In addition, the trade-*
drawing course given in the school brought in boys learning other
trades, such as masonry, plumbing, steam fitting, and sheet-metal
work. In that course all the boys began with a series of 12 to 15
drawings, designed to give a chance to become acquainted with the
use of drawing instruments and the common elements of mechanical
drawing. After that each boy had his own series of drawing problems
directly related to practical problems in his own specific trade.
The automobile-mechanics shop had an abundance of material to
practice on in connection with repairs on the various automobiles
belonging to the institution and on the farm machinery. (An outline
of the course as given is reproduced in appendix B, p. 293.) Following
their seasonal use all farm implements and machinery were brought
into the shop to be put into first-class shape.
For boys who were
likely to go into any kind of agricultural work this offered an oppor
tunity to learn a great deal about the mechanics of farm machinery
and about its proper care, both during use and between seasons.
The print shop turned out a high grade of work. The boys in this
shop did all the printing for the institution. Its monthly publication,
“ The Advance” , was a credit to the shop. An interesting type of
special work had been developed experimentally. This was linoleum
block printing. Their attractive display of linoleum block prints
would do credit to any establishment. Among them were some
interesting original designs as well as a great many cleverly executed
copies. The finished work was characterized by excellent color choice
and considerable technical skill in printing. An attractive colored
block print, designed and made by one of the boys, decorated the cover
of each issue of “ The Advance.”
Although the tailor shop did not pretend to turn out full-fledged
tailors, it claimed that the boys were given sufficient knowledge of
the trade processes and of power-machine operation so that they
could go to work in a tailor shop or clothing factory and hold their
own while completing their trade apprenticeship. The same state
ments applied to the shoe shop. The woodworking course included
making and repairing furniture and general mill work.
It will be noted that a very considerable number of boys were
assigned to agricultural work. The farm supervisor was a practical
farmer of 24 years’ experience. His assistants were also men with
practical experience rather than with educational or teaching back
ground. Obviously the agricultural training would be that which a
boy would get from working for a successful farmer and would not
include the wider knowledge that he might get from taking an agri
cultural course in which the farm constituted the laboratory for
demonstration in relation to the courses being studied. That the
farm contributed a great deal to the good table set at this institution
was evidenced by the valuation of $39,766 placed on food supplies,
produced and consumed during the year ended June 30, 1931.
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Ill
Maintenance and repair work
Boys assigned to trade or industrial work outside the vocational
school were under the supervision of experienced workmen in particu
lar lines— as in the maintenance division of the business office, under
the food supervisor, or under the farm superintendent. There they
carried on production, maintenance, and repair work of various
kinds. Insofar as it was possible to do so, all of this work was treated
as practice work, with emphasis on its educational aspects. Many
types of work, such as those associated with domestic service or with
boiler-room or power-house labor, were recognized as having little
inherent training value except in the inculcation of good work habits.
These work assignments were frequently given to new boys for a
try-out period, in order to afford opportunity to observe their atti
tudes toward work, their ability to apply themselves to an assigned
task, and any general aptitudes which they might display. The
system for classifying and reclassifying boys was such that there was
no danger that a boy would be left in such routine and relatively
poor assignment for any considerable length of time.
12. P H YSIC A L E D U C A T IO N A N D A T H L E T IC S
Physical education at this institution was a part of the program of
the regular educational department. The supervisor of physical
education was therefore subordinate to the director of education.
Physical education and athletics were directed by a man specially
trained for this work, a graduate of the University of Illinois. He
was assisted by another graduate of the same university who gave part
of his time to the physical-training program and part to the duties of
an assistant cottage master. The gymnasium in one wing of the
central school building has already been described.
Since 1920 there had been no military training at this institution.
Physical education
The work was divided into two parts, one being part of the school
curriculum, the other being the larger program for the entire institu
tion. Both parts were considered educational. Every boy attending
school was required to take physical education. Each class met 2 or 3
times a week. When the weather permitted, these classes met on the
school playground, otherwise they met in the gymnasium. The fol
lowing were taught:
Games (relays and contests):
1. Loosely organized (leap frog).
2. Semiorganized (long ball).
3. Highly organized (playground ball).
Baseball.
Track and field work.
Basketball.
Soccer.
Boxing and wrestling.
Apparatus work.
Gymnastic dancing.
Tumbling.
Pyramid building.
Care was taken to protect boys with any physical defects who might
be injured by too strenuous a program. The director was given a
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
report on each new boy by the physician, who listed any physical
difficulties or needs. Although it was the desire of the school to do
considerable remedial gymnastics, the director stated that with the
time at their disposal for individual cases it was not possible to do
anything of very considerable value. Effective work of that hind
would necessitate having the same boy at the same time every day,
which the crowded program would not permit.
The classes were operated somewhat like organized recess play. A
number of the boys were said to come to the school in poor physical
condition, undernourished and undeveloped, with poor posture and
defective muscular control and coordination. Many of them were
found to have had no opportunity to develop normal play habits. In
the regular classes every boy was expected to be busy. New boys
were patiently taught to take part. If a boy had special difficulties
he was given individual attention. This might consist of simply
starting him out at batting a tennis ball against the wall and playing
by himself until his awkward attempts gave way to a certain amount
of skill in hitting, catching, and throwing the ball. Gradually he was
worked into play with one or two other boys, and in a month or so
he was playing games with the whole group, accepted as one of them.
It was said that exercise as such was not usually particularly popular.
Therefore compulsory routine calisthenics were avoided, and every
type of physical exercise was given a motive. Instruction intumbhng
had been found to be particularly useful in that direction. Boys with
poorly developed physiques envied those who could do interesting
stunts. The weaker boys were taught how to do certain exercises
that would dev elop the particular muscles and give them the kind of
control that would enable them to do the same stunts. This often
resulted in astonishing perseverance in the routine performance of
prescribed calisthenics on the part of individual boys. ^
The average number of boys in a class was 25, so that it was possible
to give a considerable amount of individual attention. The d^ector
felt that all kinds of games, from the simplest to the most difficult,
were highly important for their therapeutic value m boys mental and
emotional life. Many of these boys had for varying reasons led lives
more or less isolated psychologically. They did not know how to
work with others. They knew nothing about teamwork, good sports
manship, or accepting defeat with good grace. It was said that it was
possible to see characters changing week by wee1 as boys learned how
to sacrifice self-interest to team loyalty.
The institution had no pool nor any facilities for teaching swimming,
except such as the swimming hole at the Boy Scout camping ground
in the woods afforded.
Sports program
The sports program was highly developed. The organization unit
was the cottage. The principal sports seasons were spring and sum
mer. The main items on the program of the spring season were the
calisthenic competition on Memorial Day and the games of the first
baseball-league series. The events in the summer season were two
trac1 and field meets on the Fourth of July and on Labor D ay and the
games of the second baseball-league series. There were three baseball
leagues for boys of different stages of growth and development. A
cup was presented to the winning team in each league.
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During the fall and winter there was a basket-ball series for the
league of first teams from the various cottages and one for the second
teams. Other events were a basket-ball foul-shooting contest on
Thanksgiving Day, an indoor relay carnival on New Year’s Day, and
an indoor stunt meet on Washington’s Birthday. The school had
a varsity basket ball team which had played about 16 outside teams
from high schools, continuation schools, and other institutions. The
team went to other towns for six of its games. The second team also
played two outside games. In connection with this somewhat elaborate
sports program the instructors were aided by the assistant cottage
masters and 2 carefully selected boys from each of the 6 larger cot
tages. These boys were taught to help coach cottage teams and to
referee intermediate and junior games.
Much practice work for the sports events went on continuously on
the individual cottage playgrounds, each being adequately equipped
to permit practice.
The director emphasized repeatedly the fact that stunts and games
did not have entertainment or competition as their basic purpose, nor
was it their intent to develop s1 filed athletes who were experts in one
sport. They sought to give a wor1 ing knowledge of many games to
all of the boys. Basically the work was designed to give an opportu
nity to all boys to participate in activities that would stimulate nor
mal physical, mental, and emotional development and the growth of
social attitudes.
13. OTHER RECREATIONAL AND EDUCATIONAL ACTIVITIES
Many of the activities usually listed as recreational were here
included among the extracurricular activities under the department
of education. At the beginning of each school year the director of
education and the director of the division of cottages and discipline
worked out together a program of activities which was mimeographed
for distribution among staff members. The program was very care
fully prepared so that there would be as little conflict as possible. This
was rendered necessary by the rich and varied program of activities
which went on continuously at this school. The management here
were firmly convinced that activities of this description play a very
important part in the normal development of a boy and in helping
him toward responsible social living. They believed that many of the
boys’ maladjustments were due to starved or thwarted needs for
mental and emotional development.
N
Music
The musical activities at this institution were carried on in a de
partment of music and dramatics. At the time the school was visited
it was without an instructor in music; therefore musical activities
were somewhat at a standstill. This was said to be merely a tem
porary situation and it was hoped that a new instructor would be pro
cured within a short time. When the school had an instructor of
music it had a first band of 40 or more pieces and a second band o f
30 or more. In addition, it had a first orchestra of 30 pieces, a
second orchestra of 20 pieces, and a string quartet.
Also as one of the musical activities the school had produced
several operettas in which as many as 100 boys of diversified talents.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
had taken part. Many concert programs had been given, and musical
numbers for a wide variety of occasions had been provided. A
weekly song festival had been held, and this group singing had been
very much enjoyed by all of the boys.
Radio
The school did not own any radio equipment for the cottages.
However, in each cottage the cottage master gave the boys the benefit
of his own radio. There was an institution-owned radio at the
hospital with a loud speaker in each ward.
Dramatics
Very considerable emphasis was placed on dramatic activities under
the direction of a full-time instructor for that work. It was believed
that through participation in dramatics boys might be aided to build
up new habits to replace behavior patterns that had been socially
unacceptable and that they would be greatly helped by these oppor
tunities for self-expression. It was thought the stage offered excellent
practice in manners and in the exercise of good taste and poise.
Training in working with the group and in timing one’s own part to
fit perfectly with that of all others was believed to be very valuable
also. Moreover, there was a wealth of opportunity for the exercise of
individual initiative and originality in connection with staging differ
ent kinds of entertainment. The staff believed that needed oppor
tunities to satisfy a creative urge and a native hunger for art forms
of various kinds were offered through these activities.
Plays, both short and long, modern and classic, were staged. The
boys did everything connected with the production^ this included
designing and making costumes and sets under the direction of the
instructor. An important phase of the work was that boys of widely
different mental levels, interests, and tastes were purposely included.
That meant that the purpose was not merely to discover and cultivate
unusual talents for this kind of work, but that the program was
definitely designed to give an opportunity for this Idnd of self-expres
sion to any boy whom it might benefit. The objective was not at
all a finished performance, but an opportunity for boys to work out
something to meet their own personality needs.
Motion pictures
A motion-picture show was held every Thursday evening and
attended by all boys who had not lost the privilege through mis
conduct. The school did not possess apparatus for showing talking
pictures and it was said that it was growing increasingly difficult to
secure good silent pictures.
#
.
Reference has already been made to the extensive use of educational
motion-picture material in connection with the classroom and voca
tional work. Most of those educational films were shown to limited
groups as a part of their school work. Some of the industrial films,
however, were exhibited to large groups of boys whether or not they
were doing school or vocational work in the field concerned. This
was done in the hope that such pictures might give the boys new ideas
end serve in a measure as vocational information relating to _the
variety of worth-while occupations open to boys at the present time.
Reading
The institution library was in the school building. The room was
furnished with a sufficient number of library tables and chairs so
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that groups of boys could use it comfortably for study and reference
work.
The library bad about 3,000 volumes. A woman librarian was in
charge full time. She stated that the present supply contained a
preponderance of fiction, though there were some good reference books
and a fairly adequate number of periodicals interesting to boys. It
was the intention to spend some money on new books shortly, and
the lists were being carefully prepared.
Each school class had one library period a week. At that time boys
were permitted to draw books through a regular library-card system
such as is used in public libraries.
Boy Scout work
In 1921 the superintendent on his own initiative organized two or
three Boy Scout troops. The boys became so interested that evening
classes were opened, and by December of that year 142 boys had
passed the tenderfoot test. This impressive showing gained permis
sion from Scout headquarters for the organization of a Scout troop,
which was formally registered. The movement had steadily grown
ever since that time.
In March 1932 the institution had 10 regular Boy Scout troops,
one troop of Scout Cubs, and one of Sea Scouts. The membership in
these troops totaled 325 boys. The work was directed by a Scout
executive who was a member of the staff of the department of educa
tion and who devoted all of his time to Boy Scout activities in the
school. He had a room in the school building which served as Scout
headquarters for the institution.
The scoutmasters were drawn from among the cottage supervisors.
These men sought to perfect themselves in their work by attending a
training school each year. Each troop had a patrol system—four
patrols to a troop with a patrol leader over each and a senior patrol
leader who was directly responsible to the scoutmaster. Each troop
had a “ scribe” who was responsible for keeping all records of attend
ance and troop accomplishment. The patrol leaders were given a,
4-day training course in preparation for their duties.
The troops constituted part of the Monmouth Boy Scout Council.
Through that membership many outside contacts were available.
Each spring and fall a competitive rally was held at the institution.
The two troops which won the highest number of points then com
peted with similarly chosen troops of the district council at a dis
trict rally. This was said to be one of the regular events which were
supplemented by many other special outside meetings and entertain
ments participated in by Scouts from the institution.
The home Scouts had a camp in the woods on ground owned by
the institution. Each troop had 1 week of intensive scouting work
at that camp every summer. It was said that practically all of them
advanced at least one rank or won at least one merit badge while in
camp. The boys had made a very good swimming hole and had
done a great deal of work in beautifying the grounds. One Scout
troop each year was given a week at Princeton Boy Scout Camp,
which was maintained by a group of interested people connected with
Princeton University. A Scout rally had recently been held at the
institution, attended by the 325 Scouts and 300 other spectators.
The assistant dean of Princeton University and one of the managers
of the Princeton camp summoned to the platform the institution troop
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
that had been at Princeton camp the past year, and together with
several visiting Princeton leaders they sang Scout camp songs, lh e
Princeton summer-camp director then presented a shield to the two
Scouts from the State home who had had their names placed on the
Princeton camp honor roll, also a loving cup to another Scout who
had made the best record for the 1931 season.
The Sea Scouts were carrying on an exceptionally active program,
a number of the boys being intensely interested m the work. I he
Sea Scout troop had recently played host to 125 Sea Scouts and officers
from six different ships in nearby New Jersey.
One cottage at Jamesburg was organized into a Boy Hanger group,
and this, too, was very active and happy in its program.
The State supplied uniforms for all boys whose parents were unable
to provide them.
,
. , . _.
The management believed that activities of this kind are a genuine
help in rebuilding character. They said that many of their boys came
to them with social attitudes distorted by their previous experiences.
In their study for Scout advancement these boys often made uncon
scious substitutions of wholesome thoughts and ideals for their pre
vious antisocial attitudes. In going through the tests for Scout work
the boys also were brought in touch with a wider range of vocational
■contacts than might otherwise be possible, and often some particular
aptitude was revealed or some interest and ability discovered that
could be utilized in working toward economic adjustment.
When a Scout was about to be paroled the parole officer, with the
help of the scoutmaster at the school and the executives m the dis
trict councils in the States, made every effort to secure the b o y 8
admission to a troop in his own community in which he would be
cordially received. In the earlier years some difficulty was experienced
along this line. Certain troops had declined to receive boys who had
been at the State Home for Boys, and some others would accept a
parolee but treated him in such a way that making him a marked
character did more harm than good. Careful and persistent work on
the part of the school authorities, together with the cooperation of
Scout headquarters, was said greatly to have reduced this attitude
on the part of local troops and to have made them conscious of their
opportunities to help these boys in their own communities and of the
contradiction of Scout ideals involved in risking the likelihood of
doing permanent damage to a boy through an unfriendly or super
cilious attitude toward him.
Other organizations and activities
The smallest colored boys had a special club all their own, organized
by their cottage mother.
The tinker shop in the school building was a busy place. I his
belonged to a cottage which housed about 50 of the smallest white
boys. These boys went around the grounds every day gathering up
discarded articles. All usable materials they turned in to the tinker
shop. During his spare time their cottage father took groups of these
boys to the shop to while away some hours tinkering. Many useful
articles were made from the material the boys had salvaged.. The
idea back of this enterprise was that a measure of thrift might be
taught in this way, at the same time that the boys were learning to
handle tools and do simple carpentry jobs such as they might have oc
casion to do around their own homes later. The boys were said to
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have made all the equipment for a camp of their own from materials
they had gathered and converted to their needs.
Another interesting experiment at this institution was the hamlet,
the miniature village that has been described. (See p. 86.) It had
been built entirely by boys who had been permitted to follow their own
bent, with little direction other than such help and guidance as they
■cared to seek. The result was a somewhat motley array of structures.
Salvaged materials had been used, and much work had been put into
some of the units. After having been closed for some time the hamlet
had recently been reopened as a cottage-family unit, to be used for
a group of exceptionally difficult and emotionally unstable boys need
ing highly specialized treatment. The new man in charge, who was
a graduate of the University of Minnesota, had been in charge of
Ranger units in that State.
Since the time of the visit the institution has continued to devote
much attention to the recreational life of its boys. Although all
cottage officers still contribute to developing this phase of the program,
the trend previously noted has gained in strength, so that one officer,
the assistant cottage father, is held specially responsible for these
activities. The following information, furnished in February 1934,
indicates progress in the development of the individual cottage pro
grams displaying a wealth of constructive activities, covering many
fields of interest to boys:
Aside from the general features of the institution’s educational, scouting,
athletic, dramatic, and religious programs, leisure activities in the cottages have
included individual and group projects of many kinds— competitive tournaments,
collections, and club work.
Tournaments in checkers, quoits, marbles, pingpong, pool, and the like are
conducted in the various cottages. Both cottage elimination contests and inter
cottage competition have been provided. Each cottage acts as host to its oppo
nents. Highly desirable intercottage visits are the natural outcome of the tourna
ment idea. It is felt that cottage spirit, as well as intercottage tolerance, para
doxical as it may seem, have both been improved.
Present economic and industrial trends, with the resulting increase in leisure
time, emphasize the need for more specific recreational training in institutional
and school programs. A comprehensive program of club activities designed to
broaden and extend the scope of the “ h obby” idea has been developed. A total
of 34 clubs have been organized. Each club meets for an hour each week, under
the leadership of a volunteer advisor (a teacher, an assistant cottage father, or
some other officer). A steering committee composed of the director of education,
supervisor of cottage training, athletic director, scout executive, and director of
music and dramatics determines what clubs shall be organized, selects the sponsors,
and passes upon the eligibility of boys to membership in the various clubs.
At a special hobby-club night held in November 1933, a total of 35
different hobby clubs were offered to the boys, 400 of whom signed
for membership. Each club consisted of not fewer than 6 nor more
than 20 boys. Some of these clubs that got off to an enthusiastic
start were as follows:
Boxing club
G ym club (for tumbling and apparatus work)
Basket-ball club
Out-door sports club (for fishing and hunting)
Card club
Games club (to organize and play games usually played in family
gatherings and at young people’s parties)
Puzzle club
Checkers club
Stamp club
Art club
Modeling and artcraft club
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
Handicraft club (for woodworking)
Linoleum block and bookbinding club
Nature club
Science and chemistry club
Aviation club
Navigation club
Travel and story-telling club
Actors’ club
Radio club (for radio construction)
Glee club
Harmonica club
Ukelele club
Five of the boys’ residence cottages had been “ adopted” by
Princeton University students; 2 to 5 students came to each cottage
once a week or oftener to play ball with the boys, or to sit around
and talk with them, telling them stories— often accounts of their own
travels, their hunting and fishing experiences. It was believed that
the informal friendly relationships resulting were likely to be of
lasting benefit to the boys.
14. R E L IG IO U S IN S T R U C T IO N
The assistant to the superintendent at this institution was particu
larly interested in the spiritual welfare of the boys and in the develop
ment of a satisfactory program for meeting their spiritual needs.
Church services for Protestant white boys were conducted each
Sunday by volunteers from Princeton University. The dean and the
assistant dean of the Princeton Theological School had become
interested in the institution, and they regularly sent either faculty or
student representatives to occupy the pulpit at the Sunday services.
On Sunday morning a series of Sunday-school classes were held in
the various cottages. The assistant to the superintendent planned
definite courses of study for these classes, adapting them to the boys’
interest and needs. The classes were conducted by volunteers from
the Princeton student body. An Episcopal rector visited the institu
tion about once a month to instruct a class of boys from Episcopal
families who were preparing for their first communion.
A chaplain for the Protestant colored boys, employed on a part-time
basis, conducted services regularly for them.
A Catholic chaplain, employed on a part-time basis, conducted
Mass for the boys from Catholic families each Sunday morning while
the Protestant boys were attending their Sunday-school classes. He
also gave some time during the week to hearing confessions and to
instructing boys for their first communion. Some months before the
institution was visited the Bishop of Trenton had confirmed 225 boys.
As the Jewish boys numbered only 5 or 6 in the entire school popu
lation, it was not thought feasible to make provision for special ser
vices for so small a group. However, arrangements were made to
have them regularly visited by representatives of their own faith,
and every possible provision was made for their observance of religious
festivals.
15.r C R ED IT S Y S T E M A N D D ISC IP L IN A R Y M E A S U R E S
Credit system
At this institution a rather complex credit system was in operation,
having been put into effect in 1918 and developed in accordance with
experience in its use.
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Each cottage master, work supervisor, shop instructor, or school
teacher marked a credit card daily for each boy under his supervision.
The boys were graded on two things— first, on conduct and effort,
second, on accomplishment. The term “ conduct and effort” was
defined as meaning progress in those qualities, traits, and habits on
which satisfactory and wholesome individual happiness and commu
nity life depend. For determining the grade such items as the follow
ing were said to be taken into consideration: Whether the boy applies
himself to his work, makes good use of his time, works to his maxi
mum ability, respects property rights of others, tells the truth, tries
to control his temper, refrains from quarreling or complaining, shows
good sportsmanship, and takes pride in being trusted. Rating on
accomplishment was based on what the boy actually had achieved in his
school or work assignments. Not only the amount of work completed
was considered, but also the manner in which it was done. The daily
marking was made in terms of “ Excellent” , “ G ood” , “ Fair” , or
“ Poor.”
The number of credits a boy earned depended on two things— the
class which he was in and the rating which he received in these
markings. Boys at the school were divided into four classes, designated
A, B, C, and D. New boys automatically took their place in class C.
At the end of 4 months they were considered for promotion to class
B, and after 4 months in class B they might be eligible for class A.
Promotion from class to class was determined at a meeting of the
supervisor of cottages, the cottage master, and the boy concerned.
It depended upon the boy’s record, but no boy could be promoted
unless his card had been clear from major disciplinary difficulty for
at least 30 consecutive days. Promotion was automatically ruled out
if a boy had received even one “ P oor” mark during that period.
Receiving 6 or 7 such “ P oor” marks automatically reduced a boy
to the next lower class. Class D was the “ noncitizen group” and
usually indicated residence in the segregation cottage or the imposition
o f major disciplinary action of some other type.
These classes had different credit-earning capacities. The number
of credits that could be earned in each class was as follows:
Daily rating
Excellent____________ _______
Good to excellent _ ______ __
_____ ____
G ood_______
______ ______
Fair to good___
_______
______ __
_______
Fair_________________ _____________ ______
_______ _
__ _
Poor to fair_____ _____ __
Poor_________________ _____
0
B
80
70
60
50
40
30
20
A
160
140
120
100
80
60
40
240
210
180
150
120
90
60
At the end of each month the daily-progress cards for each boy
were assembled and his average for the month was computed. That
average determined the number of credits with which he would be
charged. Every other month the director of cottages and discipline
spent an evening at each cottage, going over each boy’s daily markings
with the cottage master and the boy so that the boy might under
stand exactly how his final credit awards were determined and, if
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
they were low, the reasons for this. On alternate months this aver
aging was done by the cottage master without the presence of the
director.
As a means of encouraging a boy to make special effort, extra
credits might be awarded by the director on recommendation of some
one of the boy’s supervising officers, with proper representations as
to reason. Credits once earned and averaged for the month were
never taken away; that is, there was no system of fining. What was
taken away for disciplinary reasons was the right to earn the credits,
accomplished by class demotion which reduced credit-earning capacity.
After the monthly averages were made up, a list was prepared in trip
licate of the credit standing in each cottage group. One copy was
posted on the cottage bulletin board, one was sent to the parole
office, and one was kept in the office of the director of cottages and
discipline. A copy of this monthly credit summary was also sent to
the Scout executive. He was notified, too, whenever disciplinary
action was taken against a Boy Scout. It was believed that this
operation of positive social disapproval benefited the individual boy,
institution discipline, and the Scout program.
At the first reclassification meeting for each boy, the classification
committee, after carefully considering his history and his accomplish
ment since coming to the institution, set a credit goal believed to be
appropriate for him. A boy was not eligible for parole until he came
near that goal. The average credit goal was 1,440 credits. An
average boy could earn that number in about 12 months with deter
mined effort and application. If the classification committee decided
that for various reasons inherent in the boy’s past life or his person
ality it was desirable that he be kept a longer period, he was given a
higher credit goal— which might be as high as 2,000 or 2,400.
It will be apparent that this somewhat complex system was flexible
enough so that treatment within its provisions might be highly
individualized.
Disciplinary measures
Staff officers immediately responsible for the supervision of the
cottage, the classroom, the shop, or some work group dealt directly
with minor misconduct. Instances of major misconduct were referred
to the director of cottages and discipline. Usually the supervising
officer took the boy to the director’s office. The policy tended toward
centralizing all responsibility for a boy’s conduct in the hands of his
cottage father. This was in accordance with the desire to simulate
family life and parental control so far as possible. The superintendent
of course maintained final authority over the establishment of dis
ciplinary policies, but major responsibility for their administration
rested with the director of cottages and discipline. Staff members
were of the opinion that the credit system and the thoroughness with
which all officers made certain that the boys understood its operation
with respect to themselves wielded tremendous influence. This was
evidenced by the anxiety of the boys to do anything to avoid the
rating “ P oor.”
For minor misbehavior, such as persistently making a nuisance of
oneself in the cottage, boys were sometimes put “ on line” in the
cottage living room or on the playground. This meant simply that
they could not participate in games and other recreational activities
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121
going on. Deprivation of privileges was one of the customary dis
ciplinary measures in use. Since the institution was rich in activities
and privileges of all kinds that were greatly coveted by the boys,
deprivation was an effective punitive measure. As a few extremely
difficult disciplinary problems were inevitable, the segregation cottage
had been provided. As has been stated, the boys sent to this cottage
lost most of their privileges, earned no credits, did not attend school,
and were required to do the hardest and most objectionable work o f
the institution. They received practically the same food as all other
boys except occasionally such items as desserts.
Within the larger segregation group was a smaller unit for offenders
who failed again and again to respond to the more constructive treat
ment. The boys in this disciplinary unit did not go out with the
hard-work detail. Instead they were required to spend the entire
working day going through disciplinary routine exercises. This con
sisted principally of old-style calisthenics for 5 minutes, a rest period
for 5 minutes, and repeat. The monotony of this routine, rather
than its difficulty, was said to be what made it effective. The boys
were closely watched, and when their attitude seemed to have
been sufficiently modified they were transferred to the regular segre
gation-cottage detail. There was no complete isolation, except of
course for the occasional boy who became seriously disturbed
mentally. Boys were sent to the segregation cottage and released
from it by the director of cottages and discipline. It was the custom
to have the clinic staff see each boy before he was released in order
to secure their advice in the case, as has been stated. (See p. 102.)
No corporal punishment of any kind was permitted.
Forms of misbehavior considered most serious at this institution
were escape or attempt to escape, extreme insolence or insubordina
tion, and persistently committing minor offenses to an extent that
seemed to amount to willful defiance of the institution’s regulations.
Boys who did these things, also boys returned for violation of parole,
constituted the types sent to the segregation cottage. Although
smoking was not permitted by thè institution and was a matter for
discipline, it was not considered a major offense.
The general impression was that an effort was being made to in
dividualize disciplinary action as completely as possible. The pro
gressive attitude of the staff officer in charge of discipline at this
institution can best be shown by quoting his statement in a recent
report:
We are inclined to interpret discipline as the development of morale— the estab
lishing of those group and individual controls which made social achievements
possible. Its punitive and retributive “ virtues” are now entirely discounted.
In a democratic society it is far more important for the individual to learn selfcontrol, group responsibility, and social participation than for him to become a
subservient, repressed, regimentalized cog in a huge machine. It is thoroughly
inconsistent for us therefore to set up any program of training having as its prem
ise mass conformity and turn out a product which is expected to compete ade
quately in a society which places such a premium on individual initiative and
success. * * * Institution custom and tradition have been a most difficult bar
rier to the universal acceptance of a progressive enlightened form of boy control.
It is an obstacle which even after months of effective defeat raises its head to
voice objection or warning, when new methods or devices are introduced.16
18Sixty-eighth Annual Report of the N ew Jersey State H om e for B oys,
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1931-32, pp. 89 and 90.
122
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
A report of further developments in February 1934 is briefly sum
marized in the following paragraphs:
The Jamesburg training program has been so organized as to con
tribute to the development of morale—the establishing of those
group and individual controls which make social achievement possible.
For the vast majority, such indirect discipline (or training) is sufficient.
There are, of course, in any group a few who do not respond to subtle
approach. It is for these that more direct disciplinary methods have
been established.
Cottage councils, in one form or another, are in operation in all
cottages. Each council operates under a system suited to the age,
abilities, and interests of its boys. One cottage has a military court,
a Sea Scout cottage may use the “ deck courtmartial” , another the
jury plan, and the open forum is found most effective in the youngest
groups.
These cottage governing bodies have had a far-reaching influence
outside as well as within the cottage group. Any infraction of rules
in the cottage group is reported to the council by the cottage officers,
unless the case is unusually serious, in which case it is referred directly
to the supervisor of cottage training. Such referred cases represent
only outstanding and unusual forms of disorder. Each cottage coun
cil, under the direction of the cottage father, keeps a log of its pro
ceedings. This.is subject to the call of the supervisor. Any council
action is subject to review or appeal.
M ajor offenders and those referred from the various departments
of the institution outside the cottages are given a hearing before the
supervisor of cottages. If he deems the case suitable for disposition
by the cottage council, he refers it to the council of the cottage in
which the boy resides. The council, after trying the case, may return
a recommendation of demotion or segregation to the supervisor. In
any event, the final disposition of all referred eases must be approved
by him. It is sometimes found necessary to return a case to a council
for retrial when the penalty imposed is deemed out of keeping with the
seriousness o f the offense. Penalties imposed range from reprimand
to segregation and include such things as extra duty, deprivation of
recreation and other privileges, class demotion under the credit sys
tem, increase in credit goal, and change in assignment.
The fact that most cases involving misconduct will first be dealt
with by the cottage council means that a boy’s behavior at any place
becomes a matter of cottage concern. Social disapproval of the most
constructive kind is thus made possible. This type of program re
quires skillful adult leadership, but the cottage personnel believe they
can guard against the abuses that sometimes result from juvenile
participation.
A cooperative procedure has been worked out between the psycholo
gist, the resident psycifiatrist, and tfie .supervisor of cottage training,
whereby all boys requiring segregation, or other forms of treatment
outside of their eottage group, are-referred for psychological or psychi
atric study. In addition many potential offenders, as well as boys
displaying emotional instability, are referred for study. The recom
mendations of these specialists are always considered. The clinical
examinations and studies submitted are very helpful in arriving at the
final disciplinary disposition of these cases.
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STATE HOME FOR B O YS, JAM ESBURG, N .J .
123
An advisory disciplinary clinic has been established, composed of the
following members: The superintendent, the assistant to the super
intendent, the resident psychiatrist, the psychologists, the director
of education, and the supervisor of cottage training. Outstanding
problem cases may be referred to this clinic by the supervisor of cot
tage training. The disciplinary clinic is subject to call, but usually
meets regularly on Monday following the classification committee’s
meeting.
16.
IN S T IT U T IO N R E C O R D S
A very complete record system had been developed. The general
administrative records included a card file and a case-history folder
for each boy. The different departments of the institution furnished
summaries of the detailed records that were kept of all studies made
of each boy and of his progress in school and training programs.
These central records were kept by the office of the secretary to the
classification committee.
Since the time of the study a conference adjustment report form has
been evolved and put into use. Cottage officers and instructors sub
mit their estimates of individual boys on these blanks prior to the
dates on which the classification committee will consider them. The
ratings given each boy are scored, these serving as an index to the
boy’s progress in adjustment and the development of positive person
ality traits. These reports are placed in the boy’s case-history folder,
where they are available to the members of the classification com
mittee when they make out their separate case summaries.
The card file served as a general index of the boys in the institution
and on parole. This provided identifying information regarding each
boy and his commitment.
Each case-history folder contained a face sheet; a large card on
which a summary of the discipline record was entered; copies of all
the classification committee’s reports on the boy’s classification,
reclassification, and parole; copies of the reports of home visits made
by the central parole bureau preceding commitment and parole; all
correspondence relating to the case; and the commitment papers
together with any social data received from the court.
The face sheet served as a permanent record card and included,
besides identifying data such as age, color, and nationality, a summary
of the boy’s institutional history.
The record forms used by the different departments of the institu
tion in keeping detailed accounts of the boy’s movements and prog
ress and recording the study of his case were numerous and provided
for a great deal of detail. All cards and records had been carefully
devised in order to give a clear picture of the boy’s progress.
The medical department used a summary form for recording the
physical examination at entrance and various other forms for record
ing special examinations and all treatment given. A card file was
kept of height and weight records of each boy.
The psychological clinic kept records of all of its contacts with
individual boys. A copy of the report of the psychological examina
tion of all new cases was sent to the director of the mental hygiene
clinic work and to the central office of the mental-hygiene clinic of the
New Jersey State Hospital at Trenton. A simpler form was used for
reports on all other cases, a copy of which was sent to the parole
department for its record folder.
76870— 35------ 9
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T B O YS
One of the interesting and important forms used by the mentalhygiene clinic was the “ adjustment score card” , which contained
eight groups of statements that would describe the boy’s behavior.
This form was sent to the cottage master to be filled in before a boy
was to come up for classification or reclassification. The cottage
master checked in each group the descriptive phrase which best
applied to the boy under consideration. The adjustment score cards
were filed with the boy’s clinic record.
The office of the director of education kept a complete record of
each boy’s progress in school and vocational training. In each folder
were filed the following data:
Carbon copy of all classification summaries.
Regular reports of progress as submitted by teachers and work
officers.
School-record card on which school achievements were entered.
Training-progress card, showing performance in training assignments.
Transfer slips from one class or one training group to another.
The school office also kept a card file of the boy’s' progress cards,
which, as has been stated, were currently posted on a bulletin board
in each school room. (See pp. 108—109.)
The department of cottages and discipline, because of the various
activities for which it was responsible, kept rather full records. These
included the movement, assignments, and discipline of the boys, also
the detail necessary for staff assignments and relief duty in the
institution.
.
.
Records, kept in this department that pertained to the boys included
all detail relating to his custody, such as his formal receipt at the
institution, the leave granted, parole, and transfer from one cottage
or one assignment to another. Records of all disciplinary action and
all details of the credit plan also were kept here. For each boy there
was kept a credit-summary envelop, the back of which contained a
printed form for entering the summary of credits made from the daily
progress and credit cards, the boy’s credit goal, the credits added or
taken away, the date of escape if any, and the time spent in the segre
gation cottage. The daily-progress cards were summarized monthly
and then filed in this credit envelop.
The records pertaining to general items included daily-population
sheets with population changes, reports by the night watchmen who
supervised all conduct at night, and the schedule of staff and reliefofficer assignments.
.
Record data pertaining to preparole investigations and prepara
tion for parole were on file in the boy’s case-history folder, and copies
were furnished to the central parole bureau in the State department
of institutions and agencies. For description of the records of parole
supervision kept by that bureau, which is described in the following
section, see page 129.
'
_
For reproduction of some of the forms see appendix C, p. 302.
17.
PAR O LE A N D D IS C H A R G E
After the establishment of the State department of institutions and
agencies in 1918, the parole work for the correctional institutions m
the State, except the State prison, was organized in a bureau within
that department called the central parole bureau.16 Its director was
it N ew Jersey, Cum . Supp. 1924, secs. 34-42, 34-50, 34-79, 34-80.
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STATE HOME FOR B O YS, JAMESBURG, N .J.
125
under the general supervision of the State commissioner of institutions
and agencies. This parole bureau administered the parole work for
eight institutions.17 Each parole officer had parolees from several
institutions under his supervision.
The provision of the law requiring that each division of the State
department of institutions and agencies be in charge of a qualified
expert made possible the appointment of a director with special train
ing and qualifications for parole work, and the director serving at the
time of this study had had special training and experience for the posi
tion. The personnel consisted of the director, assistant director, su
pervisor of work with women and girls, 24 parole officers (18 men, 6
women), and 10 stenographers and clerks. The appointment of parole
officers was under civil-service regulation, and within the past few
years the requirements for qualifications for parole officers had been
raised to meet the following standard:
Education equivalent to that represented by graduates from colleges or uni
versities of recognized standing; standard course in social service; 2 years’ experi
ence as social investigator, or education and experience accepted as full equivalent
by the Civil Service Commission; knowledge of problems of delinquency, laws
governing commitment, care and parole of delinquents; knowledge of approved
methods of social case work, investigation ability, thoroughness, accuracy, tact,
leadership, firmness, good address.
It has been the aim of the parole bureau continually to raise the
standards of its personnel; and they had been closely adhered to in
appointments since the adoption of these requirements. Some of the
officers who had been on the staff for a number of years could meet
these requirements ; others had been in parole work a number of years
and were qualified through experience on the job rather than through
training or other prior experience.
The rules and regulations relating to parole procedure and the
granting of parole, and to its terms and conditions, were established by
the State board of control and carried out through the central parole
bureau.
In addition to the general provisions for parole, specific provisions
relate to placement in foster homes of boys on parole from the State
Home for Boys. Under these the indenture or binding out of boys is
illegal, but they may be placed in wage or boarding homes whenever
the welfare of the individual boy makes this advisable. Furthermore,
boys who have shown a capacity for more extensive training than is
offered by the State Home for Boys may be placed in educational or
vocational institutions.
These legal provisions were administered through methods adopted
by the State department of institutions and agencies. Along with the
development of the parole program, it had built up the procedure and
determined the standards on which recommendations for the parole of
inmates at all institutions were to be based. In accordance with this
procedure, the staff of each institution determined the inmate’s readi
ness for release and made recommendation to its own board of manag
ers, which had the authority to make the final decision. In the major
ity of cases the board of managers accepted the recommendations of
its staff members and its final decision was merely the giving of formal
approval.
y State H om e for B oys (Jamesburg), N ew Jersey Reform atory (R ahw ay), N ew Jersey Reform atory
(Annandale), State C olony (N ew Lisbon), Vineland Training School (Vineland), State C olony (W oodbine),
State H om e for Girls (Trenton), Reform atory for W om en (Clinton).
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
In New Jersey parole was regarded as part of the inmate’s treat
ment program— a period of adjustment under supervision from life in
the institution back to normal life in the community. The procedure
which had been developed by the department of institutions and
agencies through its classification system had always closely related
parole to the institutional treatment of the inmate. It has been
stated that “ one effect of this conception is that parole is in the minds
of the institution authorities from the moment an offender enters
prison, and the steps for scientific treatment of the individual in the
institution have, as their goal, release on parole when the time is most
favorable and under the best conditions which the staff can supply.” 18
Though the procedure which had been adopted by the State depart
ment of institutions and agencies involved a classification system
within the institution and a parole supervisory program which had
been made uniform for all the correctional institutions (except the
State prison), it will be referred to here as it worked out in relation
to the State Home for Boys.
Although the work of the classification committee has been described
in detail on pages 96-97 as it related to the planning and carrying
out of the boy’s program while he was in the institution, some brief
repetition seems desirable here in order to relate it to parole and to
point out how it fits into the parole program.
The same group of officers and staff specialists that planned each
boy’s program at the institution decided upon his readiness for parole.
At the time a boy came before the committee for his first reclassifica
tion (usually 6 months after the first classification), the committee
established a credit goal which must be reached before he could be
considered for parole. This system had been very carefully worked
out to represent a grading plan whereby the boy’s progress in all
phases of his institutional program could be measured. Each boy’s
ability and progress were weighed, and his credit goal set in accordance
to these. On the second reclassification, if a boy had made sufficient
progress and had reached his credit goal, a date was set on which the
committee would meet for parole consideration. If progress had not
been satisfactory, the case was continued for further reclassification
without consideration for parole.
During a boy’s stay at the institution the central parole bureau had
already become acquainted with the case through a home visit made by
a parole officer as soon as possible after the boy was admitted. This
visit was considered a part of the classification program, as it^ was
requested of the parole department for use in the boy’s first classifica
tion. The parole department again became active on the case in
the preparóle program of the classification committee; when the date
was set for parole consideration, a request was made for investigation
of the boy’s home. This investigation was made by the parole officer
to whom the boy was to be assigned for supervision, if returned to
his own home.
.
Further preparation for parole included reexamination of the boy
by staff specialists, including the physician, the psychologist, the psy
chiatrist, the educational director, and consultation with the chaplain,
and the disciplinary officer.
i'Lane, W inthrop D .: Parole Procedure in N ew Jersey.
v c 122. no. 3 (September 1931), p. 380.
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STATE HOME FOR B O YS, JAMESBURG, N .J.
127
The meetings of the classification committee at which boys under
consideration for parole were discussed were attended by representa
tives from the central parole bureau— usually either the director or
his assistant— and each of the district parole officers to whose districts,
boys who were coming before the classification committee would
probably be sent.
.
this conference each member had in hand the original classifica
tion summary, the reclassification summaries, and the report of pre
parole home investigation for each case. In the uniform procedure
recommended for use of the classification committee the following
points were enumerated as those to which the classification committee
m conference with the parole officers should give especial attention
m each case: The boy's physical and mental health, his industrial
and educational competence, his social adaptability, and the condition
of the home to which he was to be paroled.
The case of each boy was discussed and the following matters
determined: First, whether or not the boy himself was really ready
Paro^e j second, whether he should be returned to his own home;
third, whether, if his home was utterly unsuitable, he should be tried
in some other placement; fourth, whether he should continue in
school or what plan should be followed in helping him to make
adjustment in the community to which he was going. When the
committee had reached a decision, the boy was called in and told in a
friendly manner what plan had been made for him and why. If he
was to be released on parole, he was introduced to the parole officer
who was to supervise him. The parole officer arranged for a conference
with the boy following the meeting and discussed the plan with him
m more detail. The boy was given a little pamphlet which outlined
parole duties and explained just what was expected of him.
. As has been stated, final approval for parole in each case had to be
given by the board of managers of the institution, which usually
accepted and approved the recommendations of the parole committee.
. At the time the institution was visited an interesting and important
piece of work was being done in relation to parole by a member of the
staff of the State department of institutions and agencies. „ She was
trying to stimulate in local communities in the State work which
would assist in preparing the home and the community for the boy's
return on parole. If the parole officer who made the visit to the boy’s
home after he entered the institution found dependency a factor, or
noted other family situations seriously affecting the boy's case, that
officer referred the family to her, and she tried to find a local agency
to work with the family while the boy was in the institution. If
younger children in the boy’s family appeared to need care and atten
tion, she referred the case to the proper agency. She also had assisted
in making adjustments through securing the help of local agencies in
special cases, particularly those involving physical handicaps or
especially difficult school adjustment.
When the boy had been released from the institution, the central
parole bureau became responsible for his supervision. The State was
districted geographically for assignment of cases to the parole officers.
On March 12, 1932, 16 men officers had 1,035 boys from the State
Home for Boys under supervision. These same officers also were
supervising older boys and young men on parole from the two State
reformatories, and children from the State institutions for the feeble
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
minded. Their average case load was 175, including all types of
parolees.
The standard for field parole work kept in mind by the central
bureau was active social case work for every person on parole. The
bureau realized that the average case load of the officers, particularly
of the men officers, was too large to permit satisfactory case work.
Nevertheless, the standard urged for these officers was that of
the better type of family-welfare society. It was believed that this
was achieved in a large number of cases, though not in all. An effort
to meet the situation and to raise standards of work had been made
by adopting a program of gradually diminishing supervision. That
is, intensive supervision was given immediately following the boy’s
release from the institution and at times of subsequent emergencies
while he was still on parole. The officers made considerable effort
to help boys get work and recreational connections and to give such
other help in adjustment as was seen to be needed. When a boy had
done very well on parole for some time, he was placed on what was
called quarterly supervision, which meant that the officer was held
responsible for ascertaining his situation four times a year. The
average period for active supervision— that is, before placement on
quarterly supervision— was 1 year. The next step was to promote
the boy to semiannual supervision, which usually was done about a
year later. When the boy appeared to have made a thoroughly
satisfactory adjustment, he was granted a conditional release, though
remaining legally under control until he became of age. This con
ditional release merely discontinued visiting and reporting as long
as the boy’s conduct was satisfactory. If it was found that his con
duct was not satisfactory, active parole might be resumed or the boy
might be returned to the institution for violation of parole. Thus
the boys were given the most thorough supervision during the earliest
period of parole.
Another procedure frequently used in releasing boys on parole was
trial parole for 3 months in special cases. These cases were grouped
with the active-supervision cases in the parole officer’s case list.
They received special supervision as needed. At the end of 3
months the case was reviewed to determine whether the boy should
be placed on the regular active-parole basis, or be returned to the
institution, or continued for another trial period.
There was no fixed schedule of types of conduct that were to be
considered parole violations. The matter was determined on an
individual-case basis and was left largely to the judgment of each
parole officer as he knew his boys and their community. The deci
sions of course were subject to supervision from the central office.
Boys were returned to the institution not only if they committed
overt violations of parole, but also if their family situations became
undesirable or actually harmful, if they needed medical care, or if
their conduct was so noticeably unsatisfactory that a short period of
further adjustment and training was deemed advisable.
Boys were not committed to the State home for any definite term
but might be detained until they became 21 years of age, unless
sooner discharged. Boys remained on the parole list until they
became 21, even though they had been discontinued from active
supervision on conditional release. Boys who were committed to
other correctional institutions while on parole from the State Home
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STATE HOME FOR B O Y S, JAM ESBURG, N .J.
izy
for Boys were declared “ delinquent parolees” and removed from the
State home parole lists.19 When paroled from the subsequent insti
tutional commitment they were again under supervision of the cen
tral parole bureau, and usually assigned to the same officer under
whom they had been on parole from the State Home for Boys.
Boys who enlisted in military service were carried as parolees until
they became 21, like those given conditional release.
The records of the boy’s parole history kept by the central parole
bureau consisted of a case folder for each boy, containing the identify
ing face-sheet information; copies of all classification-committee
reports from the institution; copies of the home investigation after
entering the institution and before parole; field reports of visits
made by the parole officers; and all correspondence relating to the
case. Special blanks were furnished for the reports of the home
investigations and the parole officers’ visits. Each parole officer
kept a, loose-leaf notebook with a page for each boy on wMch he noted
the “ high spots” of his parole progress as convenient means of refer
ence during his work in the field. The only records on parole kept
by the mstitution were the reports of the home visits made by the
parole department. If boys were returned for parole violations, the
central parole bureau sent a summary of pertinent data to the insti
tution. A card file consisting of the permanent parole record cards
also was maintained.
18. PLA N T A N D P R O G R A M C H A N G E S IN R E C E N T YE A R S
Of the cases analyzed in part 2 of this report (see p. 10), 153 were
of boys who had been under care at the New Jersey State Home for
The dates of commitment of these 153 boys varied more
widely than those of the other institutions studied because of a differ
ent policy with regard to parole and discharge in New Jersey. Some
of these boys had been originally committed as early as 1914, and the
commitments were scattered over the next 10 years, the last being in
1924. By far the greater percentage of the boys were admitted and
were at the home during the years 1918-23, inclusive.
Great changes had been made in both plant and program between
1918 and 1932. Many of those changes were being put into effect
during the training period of the 153 cases studied. The report of
the institution’s board of managers for the year ended June 30, 1921
frankly stated that when that particular board took charge in 1918
the condition of the plant “ was almost notorious, as a result of
inadequate funds for repairs, lack of skilled labor, and other condi
tions.” In the fiscal year 1919-20 enough repairs had been made
to brmg about “ very substantial improvement.” 20 In the following
year under a new superintendent, the program of reorganization was
begun.
By 1924 most of the old buildings had been put in good repair and
some construction work had been done. One new cottage had been
erected, and the wing which was used as a reception cottage had been
added to the hospital building. An extensive building program since
that time had put the plant in the condition found at the time the
i» New Jersey, Cum . Supp. 1924, sec. 34-146
j “ r i S x 0,'p‘ 5e7,i ' '
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FIVE STATE INSTITUTIONS FOE D ELIN Q U EN T BOYS
institution was visited. The addition of 8 new cottages for boys had
made it possible to relieve crowding and to cut down to some extent
the size of the cottage families.
Comparison of the figures shows an increase in school population
during the past few years, accompanied by an increase in personnel
that kept the ratio of boys to employees almost the same. The per
capita cost had been considerably reduced, although lack of detailed
information as to the method Qf computing the per capita cost at the
earlier date makes it uncertain whether the two figures are exactly
comparable. Figures for 1922 and 1931 (fiscal year ended June 30)
are as follows:
Item
1922
491
128
3. 1
$651
1931
625
172
3. 6
$556
Before 1919 the facilities for physical examinations and medical
care had been exceedingly limited. The nonresident physician in
charge then had only a practical nurse to assist him. The hospital
had consisted of 2 wards of 8 beds each, a small dispensary room, and
the nurse’s apartment. There had been no equipment for even the
simplest surgery. In 1920, when another physician was put in charge
and made resident physician, he was given the assistance of two sur
gical nurses. The operating room was built and equipped in 1921 and
in the two following years the hospital was remodeled, with the addi
tion of a wing for the reception of new boys, so that the whole func
tioned as a medical social unit in the institutional program. Consult
ant service was built up and corrective work was undertaken in
relation to treatment plans, with the boy’s social and economic
adjustment as their objectives.
Through the increasingly thorough examinations a larger proportion
of the new boys were found to be suffering from remediable physical
defects, such as diseased tonsils and defective teeth. Recommenda
tions for the correction of these conditions were acted upon promptly.
The year 1919 also marked the beginning of extensive use of
psychological examinations at the institution. Dr. E. A. Doll, now
director of research of the Vineland Training School, and Wm. J.
Ellis, now commissioner of the State department of institutions and
agencies, gave psychological tests to 480 boys that year, using the
Army alpha test. Dr. M . J. McCallie, now assistant to the superin
tendent of the school, gave them the Otis group-intelligence test.
Meanwhile the State classification procedure was being worked out,
and it was first tried at the State Home for Boys late in that
same year. During the next few years psychological examinations
became a matter of regular routine, and the findings began to form
an important part of the material upon which the classification
committee based its plans for individual treatment.
In the fiscal year 1920-21 psychiatric examinations were given to
316 boys. Of that number 2 had been sent to the State Hospital,
5 percent had been diagnosed as “ constitutional inferiors” , 7 percent
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STATE HOME FOR B O YS, JAMESBURG, N .J .
131
were found to be suffering from “ personality disorders” , and 20
percent were described as “ mentally deficient.” Many of tbe
feeble-minded boys were transferred to the State institution for
defectives (Vineland Training School).
These years therefore saw the beginning of clinical approach to each
boy’s problems and of practical use of clinical findings in planning
and carrying out treatment plans for him through the classification
and reclassification procedures in operation at the time the institution
was visited.
In 1920 the “ school of letters” had on its staff a principal and 8
teachers, only 3 of whom had certificates for teaching, and was
described as “ woefully undermanned.” 21 Steps to improve this
situation were taken immediately, and through the next few years
the academic work was gradually improved and methods of correlating
the classroom work with the developing vocational and prevocational
courses were being devised and tried.
The institution had had the usual maintenance shops where boys
were kept busy making uniforms and shoes and repairing buildings
and equipment under the direction of foremen who were skilled work
men. Excellent in its way, this apprentice style of work offered trade
training to a certain number of boys. But the work to be done, rather
than the needs of the boys, was rated as of primary importance. This
great problem in education the new management tackled with interest
and with vision. In 1922 the manual-education school was opened
and thereafter the program for coordinating the academic, with the
manual and vocational training had steadily developed, changes
experience indicated as desirable being made from time to time. M ost
important of all was the revolution in attitudes gradually instilled in
the personnel. Through persistent education of the staff all the insti
tution’s activities had been brought into the training picture, and
every employee on the place had been impressed with the idea that
his main function was to be a teacher. Naturally this had been a
slow process, taking years to accomplish and needing repeated
emphasis.
It was in 1923 that the classification committee began to assume
the responsibility for making all assignments to trade courses as well
as to other phases of school life. The value of having this done by
persons who had at hand a great deal of information about individual
mental levels, aptitudes, and personalities was soon demonstrated.
By 1925 the classification committee had taken over all assignments,
even those to routine work details. The most important develop
ments in trade-course planning and classification procedure had un
doubtedly occurred after most of the boys included in this study had
completed their training periods.
It is interesting to note the doubt with which the board of managers
had viewed the extensive farming operations as far back as 1921:
We have felt increasing doubt of the wisdom of an institution of this sort being
tied up with the operation of a farm of such great size. The conduct of a State
enterprise in farming takes too large a share of the interest and energy of the
officers of the institution. The idea that there is available at the State home a
large amount of free labor, which will go to waste unless there is a large farm to
operate, is certainly mistaken at the present time even if it ever was correct. The
average age of our boys when entering is less than 13 years, and the average age
when leaving is hardly over 14; and the number of boys suitable for farm work,
S1 Ibid., p. 16.
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outside of the dairy and truck farming is limited almost to the group in Cottage
Eight. Even in the case of these boys the purpose of reeducating them to return
to the communities from which they came is almost entirely defeated by keeping
them at farm labor. They are nearly all city boys, and will return to city conditions ^
•
Out of that intelligent questioning came, no doubt, the backing
which, was given to th.e experimental work of developing trade courses
that would give th.e boys something different from the use of free
child labor to perform maintenance and production work.
Until 1920 there had been no organized recreation or athletic sports.
Cottage masters had directed such organized play for their individual
groups as time permitted. In 1921 a physical director was procured
and planned athletics and physical-education work developed rapidly.
In 1920 this institution had been in effect a military school, with boys
and staff officers in uniform, drilling regularly. All military activities
were abolished under the new management in 1920, and citizens
clothing was adopted for both boys and staff.
The Boy Scout movement took form in 1922 and grew rapidly.
B y the end of that year 5 cottage masters had qualified for scout
master and 144 Boy Scouts had been registered. In 1923 the first
Boy Scout camp had been organized. The immediately ensuing years
saw the gradual enrichment of the program of activities through which
boys might find an opportunity for wholesome expression of the nor
mal impulses which inevitably bring boys into conflict with any unna
turally repressive regime.
;
4
The board of managers that took office in 1918, with the aid of the
new superintendent from 1920 to 1923, were responsible for the intro
duction of all sorts of progressive ideas and procedures. In the matter
of discipline they did some straight thinking. As in 1918 they had
found hardly a trace of such ideas in the institution, they had set
out to do some experimenting which they themselves said might
properly be called “ reforming the reform school.” T o continue m
their own words—
The old repressive method of discipline seems to have for its mam purpose
making life simple and easy for employees, rather than benefiting the boys under
their charge. Our belief is that discipline should be positive rather than negative
and should aim to make the boys capable of becoming self-directing free citizens
when they go back to their communities. Discipline should not have as a purpose
to break the will, but to train it in the right channel.23
Corporal punishment was abolished. Experiments in self-govern
ment under officer control were carried on. Gradually the disciplinary
system came, by reason of successful experimentation, to be based on
the principle underlying the earning or forfeiting of personal privileges
in relation to participation in the increasingly informal cottage “home ”
life and the many forms of organized play and constructive activities
that were being developed.
. . .
. . .
With the centralization of the administration of institutions and
agencies brought about by 1918 legislation the centralized parole sys
tem had come into being. In 1922- the central parole bureau was
reported to have had under supervision about 3,000 parolees. Thecase load per field officer averaged about 210. This new bureau had
taken into its personnel the former field officers of the various institu
tions. Although they were stated to be mostly untrained officers, they
M Ibid., p. 8.
23 Ibid., p. 13.
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were doing as well as possible according to the dictates of common
sense. Trained supervision became available about 1923, and stand
ards improved greatly after that time. Parole officers with trainingand experience had been sought and employed whenever possible,,
modem methods of case work had been adopted, and better super
vision had been provided.
Obviously the boys included in this study who had been under
care in the New Jersey State Home for Boys had been subjected to
treatment under a continuously changing program, during the period
when old repressive methods of discipline and inadequate educational
facilities were giving way to progressive ideas in both fields. Only
a thorough analysis of all the institutional data available in each case
can show to what extent the new methods were brought into play in
relation to the treatment of the particular boys studied.
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Chapter V.— STATE AGRICULTURAL AN D INDUSTRIAL
SCH OO L, IN D U STR Y, N. Y.
To obtain information for this report relative to the physical plant
and the treatment program in effect at the State Agricultural and
Industrial School at Industry, N. Y., the institution was visited by
field workers late in March 1932. The material included here refers
to conditions prevailing at that time, unless there is a statement to
the contrary.
1.
S T A T U T O R Y P R O V IS IO N S G O V E R N IN G E S T A B L IS H M E N T A N D
O P E R A T IO N
The Western House of Refuge for Juvenile Delinquents was estab
lished in Rochester, N .Y., in 1850, having been authorized by a law
passed in 1846. This institution was to serve the western part of the
State primarily, the specific counties to be designated by the Gover
nor. The governing body was to be a board of managers consisting of
15 “ discreet” men appointed by the Governor, Lieutenant Governor,
and Comptroller to serve without compensation. The institution
was to receive boys under 18 years of age and girls under 17 who were
legally committed as vagrants, or on conviction for any criminal
offense, by courts having authority to make such commitments.
The managers were given power to place the children committed to
their care during their minority at such employment and cause them
to be instructed in such branches of useful knowledge as might be
suitable to their years and capacities. They could also bind the
children out as apprentices or servants during minority. Such inden
tures were to be for the purpose of learning trades and employments,
which in the judgment of the board of managers would be most for
the reformation and amendment and the future benefit and advantage
of such children.1
The provision for payment for care in this first law was interesting.
It stated that the board of supervisors of each county designated to
send juveniles to the institution were to raise annually such sum “ as
shall in their opinion be sufficient to pay to the treasurer of said house
of refuge .50 cents per week for the support, maintenance, and care of
every person sentenced in their county to confinement therein.” This,
however, remained in effect only until 1852, when it was repealed.2
In 1886 the institution was renamed the State Agricultural and
Industrial School, and in 1902 legal action provided for the selection
of a new site on which new buildings were to be erected. When com
pleted this new institution was to be called the State Agricultural
and Industrial School and was to be “ used by the State for the pur
pose of caring for and training all juvenile delinquents properly com
mitted thereto by courts of competent jurisdiction in accordance
with existing laws authorising commitments to the State industrial
1 N ew York, Laws of 1846, ch. 143; Laws of 1850, ch. 24.
1 N ew
York, Laws of 1846, ch. 143; Laws of 1852, ch. 387.
134
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N E W YO R K STATE AGRICULTURAL AND INDUSTRIAL SCHOOL
135
school.” 3 The buildings were started on the present site at Industry
in 1904 and completed in 1907.
While the new institution was being built at Industry, the State
legislature discontinued the girls’ department at the Western House
of Refuge and authorized the State Industrial School at Rochester to
be continued as an institution for boys.4 Thus girls have never been
received at this institution since its establishment at Industry as the
State Agricultural and Industrial School.
Since 1867 this institution has been under the supervisory control of
a State agency created in that year which, after .some change in name,
is now the State department of social welfare. The general reorgani
zation act of 1926 transferred to the department of social welfare
certain authority formerly vested in the local board of managers of
the institution, changing that body to a board of visitors, still con
sisting of 15 members, with no compensation other than actual and
necessary traveling and other expenses.5
The legal provisions as to age of commitment had remained the
same, except for the first few years. Boys under 16 years of age
found to be delinquent by any children’s court might be committed
to the school, but no boys under 12 might be committed for any crime
or offense less than a felony. Commitments were indeterminate in
effect, in that boys might be paroled or discharged at any time after
commitment in accordance with rules and regulations made by the
State department of social welfare. However, they remained wards of
the school until they became 21 years of age, unless sooner discharged.6
At the time the institution was visited for this study (March 1932)
boys might be committed from any rural county in the State, but
not from the urban counties of New York, Bronx, Queens, Richmond,
and Kings. Boys from these latter counties were to be committed to
the House of Refuge in New York City.7
Since that time, with the opening of a new institution— the New
York State Training School for Boys— at Warwick, N .Y., in 1933, the
geographical districting for commitment to Industry has been further
restricted, and boys may be committed to Industry from the fourth,
fifth, sixth, seventh, and eighth judicial districts only (including 43 of
the 62 counties in the State). The House of Refuge in New York
City then became an institution to care for boys 16 to 19 years of age.8
Statutory provision was made for requiring parents to pay some
thing toward the boy’s care in the institution. The court was charged
with ascertaining the financial standing of the parents or other persons
responsible for the boy’s support. If it was found that they were
able to pay anything toward his care, the court was obliged to so
order, in whatever amount was judged fair and equitable, but not to
exceed $10 a week. The treasurer of the institution was required to
* N ew York, Laws of 1886, eh. S39; Laws of 1902, ch. 627.
v iir w a 'S ; 16rn -A P 0 t ^ e i laT ,of *5 ? s,am®year established an industrial school for girls,
designated the N ew York State Training School for Girls, b y reserving for girls under 16 vears of ave thA
house of refuge for wom en at Hudson, N . Y . (Laws of 1904, ch. 453).
7
E 1 e
* N ew York, Laws of 1867, ch. 951; laws of 1926, ch. 343; Cahill’s Consolidated Laws 1930, State Charities
Law, secs. 50-52,180. See Eightieth Annual R eport of the Board of Visitors of the State Agricultural and
industrial School, Industry, N .Y ., for the year ending June 30,1928, p. 16.
Agricultural and
, N ew York, Cahill’s Consolidated Laws 1930, State Charities Law , sec. 196 ( 1 ) .
' Ibid., sec. 184. See also p. 7 of this report.
9isJ^eW
n aW-S of 1932' Ph - 414 (1932 Supp. to Cahill’s Consolidated Laws 1930, Penal Law, secs. 2184
inclu<Ied in the fourth, fifth, sixth, seventh, and eighth judicial districts
^rintHnatIVST^enectadyT^ ontgol? ery! F uJton’ Saratoga, W ashington, Essex, Warren, H amilton, Clinton
Franklin, St. Lawrence; Jefferson, Lewis, Oswego, Oneida, Herkimer, Onondaga; M adison, Otsego Dela
ware, Chenango, Broome, Tioga, Chemung, Schuyler, Tom pkins, Cortland; Steuben, YatesS Seneca
Genesee M e a n s ’ N iagara’ 0 n ta n o’ Livingston; A 11egany, Cattaraugus, Chautauqua, Erie, W yom ing’
d
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
keep in a separate fund any such money that might be collected and
at the end of every month to pay it to the treasurer of the State to be
added to the general fund.9
2.
T H E P H YSIC A L P LA N T
Location
After the change of site the New York State Agricultural and
Industrial School was about 12 miles southwest of the city of
Rochester, N.Y. The location was rural, Industry being merely the
name of the institution post office and railroad station. There was
no town or village of that name. The village of Scottsville with 936
inhabitants was 2 miles distant. This afforded nearby small stores
and garages, although Rochester was the real center for all purchasing
and recreation.
The highway which passed through the center of the grounds was
a main highway, but not arterial, and was a connecting link between
two main routes; it carried considerable traffic. A branch line of the
Erie R .R., between Rochester and Corning, passed directly through
the campus. This furnished train and mail service about four times
a day.
The surrounding countryside was rolling farm land with low hills
and some woodlands. The Genesee River flows through the institu
tion property.
There was no distinct central campus about which all the buildings
had been grouped, as in the other schools included in the study.
With the development of more centralization, diverging from the old
separate colony plan, a unit of buildings centering about the school
building was being developed. Aside from this one group of buildings,
some of which were still in process of erection, the units were widely
scattered, and there was little appearance of an institution as one
approached from either direction.
Acreage
Under the old program the entire emphasis was on agriculture.
The institution owned 1,432 acres of land. This was originally
broken up into 32 separate farm units, operated really as 32 indepen
dent farms. One hundred and six acres comprised the land used for
the central group of buildings, lawns, and grounds about the separate
colonies, the hospital, and other units. Some of the farming was still
done in separate colony plots. In all, 652 acres were under cultivation;
the balance was meadow, pasture, and woodland.
Administrative offices
In the early plan of this institution the underlying purpose was to
avoid any appearance of an institution. The original buddings were
all of frame, each of slightly different architectural design. The
administration building belonged to this group of early buildings.
It was of frame construction, two stories in height, with an attic that
was almost equivalent to a third floor. With its pdlared portico and
with its lawn it was like a large private residence in appearance.
The offices of the superintendent and assistant superintendent, the
business administration, the chaplains, the head matron, and the
parole department were on the first floor. One large room was set
aside as the board room. The second floor was used for rooms for
* N ew Y ork, Cahill’s Consolidated Laws, 1930, State Charities Law , sec. 196 (5).
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137
women members of the staff. No sign designated the building^ The
offices were small, and those in which several persons worked in one
room were crowded.
Boys’ residence quarters
The boys’ residences were still referred to as “ colonies” , as in the
early days of the school under the independent farm unit plan. They
were widely scattered, some of them being as far as 2 mfl.es from the
administration office and the school building. Twenty-four of the
thirty-two original colony houses were still in use for boys. All were
frame, of varying types of architecture, carefully designed so as not
to be uniform nor to present the appearance of an institution. They
looked, as was intended, like ordinary farm houses.
Some of the smaller colonies used one room as living room and
dining room combined. A few had separate living rooms. All were
attractively and comfortably furnished. The windows had gay cur
tains and the wall decorations were cheery. The separate living
rooms were supplied with comfortable chairs but had no tables for
games, the dining-room tables being used for that purpose. However,
both living rooms and dining rooms were in constant use and were
in no sense show places. All the colonies contained dormitories.
These were small, as each colony had a maximum capacity of 25 boys.
The buildings were old, and plumbing fixtures were not of the
most modern type. However, the upkeep was good, and sanitary
facilities were fairly adequate. Two colonies set aside as disciplinary
units, one for younger and one for older boys, were little different
from the others, except perhaps not quite so attractively furnished.
There were no additional security features in the physical equipment
of these colonies. None had any bars or heavy screening at the
windows.
Staff residence quarters
Although the institution was rural in location, a number of the
staff members lived in Rochester or nearby small towns. This was
particularly true of the academic teaching staff. The principal of
the academic school preferred that the teachers live off the grounds.
For the resident officers with families, there were 6 small frame
cottages and recently remodeled quarters in 2 of the 5 colonies which
had been discontinued as boys’ residence quarters. The officers
were charged a nominal rent for these. The night guards had a
anrm.11 cottage ; the few single men living at the institution had rooms
in various colonies; women teachers and office staff had single rooms
in the administration building and annex; colony supervisors lived
at their respective colonies; and the hospital staff, three nurses and
a cook, had quarters at the hospital.
The superintendent’s residence was a large white house, at the top
of the hill, affording a beautiful view and standing out from the other
buildings as one approached the institution.
Dining-room and kitchen facilities
Each colony had its own dining room and kitchen. Small tables
were used, with white table linen and china dishes. The only central
dining room was one used for some of the officers located in an annex
adjacent to the administration building. Four large tables seating
12 to 14 persons and two small tables each seating 5 or 6 made the
dining room rather crowded. Seating capacity was not sufficient for
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
all the officers at one time.
equipped.
The kitchen was small but fairly well
Chapels and assembly hall
Two chapels, one Protestant and one Catholic, and the assembly
hall comprised a unit of buildings situated on a hillside, adjacent to
the central school building. The two chapels were of brown shingles;
the assembly hall between them was frame, painted white. The lat
ter was one story in height; it had a small stage and was used for all
assemblies and for a gymnasium. Seating arrangement was by port
able chairs. The room was finished suitably for use as a gymnasium,
and hence was not particularly attractive as an assembly hall.
Both chapels had distinctive interiors containing elements of real
beauty. The Catholic chapel had an unusually attractive altar and
furnishings. The wall decorations surrounding the altar were rich
in color, with soft dark green and gold predominating. The same
color scheme was continued in a decorative band around the chapel
wall above the dark wood wainscoting. The windows were colorful
and designed in excellent taste. It took very close inspection to
discover that they were not stained glass but transparent colored
paper carefully applied in stained-glass designs. All this has been
described in detail because it had been done by the boys themselves
under the direction of the officer in charge of field parole and the lead
ership of the vocational instructors. The Protestant chapel was
similarly decorated except that the coloring was maroon and gold.
Both chapels had small pipe organs.
Hospital
The hospital, a 3-story brick building, was at some distance from
the administration building, on a hill commanding a view of the insti
tution grounds and the surrounding country.
The hospital had a bed capacity of 40 but could care for 50 boys
very easily. There were 3 wards (2 for sick patients, and 1 for con
valescents), 6 individual rooms, and a very attractive porch, used for
special convalescents. The hospital was equipped with its own sur
gery, complete enough for performing major operations, but did not
have an X -ray laboratory; such work was done at the General
Hospital in Rochester.
The third floor of the hospital was used for living quarters for the
hospital staff.
School building
The central school building had been in use only since September
1930. It was about a city block from the administrative office and
part way up a gentle slope. Although this building was centrally
situated in the new plan of centralization of training activities, it was
as much as 2 miles from some of the outlying colonies.
The building was of red brick, fireproof, two stories and basement.
It housed, besides the academic department, the office of the Boy
Scouts, the offices of the clinic of psychiatry and psychology, the school
nurse, the dental hygienist, the vocational director, and some trade
shops. A large attractive room was set aside for a school library,
but no considerable number of books had been obtained. Lighting
and ventilation in all the classrooms were good. The walls were
white and the woodwork gray. School desks of the usual type were
provided. Gay paper cut-outs and art work done by the boys and
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pinned up around the blackboards added to the cheerful and attractive
appearance of the rooms.
Shops
Some of the shops, including printing, mechanical drawing, and
carpentry, were in the basement of the school building. This was a
temporary arrangement pending the completion of a group of trade
buildings whose construction was in progress. The trade-unit plan
contemplated the erection of 12 small, square, 1-story brick buildings,
each to house a separate trade and its allied training courses. These
trade buildings were adjacent to the school, and were being built very
close together.
Such trades as plumbing, electrical work, and painting were largely
carried on in connection with maintenance work; and no shops had
been set up as yet. The transition from a purely agricultural training
course to a vocational program was still in process, and the facilities
for shops for trade work were somewhat limited.
Farm buildings
The existence of practically 32 independent farm units under the
former agricultural program resulted in a wide scattering of farm
buildings. While the agricultural program was being centralized the
various farm buildings were still scattered, and the major farm build
ings were at different outlying colony sites. For example, the dairy
barns were all about 2 miles distant from the administration and
school plants in one direction, and the poultry buildings were 1 mile
from the center in the opposite direction. All the farm buildings were
fairly adequate and were well kept. The machinery and equipment
were modern and sufficient to permit the teaching of up-to-date farm
methods.
Gymnasium and athletic field
The institution had no gymnasium building at the time of the visit.
Plans had been drawn for a new gymnasium to cost $150,000 but no
funds had been secured. The assembly hall was used as a gymna
sium. Besides providing space for floor gymnastics, it had a basket
ball court. Ample space for such outdoor athletic activities as base
ball, basketball, and football was provided near the school building.
Each colony had its own play space. A new outdoor swimming pool
had been completed in 1931.
3.
P L A N T V A L U A T IO N A N D O P E R A T IN G E X P E N S E
The business office supplied the following figures relative to the
plant valuation:
Lands-----------------------------------------------------------$184, 966. 88
Buildings________________________________
603,331.53
Equipment--------------------------------------------------------------241,376.58
Total_________ _____ _______________________
1,029,674.99
The values given represented amounts expended by the State for
these purposes and not the findings of recent appraisals.
The business office supplied the following information relative to
costs of operation for the year ended June 30, 1931:
Salaries------------------------------------------------------------------- $279, 861. 46
Maintenance and supplies__________________________
189, 211. 15
Total-----------------------------------------------------------76870— 35------ 10
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
As the average daily population was 572, the per capita cost (cost
per boy) was $820.06. This cost did not include any charge for food
produced and consumed. These “ home products” were valued at
$89,587.31.
4.
A D M IN IS T R A T IV E C O N T R O L , STAFF O R G A N IZ A T IO N , AN D
P E R SO N N E L
Administrative control
Functional control over the New York Agricultural and Industrial
School rested with the State department of social welfare, as has been
previously shown. (See p. 135.) Fiscal control was vested in the
State department of standards and purchase.
The local board of visitors, subject to the authority of the State
department of social welfare, was responsible for the general manage
ment of the school and was to “ take care of the general interest of the
institution and see that its design is carried into effect.” 10 The board
or a majority of its members were required by law to visit and inspect
the institution at least once each month and within 10 days after each
visit to make a written report to the department of social welfare and
to the Governor. This board was reported to be a very active group,
which maintained standing committees and kept in close touch with
the school. Its duties included primarily “ the maintenance of an
effective inspection of the institution” , according to the formal bylaws
that had been adopted.11
Close working relationships of purely advisory character were main
tained with other State departments and divisions, such as architec
ture, budget, education, health, and farms and markets.
Immediate executive control was vested in the superintendent, who
was appointed by the director of the State department of social
welfare.
Personnel: Number and duties
The pay roll at this institution carried 204 full-time and 7 parttime employees. The following positions were listed:
Superintendent___________________
1
Assistant superintendent__________
1
Second assistant superintendent___ 1
Steward__________________________
1
Secretary to superintendent_______ 1
Clerical workers____________________ 13
Superintendent of schools_________
1
Teachers__________________________ 18
Director of trade education_______
1
Instructors, trade education 12_____ 19
Athletic director and assistant____
2
Colony supervisors_________________ 23
Relief supervisors_________________ 5
Colony matrons____________________ 34
Relief matrons______________________ 5
General supervising matron_______
1
Other matrons__________________
2
Day guards_______________________ 2
Night guards_______________________ 27
Relief guards_____________________
3
Physician (part tim e)____ - _______
1
Dentist (part time)________________
1
Optical surgeon (part tim e)________
1
Nurses________________
2
Hospital matron___________________
1
Dental hygienist___________________
1
Psychiatrist (part tim e)___________ 1
Psychologist____________________
1
Psychiatric social worker_____ ____ 1
Chaplains (1 part time)___________
3
Organists (part time)----- -------------- 2
Boy Scout director________________ 1
Farm supervisor_____________________ 1
Engineer and electrician__________
1
Assistant engineer and electricians. 4
Chief parole agents_______________
2
Parole agents.:____________________ 8
Other personnel13_________________ 18
io N ew York, Cahill’s Consolidated Laws 1930, State Charities Law, see. 52.
u Revised Bylaws of the State Agricultural and Industrial School, Jan. 1, 1932, sec. 3, p. 1. See also
p. 135 of this report.
13 Persons listed specifically as “ instructors” in the department of trade education at this institution
were: Baker, bandmaster, blacksmith, canning-plant manager, carpenters (2), creamery man, electricalconstruction foreman, laundryman, machinist, mason, mechanical-drawing teacher, miller, painter, printer,
shoemaker, tailors (2), and tinsmith.
I* This group included 2 storekeepers, 2 head cooks, 3 cooks, 5 waitresses, 1 butcher, 2 carpenters, 1 painter,
and 2 chauffeurs.
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The school benefited by the occasional services of additional workers.
Notable among these were the services contributed by members of the
staff of the child-guidance clinic attached to the University of Roches
ter. That clinic cooperated whole-heartedly in giving psychological
and psychiatric service when needed. They also paid half of the
psychiatric social worker’s salary and all of a part-time psychologist’s
salary for this institution.
Personnel: Salaries
The salary scale at the school ranged from $780 to $5,000. Full
time employees, with the exception of the field parole agents, received
maintenance in addition to salary. Those not in residence at the
institution received a maintenance allowance. A graduated allow
ance was made to men with families residing at the school and main
taining their own table. The parole agents of course were reim
bursed for their actual expenses in the field. Salaries for certain
positions were as follows:
Superintendent_________
Assistant superintendent
Second assistant super
intendent_____________
Steward________________
Physician (part time) _ _ _
Head nurse_____________
Nurses_________________
Psychiatrist (part time) _
Psychologist____________
Psychiatric social worker_
Superintendent of schools
$5, 000
2, 750
2,500
3, 000
2, 500
1, 186
$1, 020
2, 000
2, 000
1, 800
1, 800
Teachers 14____ ______ A. 1, 296-1, 500
Director of trade educa
3, 000
tion________________
Instructors, trade educa
tion 15______________ 1,
166-1, 800
Athletic director________
1, 500
Colony supervisors 14____ 1, 048-1, 500
Colony matrons 14_______
792-888
Chief parole agents_____
2, 000
Parole agents_________ 1,
600-1, 800
Clerical workers________
960-1, 320
New York State employees are eligible for certain additional
monthly remuneration after 3 years’ continuous service as follows:
$4 a month at the end of 3 years’ service; $8 a month at the end of
5 years’ service; $12 at the end of 10; $16 at the end of 15; and $20
after 20 years’ service. The service is not required to be all in the
same State agency or unit.
Of the full-time employees at this school, 159 were receiving addi
tional remuneration per month for time service as follows:
$4
25
51
26
16.
41.
8
12
16
20
Personnel: Appointments and removals
At this school almost all the staff members, including the super
intendent, must be appointed from civil-service eligible lists estab
lished by examinations. Only a few positions were listed as not under
the civil service. Though the superintendent was appointed by the
State board of social welfare, all other employees .were appointed by
the superintendent.
m
Only 1 received the lower salary.
. .
15 In this group 1 was receiving $1,166,11 were receiving $1,400, and 6 were receiving- $1,800.
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Personnel: Terms o f service
The following figures show the length of service at the institution
of the 204 full-time employees:
N u m b e r of
employees
Less than 1 year__________ [_______________________
1 year, less than 2_________________________________
2 years, less
than
3_________________________
3 years, less
than
4________
4 years, less
than
5_________________________
5 years, less than 10_______________________________
10 years or more__________________________________
Not reported______________________________________
1621
21
16
16
46
66
2
Whether or not the State bonus for continuous service has anything
to do with it, the fact remains that this school has a very considerable
number of employees who have remained in service a long period of
time. Twenty-one of the persons who were on the pay roll had been
with the school 20 years or more and 45 others had been there 10 to 19
years. In this group 11 colony supervisors and 10 colony matrons had
served 10 to 19 years, and 5 colony matrons and 5 colony supervisors
had served 20 years or more. Five trade instructors had served 10
to 19 years, and 2 had served more than 20 years. Among the school
teachers in the department of academic education 5 had served 20
years or more, and 5 had served 10 to 19 years. In the short-service
group, especially among those who had been there only 1 year, were
many individuals who were filling new positions under the expanded
program since the change of administration in 1929.
Personnel: Qualifications
Unfortunately there was very little information available in the
records at this school with respect to the education and previous
experience of the employees. As many of them had been on the roll
a number of years, their educational experience prior to appointment,
if on record at all, would be found in old civil-service files at Albany,
which were not inspected.
The superintendent had had a great deal of previous experience in
the educational world and in institutions of similar character. He
was much interested in developing and applying progressive methods
of treatment for juvenile delinquents.16
The assistant superintendent came to his position from the publicschool system in New York State, having been superintendent of
schools in a small city. The principal and teachers of the academic
school were all reported to be normal-school graduates.
The director of trade education and superintendent of shops was a
graduate of the State Teachers College at Albany and had taken
courses at Mechanics Institute, also in Cornell, Columbia, and New
York Universities. He had had considerable previous experience in
teaching and directing vocational-education work. He had served in
that capacity in a rural consolidated school, at the Oswego State
Normal School, and in the continuation and vocational school at
Newburgh, N .Y. Six of the trade instructors were reported to have
taken vocational training in summer courses at State normal schools,
and nine had taken extension courses of the State department of educa
tion. Others, some of whom had been a long time in service, had been
18T he superintendent in charge when the institution was visited resigned M ar. 6,1934.
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practical workmen in their own particular fields prior to appoint
ment. Some of those who had taken the teaching course had like
wise had some years of experience in actual shop work.
The 2 chief parole agents and 5 of the field agents had had col
lege work, 4 being university or college graduates. Only 1 in that
group had not gone beyond eighth grade, but he had been on the
staff at the school for 15 years and had been promoted to parole work.
Three of the agents were young college graduates with no previous
experience. One was trained for the ministry and was an ordained
minister. Another had had previous experience with church agencies
in Buffalo. Two others whose education had not gone beyond
graduation from high school were officers who had been promoted
from other positions at the school. One was a retired Army officer
who had previously been a colony supervisor; the other, a man 65
years old, had formerly served as laundry instructor.
Personnel: Living and working conditions
The staff housing at this institution has been outlined in connection
with the description of the physical plant. (See p. 137.) Staff housing
eould hardly be considered as either adequate or satisfactory in
character.
Membèrs of the staff who did not have family quarters ate in the
officers' dining room in the administration building. Food was
plentiful, of good quality, and well prepared.
Information on working hours could not be provided. There was
great difference, of course, in the hours of duty among the different
types of workers, and the schedule was said to be very complicated
and variable.
The location was such that the institution personnel was somewhat
dependent on activities at the institution itself for a semblance of
normal community fife. The city of Rochester, however, only 12
miles away, was easy to reach for those who had their own cars.
Others had to depend on the infrequent railroad service.
Staff organization
The staff at this institution was organized on a strictly depart
mental basis. The most important departments were said to be
the following: Trade education, scholastic education, physical educa
tion, religious work, Boy Scout work, stewardship, agriculture, medi
cal work, scientific research, parole, and the matrons' department.
As the new administration was not yet 3 years old and as the entire
program had been undergoing more or less complete reorganization,
no attempt had yet been made at the time of the visit to the institution
to chart the new organization plan.
Administrative leadership and staff teamwork
Under the superintendent appointed in 1929, a system of regular
staff conferences had been instituted. Through these conferences
the personnel had been kept informed in advance of the proposed
•changes. Opportunity was given for the older staff members, who
were accustomed to entirely different working methods and programs,
to bring up any questions or any problems that they might wish to
have discussed. The superintendent faced a very difficult problem
in more or less attempting to revolutionize the treatment accorded
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the boys at this school. Although he had on the staff many men and
women who had been thoroughly schooled in the old regime, ho
reported that for the most part he had been able to secure, if not
their enthusiastic support of the new plans, at least their promise o f
cooperation in trying them out.
General staff conferences attended by all department heads were
held weekly in the superintendent’s office. Discussion was noted
to be quite free, and opinions were cordially invited and frankly
expressed. Staff conferences for persons other than department heads
were not observed in action. These conferences were particularly
important in view of the necessity of winning support for^ progressive
policies involving considerable reorganization of the institution s
program.
5.
ADMISSIONS, CAPACITY, AND POPULATION
Intake provisions and policies
Commitments to the State Agricultural and Industrial School were
made by children’s courts and included boys between the ages of 12
and 16 years charged with all types of offenses; boys under 12 could be
committed if found guilty of a felony, but for no other type of offense.
The practice had always been to send to Industry boys from all parts
of the State except the metropolitan district, and this was still in
effect at the time of this study, as the legislation establishing the
new institution at Warwick did not go into effect until after the field
work for the study had been completed. (See p. 135.)
The superintendent had authority to refuse to receive boys mentally
and physically incapable of benefiting by the program offered. 17
Because many of the children’s courts lacked facilities for examining
and diagnosing the children, particularly as to mental ability, it had
been difficult to exercise the right to refuse boys on those grounds.
Therefore many defectives had been received. The superintendent
had been making a special effort to eliminate defective boys from
this institution and had made some progress through the help of the
psychological clinic.
#
#
.
Transfer or nonacceptance of boys suffering with certain diseases
was the policy of the institution. Boys with epilepsy and active
tuberculosis were transferred to suitable institutions for treatment
and care. Those with active gonorrhea were returned to the com
mitting courts. Treatment for syphilis was given at the institution.
Capacity and population
The population at Industry on March 29, 1932, was 470 boys.
This number was far below the normal capacity, reported to be 700,,
and several cottages had been closed.
The proportion of Negroes was very low. Only 16 of the 393 boys
committed in the year ended June 30, 1932, were Negro. Figures
on nativity were not readily available.
During the last fiscal year prior to the study (July 1, 1930 to Juno
30, 1931) 12 boys under 12 years of age were received, 1 being only
7 years old. The largest age group consisted of 15-year-old boys
(166), and the next largest group was the boys 14 years old (99).
v
N ew York, Cahill’ s Consolidated Laws 1930, State Charities Law, sec. 196 (1).
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The age distribution for the 393 boys admitted during the year was
as follows:
Number
7 years_____________________________________________________
1
9 years_______________________________________________________2
10 years_____________________________________ I I I I . I I I I I I
2
11 years________________________________________ I I I I . I I I I I I I 7
12 years_______________________________________________________ 37
13 years__________
67
14 years_________________________________________________
99
15 years-------------------------------------------------------------I . I 166
16 years_________________________________
__ j2
More than three times as many boys were under the authority of
the institution on parole as were resident. As in New Jersey, the
parole period in New York was generally long (see pp. 128,171.) The
turnover in this group was small. On April 1, 1932, the number on
parole was 1,742.
. Movement of population during the last fiscal year before the
institution was visited (ended June 30, 1931) was as follows:
Population July 1, 1930___________________________________________________ 533
Received during the year________________________________________
7g2
New commitments_____________ ___________________________ _ 393
Recommitments______________________________________
3
Parolees returned._____________________________________________ 95
Escapes returned____ _______________ ___________’ __________ 7 291
Lost during the year.
768
Released on discharge_____________ ____________
33
Discharged by court order____________________ 7III__
1
Committed to Randall’s Island._______________ 71_I_II
3
Committed to Rome State School_______________ 7II..I
8
Committed to Rochester State Hospital_________ ______
1
Released on request of committing judge__________
1
Enlisted in Army_________________________________
1
Returned to committing judge_______________________
8
Returned to children’s agency________________________ 1
Returned to committing judge for commitment to Randall’s
Island__ __________________________
2
Returned to committing judge for commitment to Rome State
School__________________ ________
1
Sent to parents out of State________________~_ZZZZII_ 1
Released, on parole______________________ _
413
Escaped.____________________
321
Died____________________
1
Population June 30, 1931______________ ___________________________________ 552
6.
RECEPTION AND ASSIGNMENT PROCEDURE
Reception
Boys were brought to this school by officers delegated by the com
mitting children’s court— usually a probation officer, or a sheriff or
his deputy. New boys were received by the assistant superintendent
who took care of the necessary papers and who obtained the facts
necessary to make the first entries on the registration blanks. At
this first contact the assistant superintendent talked to each boy in
a kindly way about the opportunities which were open to him at the
school. The boy was then sent to a receiving colony.
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Receiving colonies
This school maintained two receiving colonies— one for boys under
14, one for boys 14 or over. A very rigid policy regarding the strict
segregation of the younger from the older boys was enforced. These
were pleasant, homelike colonies, in no way different from the others.
Boys remained in the receiving colonies about 3 weeks. While there
they attended school but in a special room for new boys. They were
also given a try-out in shop work. Their only work assignments during
this period were on out-of-door details on the grounds.
During this period each boy was subjected to intensive study. He
was immediately brought into contact with the parole department,
which would eventually be responsible for helping him to inake his
adjustment back into normal social life in his own community. The
parole agent assigned especially to preparóle work met the boy very
shortly after his admission. During the boy’s stay at the receiving
colony one of the parole field agents made a preliminary home, school,
and court investigation for the purpose of getting, so far as possible,
a complete social history of the boy. This investigation included
registering the case with any social-service exchange that might exist
in the boy’s home community or in any city where he was known to
have lived and following up references secured from that source. The
boy had meanwhile been in the hands of the staff members of the
school clinic of psychiatry and psychology, who had been carrying on
an intensive study of his mental and emotional make-up. He had
been interviewed by the superintendent of schools to determine what
his past school experience and achievements had been, and the super
visor in the receiving colony where he was in residence had been mak
ing close observation of his personality and any particular difficulties
which he might reveal in his association with the other boys. He had
also had a complete physical examination.
First assignments
At the end of the 3-week study the boy’s case was set for consid
eration by the assignment committee, which was composed of the
assistant superintendent as chairman and the psychiatrist, psycholo
gist, psychiatric social worker, supervisor of preparóle activities,
vocational director, and superintendent of schools. The committee
held its meetings at the receiving colonies. A report on the boy’s case
was presented in detail. Each specialist contributed a report on his
findings and his recommendations. The case was then discussed very
frankly and informally, and the necessary decisions were reached.
Colony assignment was based on consideration of a number of
different factors, the first being age and physical development. Next
the boy’s prior conduct and experience were considered with a view
to deciding whether he was likely to need very strict supervision or
was of a type that did not require close and constant attention from
the colony supervisors. Another point that was given much attention
and one that was no doubt of great value was consideration of the boy’s
personality traits in relation to the known temperaments of the colony
supervisors and matrons. It was noted that the psychological clime
workers had a very good knowledge of the characteristics of both the
staff personnel and the boy population in the various cottages. The
clinic’s advice was generally the determining element in the decisions
rGECllGQ •
This school was exceptionally fortunate in having sufficient colonies
so that the several groups could be kept down to a reasonable size and
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so that there could be a real attempt at segregation involving many
factors additional to age and size. A number of the colonies were
reserved for boys with distinct characteristics, some of which might be
described somewhat as follows: One for boys 13 and over who were
very definitely personality problems; one for older boys, 15 and 16,
who presented definite problems not quite so serious nor so acute;
one for dull boys 12 to 14; another for boys of the same age group not
dull but mischievous and troublesome; one for the youngest boys who
presented very few behavior problems and who maintained excellent
morale in their colony; a similar nonproblem colony for older boys;
another for older boys who were probably going to be returned to
rural environment or placement; one for an older group who were shop
boys, probably going to city placement, and who were fairly steady
and reliable; another for the very young boys distinctly problem
cases; another for older boys of border-line mentality; and a special
colony for older boys described as “ diamonds in the rough” , a roughand-tumble group but not in any sense vicious.
Assignment to school was based almost entirely on the recommen
dations. made as a result of the clinic’s examinations, supported by
the advice of the superintendent of schools.
Assignments to vocational training were said to be based on a com
bination of the wishes of the boy, ms showing in the psychological,
psychiatric, and mechanical-aptitude tests, and the observations of
the vocational director during the shop try-out period.
After the assignment committee reached its decision the boy was
called in and told what plans had been made for him. The atmos
phere was very informal, and the boy was given every opportunity to
discuss the plans or to ask for any modifications of them. The meet
ing attended left an impression of kindly and intelligent interest in
the problems of the individual boys and of cordial relations between the
committee members and the boy during the classification procedure.
7. THE BOY’ S LIFE IN THE INSTITUTION
Daily routine
No rigid daily schedule was allowed at this institution. There was
said to be variation in the hours of rising and retiring in the various
colonies. The colony supervisor fixed the hours just as any parent
regulates the hours of his family in relation to the things which they
are going to do during the day. This in itself tended to contribute to
the pattern of family life outside an institution.
It was reported that in general the boys in the various colonies
rose around 6 o ’clock or shortly thereafter, and were through with
their breakfast by about 7. They then did the housework and the
outdoor work for their own colonies until time to report to other assign
ments. Boys who had morning assignments to the shops went at
8 o ’clock. School pupils reported at 8:45. At 11:30 all the boys went
back to their colonies. Dinner was at 12. School and shop work
began again at 1:15 and lasted until 4. A few of the shops continued
work until 5. Most colonies had supper about 5:30. From then until
bed time the boys were free for play. Most colonies sent the boys to
bed at 8 o ’clock. Some of those in which the older boys resided did
not send the boys to bed until 9 or even until 10:30 p.m. In some
colonies boys were permitted to read in bed if they wished until 9
o ’clock, when all lights were supposed to be out.
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General atmosphere
The general atmosphere at this school more nearly escaped the
institutional flavor than did that of any of the other schools visited.
The colonies really seemed somewhat like individual farm homes clus
tered about a community center which contained the school,' work
shops, and chapels. Boys might be seen at any time moving freely
about the grounds, singly, in couples, or in small groups. They did
not go to school or work in marching lines but went just as boys would
go from any home. They talked and laughed with perfect freedom
as they came and went. No evidence of restraint of any kind was
observed.
Colony “ family*’ atmosphere
Each colony had a supervisor and a matron who were husband and
wife. In some colonies the supervisor also served as a shop instructor.
In some of these colonies an officer known as a day guard was supplied
to provide the daytime supervision that was considered necessary.
The colony supervisor and matron assumed a relationship that was
very like that of a foster father and mother. As the colony groups
were small, by far the most of them containing fewer than 25 boys, one
having as few as 9 boys and several having only 16 or 17 boys, the
colony father and mother could really know each boy intimately and
deal with him on an individual basis. It was believed that the feeling
of a family unit was closely approximated in a good many of the
colonies at this school.
Arrangements for sleeping
The dormitories in which boys slept in all of the colonies were
comfortably lighted and ventilated rooms on the second floor, ade
quately equipped as to beds and bedding. In some of the colonies
where "the boys presenting the more difficult cases resided, night guards
remained on duty during the entire sleeping period. The staff was
not at all certain that night supervision was desirable. It had been
much discussed in staff conferences and was still being carefully
considered. The clinic personnel seemed to favor 24-hour supervision
for certain classes of cases.
Arrangements for eating
In each colony the kitchen and dining room were much like the
kitchens and dining rooms to be found in many farm homes. Food
was prepared there under the supervision of the colony matron,
assisted by some of the boys. There was a provision that no boy
should do kitchen or dining-room work longer than 2 months at a
time, so as to guard against any boy’s getting lost in this kitchen
work and missing an opportunity for other kinds of training. In
each colony the personnel ate in the dining room with the boys.
There was no uniform menu for all colonies. Each colony matron
was permitted to use her own ingenuity in utilizing the supplies which
were issued uniformly. That resulted in considerable variety of
preparation of the same staple materials. Food, however, was said
to be plentiful, and the colony matrons were for the most part reported
to be very good at maintaining variety and serving attractive meals.
Sanitary arrangements
As none of the colonies at this institution were new, the plumbing
naturally was seldom of the most modern type. However, sanitary
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arrangements were fairly adequate, and everything was kept in good
condition.
Living-room and playground activities
Colony living rooms were particularly homelike. They were fur
nished comfortably but not expensively. Pictures and plants helped
a great deal to make the rooms pleasant. All of them that were
visited were distinctly the type of room that is for use, not for show.
During the hours when bad weather kept them indoors the boys
lounged about these rooms, played cards, checkers, dominoes, and
other games, spent the time in reading, or worked on Boy Scout
projects. Spontaneous conversation, laughter, and play of any kind
within reasonable bounds were permitted and encouraged.
Each colony had its own playground, which was large enough for
football and basketball practice. A few colonies had tennis courts.
Play on the colony grounds was quite free and informal and not very
closely supervised.
Miscellaneous arrangements
No lockers were provided, but in most of the colonies the boys
were permitted to have small boxes in which they might keep their
personal possessions.
Khaki uniforms, cotton for summer and wool for winter, were worn
on week days. On Sundays and for special occasions boys who had
good suits of their own and wished to wear them were permitted to
do so. Boy Scouts wore their Scout uniforms if they so desired.
These uniforms were furnished by the State if their parents could not
afford to furnish them.
Boy officers were used to some extent, serving as assistants in
supervising some of the activities at the individual colonies. This
system was a holdover from a former regime, not approved by the
present administration, and it was expected that eventually it could
be abolished. The boys had a special term for these boy officers
which was quite expressive of their opinion of the system. They
called them “ P.C.’s ” , which stood for privileged characters.
Other aspects of boy life, particularly with reference to education,
vocational training, and recreation are described in other sections of
this report.
Outside contacts
Boys were permitted to receive any number of letters from parents
or close relatives. These incoming letters were censored by the colony
supervisor or matron for the purpose of withholding any letter that
might prove disturbing to the boy’s morale. Each boy wrote home
once a month. . These letters were prepared at the school and read
b y the boys’ teachers. Boys with especially good records were given
the privilege of writing oftener. Packages might be received at any
time. These were inspected to make sure that only suitable articles
were enclosed.
Visiting was restricted to the first Saturday of alternate months
(February, April, June, August, October, and December). Visiting
hours on those days were from 7:30 a.m. to 5 p.m. It was said that
many relatives came and spent the whole day with their boys, often
bringing picnic lunches which the boys ate with them. A boy was
visited in his own colony so that the relatives could see exactly where
he lived and get some idea of what his life was like at the school.
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Boys were not permitted to go home for visits except in cases of
emergency. The reason for not permitting home visits was said to be
that such permission would probably result in considerable unfairness.
Very deserving boys might not be able to go because their parents
could not afford the expense, while boys who were considerably less
deserving but whose parents bad money might obtain such privileges.
It was felt that this would seem to the boys to be unfair discrimination
and that the complete elimination of such privileges was a safer policy.
8.
PHYSICAL EXAMINATIONS AND MEDICAL CARE
Hospital facilities
The hospital building and equipment have been described on page
138. The whole atmosphere here was unusually cheerful and kindly.
Hospital staff
The physician in charge was a part-time employee who maintained
a practice in surgery in the city of Rochester. He spent M onday
afternoon and each morning except on Monday at the school hospital.
An eye, ear, nose, and throat specialist from Rochester was employed
by the school on a part-time basis. Several other members of the
staff of the Rochester General Hospital served as consultants without
charge. The cooperation on the part of the medical men of Rochester
was outstanding. It was said that the best medical service in the
city was freely available to the boys at any tune that a specialist was
needed.
The dentist employed on a part-time basis spent 1 day a week at theschool. He had as an assistant a full-time dental hygienist.
There were three graduate registered nurses: one served as matron
in charge of all executive duties, one had immediate charge of boys,
under hospital care, and the third had charge of the operating room
and also served as school and visiting nurse.
Physical examinations
Each Monday afternoon the boys who had been admitted duringthe previous week were brought in for complete physical examinations.
In addition to the usual clinical observations and taking of medical
history, each examination included a Wassermann test and urinalysis..
(The physician had his own laboratory for making urinalyses at thehospital; he had taught one of the boys to do this work under hisdirection.) Each boy was vaccinated and received toxin-antitoxin
treatment. Each week the eye, ear, nose, and throat specialist
examined all new boys. Every boy found to be under weight was
taken to the county hospital for a chest X-ray, as were also all boys
whose family history showed tuberculosis. The county hospital
performed this X-ray service without charge to the school. The
county hospital also gave basal-metabolism tests when need was
indicated, either without charge or with a nominal one. The results
of the physical examination were carefully recorded and became a
permanent part of the institution’s records. The findings were made
available to the psychiatric clinic and were carefully considered by
the assignment committee in determining the institutional treatment,
which the boy was to receive.
Corrective work
Corrective treatment indicated as needed by the initial examination
was always undertaken, so far as possible. All types of major and
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minor surgery (with the exception of brain surgery) were taken care
o f by the school physician at the school hospital unless the case
required X-rays, in which case the patient was taken to the Rochester
General Hospital. Diseased tonsils were removed, and hernias were
treated surgically or otherwise. Under-weight boys were carefully
followed up, such special diets being prescribed as seemed desirable,
and the boys were seen regularly by the school nurse. Each boy was
given a careful physical examination as a matter of routine prior to
release. Records of these reexaminations indicated that 90 percent
of the boys had been gaining an average of 20 pounds a year. When
the institution was visited, it was the custom to return infectious
cases of gonorrhea to the committing court to be rendered noninfectious
before admission, but this policy was changed later to acceptance of
infectious cases. Parolees who were returned because of infection
were treated at the institution under quarantine if treatment could
not be arranged elsewhere. About 14 syphilitic cases were usually
under intensive treatment. When boys were paroled arrangements
were always made for continuing treatment, and the parole agents
were required to follow up to make sure that it was continued. M ost
of the new boys under treatment for syphilis were suffering from the
congenital type. It was stated that their response to such treatments
was more favorable than was indicated by the findings in many
juvenile clinics in large cities.
Dental work
All necessary dental work was done for the boys at State expense.
An interesting and somewhat unusual piece of work at this school was
that of the dental hygienist. All boys were required to report to her
office in the school building at regular intervals. At such times she
examined and cleaned their teeth and designated the boys who were
to report to the dentist for treatment. She also taught the boys how
to take care of their teeth and why it was important to do so. The
administration felt that this service was of great value to the boys.
Other medical care
The hospital did not maintain any special sick-call hour. Dis
pensary service was given at any time during the morning. Every
boy who showed any symptoms of illness or who had any kind of
injury, however slight, was supposed to report to the hospital to be
seen by the doctor. There was a strict regulation that no “ home
remedies” should be administered in colonies. Colony officers were
permitted to give no cathartics. Matrons were not permitted to dress
even slight cuts. The physician insisted on keeping in his own hands
full reponsibility for the physical health of the boys.
One of the nurses was in charge of a completely equipped dressing
station at the school. She did all first-aid work and minor dressings
at that office under the physician’s direction. He considered this an
unusually valuable service to the boys. He credited it with their
very low rate of infections, even of slight character, and was very
proud of the school’s records of almost complete freedom from serious
infections or complications of any kind despite the number of minor
accidents that inevitably occur at such institutions. The duties of
the school nurse also included visiting-nurse service, which meant
visiting and inspecting the various colonies regularly in order to re
port to the physician their sanitary conditions and to discuss health
and hygiene problems with colony supervisors and matrons.
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All boys suffering from acute illnesses or injuries received prompt
care of high standard.
The hospital report for the year 1931 showed 20 major surgical
operations, half of which were corrective or constructive in type, the
others being to meet acute conditions such as appendicitis and injury
cases. Despite the fact that there had been epidemics in adjacent
communities, the school had been free from epidemics during the year,
the only contagious cases being 3 suffering from scarlet fever when
admitted. Immediate quarantine and careful treatment prevented
any spread of contagion within the institution.
PSYCHIATRIC AND PSYCHOLOGICAL SERVICE
Clinical facilities
An unusually complete and active clinic of psychiatry and psychol
ogy was in operation at this school. It had been started unofficially
in October 1928 when the State department of social welfare and the
superintendent requested the cooperation of Rochester University in
planning and putting into operation a school clinic. The head of the
psychiatric clinic at Rochester University agreed to undertake to
organize a mental-hygiene unit for the school. The work was done on
a volunteer basis until 1930 when an appropriation was obtained which
enabled the administration to set up the clinic as an integral part of
its treatment program. The clinic had grown steadily until its per
sonnel consisted in 1932 of the director (a psychiatrist), two clinical
psychologists (one part-time), an additional psychiatrist (part-time),
a psychômetrist, a psychiatric social worker, and a secretary. The
clinic was in the new school building. The child-guidance clinic
attached to the university was paying half of the social worker’s
salary, all the part-time psychologist’s salary, and giving additional
psychological and psychiatric service as needed.
Psychological tests
On admission each boy was tested by the psy chôme trist. Plans
for the psychometric study included the use of abstract-intelligence
tests, performance tests, and aptitude and educational tests. Each
boy was put through a certain routine, and boys displaying particular
difficulties or problems were further studied through the use of suitable
test material. During the year 1930-31 the psy chôme trist had given
the following tests:
Abstract intelligence_________________________________________294
Nonlanguage_______________________ Ç----------------------------------- 662
Aptitude and mechanical____________________________________ 741
The clinic had classified the mental level of new boys examined
during 1930-31, as indicated by their intelligence quotients, as follows:
Mental level
Percent distri
bution
Number
2
13
Normal or average (90—110)____________________________
Dull or low normal (80—90)
_______
_______________
Border-line deficiency (70—8 0 ) _________ ____ _________Feeble-minded (below 70)__________
_____ •
___________
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118
91
46
0. 5
3. 4
29. 3
31. 0
23. 8
12. 0
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Psychiatric examinations
Each new boy was made the subject of a psychiatric study which
was based on the social history, the findings of the psychometric
study, the medical report, and the material obtained by the psychi
atrist in his interview with the boy.
Personal histories
_ The personal-history records were built up from a number of sources.
These included a certain amount of personal history received from the
committing courts; reports of home visits made under the direction
of the parole agent in charge of preparóle activities; and the material
obtained by the psychologist, the psychiatrist, and the psychiatric
social worker in their contacts with the boy at the school. Every
effort was made to secure the type of information that would enable
the clinic staff to understand the boy’s problems thoroughly and to
interpret his reactions to other staff members at the school in order
that effective treatment might be given him.
Application o f findings
All the findings of the various workers in the clinic were recorded
and served as a basis for study of the child as a whole. These records
and the clinic summary of the boy’s problems were used as the basis
for first assignments of each boy to school grades, to type of vocational
training, to the colony in which he was to live, and to a program for
extracurricular activities. The object was to help the boy to a suc
cessful social adjustment.
The clinic played an important part in every consideration of
changes from the original assignments. The school program provided
for a careful record of the boy’s progress or his difficulties, and if he
did not progress the clinic sought to discover the reasons for his failure
and to-ad vise changes that might be desirable.
One of the outstanding characteristics of the clinic work in contrast
to some similar organizations elsewhere was the special attention
given to personality problems and to difficulties in social adjustment
encountered by boys with varying degrees of emotional instability.
The clinic considered with care the personalities of the various staff
officers in relation to the boys to be assigned to their supervision in
colonies, classrooms, shops, or work details. It was felt that many
unnecessary conflicts which would not only hinder the boy’s adjust
ment in the institution but also perhaps seriously and permanently
affect his personality could be avoided through this type of service.
It was stated that cases had been studied in which boys of fair intelli
gence were not advancing in their school work. Tactful investiga
tion had revealed in some such cases the existence of deep-seated
personality clashes between the boy and a teacher. Therefore a
change in the educational program was worked out so that the boy
might be placed under different supervision. In many cases the
boy’s conflicts disappeared.
The clinic was consulted frequently on questions of discipline and
played a considerable part in determining what measures should be
used in an effort to bring about a change in a boy’s attitude and
behavior. When a boy was to be released from the disciplinary
colony the advice of the clinic as to whether he should be returned to
his former assignments or whether some change should be made was
always given great weight by the deciding committee.
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After a boy had been in the school 6 months his entire case was
carefully reviewed in the clinic, developments both within and without
the institution being noted. That is, the boy’s progress was studied,
and any marked personality changes or achievements in the direction
of social adjustment to group life were considered and recorded.
Prior to parole the case was given a final analysis in the clinic. ^ This
analysis noted carefully factors in the boy’s make-up, or in his history,
or in the environment to which he was to be released which would be
likely to predispose to delinquency, and suggestions were offered as to
how these factors might be offset or corrected. The clinic and the
parole department worked together very closely in mapping a treat
ment program which would include efforts to revamp negative family
attitudes, to provide suitable home and neighborhood environment,
to make sure that the boy had proper recreational outlets and suitable
school and vocational opportunities, and to plan for any special
medical or psychiatric attention he might need during his parole
period.
Attitude of other staff members toward clinical services
The clinic staff had maintained as close contact as possible with the
colony officers, the school authorities, the vocational director, the
medical staff, and the parole department. It was recognized that the
complete psychological and psychiatric study of each individual boy
would be sheer waste unless the treatment program which grew out of
that study could be put into effect. The carrying out of the treat
ment program was entirely dependent on the understanding and the
cooperation of the various members of the staff under whose direct
care the boys engaged in their daily activities. Therefore, educa
tional and advisory service for the whole staff, through group meetings
and individual consultation, had been a part of the clinical work.
Both the staff members and the boys themselves visited the clinic
freely of their own volition. The services of the psychiatric social
worker were regarded as invaluable in this task of interpreting mentalhygiene principles and the problems and needs of the individual boy
to staff members.
.
. .
Jk*
, .
The clinic had attempted to make itself a vital part of the school
program. It considered that part of its function was to study all the
work of the institution in terms of values to the individual boy.
This implied a twofold task— on the one side, to discover the most
appropriate program for each boy, and on the other, to consult and
advise as to institution policies so far as they affected the programs
outlined. The clinic had been given a free hand in its work in both
directions. Its advice as to certain modifications or developments m
the institution program was invited and given careful consideration.
Some general services rendered during the preceding year included
outlining plans for one or more preparóle cottages which were to have
individual sleeping rooms and extra privileges for their boys, making
a plan for a summer camp for specially selected boys; devising a
new basis for housework assignment, to enable each boy to receive
instruction in a variety of household tasks and to prevent sidetracking
on one routine job; and surveying the recreational facilities of the
institution with specific recommendations for subsequent develop
ments.
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Research activities
Research was a definite part of the program of the clinic. The
staff looked forward to increased opportunities for child study and
research as the routine work became better established and the
development work with the institution staff consumed less time.
The location of the school close to the city of Rochester was very
favorable to the development of research work. This city with its
university, its State hospital, its progressive school system, and its
social agencies offered all sorts of cooperative possibilities.
Among the several projects under consideration at the time of the
visit was the operation of an 8-week summer course for juniors and
seniors from nearby universities during the summer of 1932. No fees
would be charged, and the institution would supply maintenance
(except laundry) for the students, who would give service to the school
m return for this educational opportunity. Lectures would be given
by members of the institution staff and of the university faculty.
The work would include some clinical psychology and psychiatry.
A later report from the institution tells of the successful carrying out
of this plan, describing it as a summer institute for college students
interested in the psychiatric approach to the work. The program
included lectures, visits to other institutions, and work and research
within the institution at Industry. Staff members of the institution
were aided in conducting the course by members of the faculty of the
University of Rochester School of Medicine and Dentistry, the
clinical director at the Rochester State Hospital, the superintendent
of the Rochester Society for the Prevention of Cruelty to Children,
and a psychiatric social worker from the child-guidance clinic of thé
Strong Memorial Hospital. The following topics were included in
the series of lectures: Problems of institutional administration, admin
istration of the psychiatric clinic, administrative aspects of medical
care m an institution, vocational administration and guidance in an
institution, school programs and problems, Boy Scout programs,
parole administration, mental hygiene, puberty and adolescence,
application and interpretation of psychological tests, child-guidance
problems in the community, administration of protective agencies in
the community, social case work in the community, mental diseases
(with clinical demonstrations), epilepsy, mental deficiency, and
psychiatry in the court.
Several specific research projects were under consideration at the
time of the visit. A study of enuresis was about to be undertaken.
Already the clinic staff had attempted to be of service to the colony
officers in connection with this difficult problem. A little folder had
set forth the principal facts concerning enuresis and suggested to the
personnel the attitude to be taken toward boys suffering from this
difficulty. It was hoped that through an intensive study some better
methods of handling these cases might be developed. Two cases of
stuttering were being specially studied by the clinic. The relation
between performance and vocational tests and shop efficiency was
being checked, and a study in this field was one of the possibilities.
It was hoped that some study might be made of reading disabilities
found among these boys, and of certain other educational difficulties
discovered. The clinic staff also wished to undertake a scientific
76870- 35-
•11
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
study of a specific nature in regard to the problems of the delinquent
superior child. One of the important things which should be of con
siderable value which they hoped to scrutinize carefully was thequestion as to what should be the exact functions of such a psychologi
cal and psychiatric clinic in a correctional school.
10.
E D U C A T IO N A L P R O G R A M — C L A S S R O O M W O R K
School staff
The school staff consisted of the principal and 18 teachers. All
were reported to be normal-school graduates, as has been stated(See p. 142.)
School day and school year
The school day was from 8:45 to 11:30 in the morning and 1:30 to5 in the afternoon. Boys under 14 attended school all day. Boys
14 or older who were enrolled in certain trade courses had no class
room work, their school work being done in the department of trade
training under a new system being tried there. (See p. 159). The
other boys 14 or older attended school half the day and went to
industrial assignments (vocational or other work) the other half day..
The school enrollment and the time of school for boys enrolled in the
various grades and in a commercial class were reported as shown in
the following table:
T im e o f school f o r bo ys enrolled i n a sp ecified school grade or class on M a r . SO, 1 9 3 2
B oys enrolled
Tim e assigned
Grade or class
Total
M orning
All day
Afternoon
H alf day *
T otal.........................................................
1 278
121
53
103
1
N inth grade......................— - ................- - - - -
6
2
1
2
12
1
25
24
32
52
66
27
28
14
4
5
9
25
29
18
17
13
3
13
5
9
9
7
6
3
14
14
18
30
3
8
1
1
i T he difference between the school enrollment (278 on Mar. 30, 1932) and the total population of the in
stitution on approximately the same date (470 on Mar. 29, 1932) is due to the fact that a few boys of low
mentality worked on the farm all day and did not attend school, that boys 14 or older enrolled in certain
trade courses had no classroom work (their schooling being given in the department of trade training (see
p. 158), and that boys not yet released from receiving colonies for assignment to school grade were in
cluded in the total population, and also to other conditions of institutional life.
j N ot reported whether morning or afternoon.
The school year corresponded approximately to that of the public
schools of the State of New York and included all regular vacation
periods. The only difference was that this school was not dismissed
until July, so that it had a full 10-month year.
Attendance requirements and enrollment
All boys were required to attend school except as they were excused
on recommendation of the psychological and psychiatric clinic
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from any formal classroom work, or except as they were excused tem
porarily for physical reasons.
The ages of the boys enrolled in specified grade or class on March
30, 1932, are shown in the following table:
A g e o f b o y s enrolled i n a sp ecified school grade or class o n M a r . SO, 1 9 3 2
B oys enrolled
Age of b oy
Grade or class
Total
9 years
Total_________________
*278
Ninth grade..........................
Commercial cla ss.;..........
Eighth grade...........................
Seventh grade.......................
Sixth grade............................
Fifth grade................................
Fourth grade ......
T hird grade____ ___________
Second grade............................
First grade.................
6
2
10
66
years
13
years
14
years
15
years
5
6
18
52
69
85
41
2
2
3
13
15
13
6
3
4
3
1
1
12
years
25
24
32
62
27
28
14
4
11
years
1
1
1
1
2
16
years'
1
, T h®.dlfl®r®Pce between the school enrollment (278 on M ar. 30, 1932) and the total population o f the
institution (470 on Mar. 29,1932) is due to the fact that a few boys of low m entality worked on the farm all
day and did not attend school, that boys 14 or older enrolled in certain trade courses had no classroom work
their schooling being given in the department of trade training (see p. 159); and that boys not yet released
from the receiving colonies for assignment to school grade were included in the total population, and also
to other conditions of institutional life.
These figures show that the boys committed to this school were
retarded in very much the same way as those committed to the schools
in the institutions previously described.
Courses given
Elementary work from the first grade through the eighth grade
was being given, as has been shown, and a small class of ninth-gradeboys was enrolled. The 25 boys who were taking special commercial
work were divided into two classes—“-òhe ih thè mofning and one in
the afternoon— and oh the alternate half days were carrying either
eighth-grade or ninth-grade work; their commercial course was con
sidered vocational training.
1
The curriculum conformed fairly closely to that of the New York
State public schools.
For boys below the fourth grade two classrooms had work correr
spending roughly to that of special classes for subnormals in the public
schools. One was for the older boys of low intelligence, Both these
special classes did considerable handwork and carried out simple proj
ects. Some of the teachers had mixed grades, the boys in the fourth
and fifth grades being so grouped as to put together the boys of approxi
mately the same size and physical development. This was done in
order that physically large but mentally retarded boys should not be
in the same class with smaller younger ones. This plan worked out
to the advantage of both groups. It was stated that work in these
lower grades was much individualized, there being little general class
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work. They were operating as modified opportunity classes. The
teachers in these rooms were s,aid to have had special training in
handling the problems of retarded or subnormal children. Otherwise
teaching methods were apparently the usual public-school methods
with no particular original variations or adaptations because of the
special institutional problems involved.
11.
E D U C A TIO N A L P R O G R A M — V O C A T IO N A L O R P R E V O C A TIO N A L
WORK
Great emphasis had been placed on agricultural work when the
institution was removed from Rochester to the rural site. The
administrators at that time firmly believed in the efficacy of country
life in “ reforming” boys. Inevitably a certain amount of industrial
work grew up within the institution, in connection with its mainte
nance. But curiously enough, from the modern point of view, assign
ment to the industrial work was considered a disciplinary measure.
The “ worst” boys were detailed to shop work, and the “ best” boys
followed strictly agricultural pursuits. For some years past this atti
tude had been undergoing a change, which the present administration
had greatly accelerated, and the vocational-training program was
being rapidly developed in diverse directions.
The director of trade education was enthusiastic over the possibili
ties inherent in a trade-training program for boys faced with such diffi
cult problems of social adjustment. He believed that finding work
for which a boy was specially suited and in which he could gain satis
faction and self-confidence through actual accomplishment was an
important contribution toward social adjustment, over and above the
practical value of teaching a trade in which the boy might find eco
nomic value. When the school was visited in 1932 it was apparent
that the director was devoting a great deal of initiative and energy
to the development of an effective program. He had surrounded
himself with an interesting and interested group of instructors and
had been giving a new vision of further horizons to many of the trades
men who had been long at the job of supervising boys performing
maintenance tasks. It was pleasant to note the air of eagerness
with which some staff members were working out original plans de
signed to meet the problems in this field, in which so much pioneering
remains to be done.
Enrollment
Farm work was assigned to 45 boys who attended school half the
day, 28 working in the morning, 17 in the afternoon. The commercial
training also was considered vocational work, as has been stated
(see p. 157), the 25 boys in this class attending eighth-grade and ninthgrade classes in alternation with their periods of commercial work.
Information regarding vocational or other work assignments was not
obtained for the rest of the boys reported as attending academic
classes half the day.
.
All-day assignments as of March 30, 1932, to vocational or other
work were reported for 189 boys, including a number who were being
given both academic and trade training in the trade-training depart-
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ment under a new system that was just being put into effect.
assignments of these boys were as follows:
The
Number
of boys
Baking_________________________________________________
Blacksmithing___________________
Carpentry_______________________________ ___________
Creamery_________ ________________ •___________________ ____
Electrical work____ _________________________________________
Laundry____________________________________________________
Machine shop________________________________ :_____________
Masonry____________________________________________________
Meat cutting___________________________
Painting_____________________
Plumbing, boiler room ______________________________________
Printing____________________________________________________
Sheet-metal work___________________________________________
Shoe repairing______________________________________________
Trade cooking______________________________________________
Tailoring____________________________________
Trucking__________________________________________________
Storeroom_______________________________
Office work____________________ _____ ,_______________________
Janitor work______________________________________
14
6
23
3
12
17
12
11
1
18
9
12
6
5
14
10
2
7
3
4
Under the new system, boys over 14 who were enrolled in certain
regular shop courses were being given both scholastic and trade
instruction in the trade-training department. All their study was to
be correlated with their trade needs. In all subjects instructors were
seeking to coordinate teaching materials with specific trades. Many
opportunities were afforded for original ideas and initiative in this di
rection. It was pleasing to note the way in which various instructors
were meeting the challenge. For example, on the day the paint shop
was visited the class was in the midst of the applied-science hour.
The instructor had led his eager listeners far afield, geographically
and biologically. The subject of the discussion had been the bristles
used in manufacturing the many different kinds of paint brushes.
Those bristles, it had been explained, came from a variety of animals
native to different, and some to distant, parts of the world. The
opportunities for teaching through the opening of channels like these,
in which the boys had an immediate interest, m il be obvious to anyone
with imagination. It was gratifying to observe instructors with
imagination surrounded by alert and interested boy groups.
As the program developed it required careful systematizing in order
that conflicts might be avoided. The diréctor and his office assistant
worked out such detail with great care. Much use was made of
charts and graphic representations of the organization and the subject
matter for the various courses. A large loose-leaf notebook contained
a schedule for each trade class for each week, so that the director could
tell where each class was at any time during the day. Through the
combination of these schedules joint projects could be worked out
with a minimum of conflict.
Visual materials were used for instructional work. Films were
exhibited and were proving a popular and effective medium of
instruction.
A general shop was operated for the younger boys and for some
boys of low mental level. It resembled an industrial-arts class rather
than a definite trade try-out shop. However, it provided a good
opportunity to observe aptitudes and attitudes.
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The shop and related work schedule that had been developed is
reproduced below. The outstanding trade courses that had been
put into operation under this system were in printing, masonry, elec
trical work, carpentry, painting, plumbing, and baking. A first-class
course in automobile mechanics had been outlined and was about to
begin. (See p. 293.) The form used for the electrical trade-training
report (see appendix B, p. 293) constituted a trade analysis, which listed
certain teaching units. It was used by the instructor to keep a record
of the work done by each boy, so that each boy might rotate from one
job to another and obtain as complete training as possible. (In
appendix B, pp. 297-301, are reproduced sample lessons and projects
used in this electrical course.) Plans had been made or were to be
made for all trades in which training was offered.
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The mechanical-drawing classes were in charge of an instructor
who had come to the school 4 years previously as a guard. His
natural interest in mechanical drawing had been discovered, and he
was encouraged to take correspondence courses and special work at
the State normal school. When he had acquired sufficient training
in the essentials, he was given an opportunity to develop a course for
the boys. All boys did the same problems when they entered the class.
After they had progressed a certain distance they were given special
problems directly related to the trades in which they were registered.
This instructor’s systematic development of original-drawing problems
carefully fitted to the trade-course substance and needs was said to
be noteworthy. His classes were described as very popular with the
boys. No doubt his own enthusiasm was contagious.
Accurate detail as to how many boys were participating in farm
work could not be obtained. The former individual and entirely
independent farm colonies were still operating independently to a
certain extent, with each colony supervisor directing farming activities
on his own colony acreage. Agricultural work was in a transition
stage from that period to one in which the work was to be under one
directing head, with agricultural training features introduced. The
colonies reported that 93 boys were doing farm work, but this included
a considerable number of boys who were merely doing farm chores
after school, just as they would on any farm. It was stated that some
-of the older boys of low mentality were employed steadily all day on
farm work.
Maintenance and repair work
Boys were used relatively little on straight maintenance work.
'The management stated that this policy, of course, restricted produc
tion, but the boy’s adjustment, not the production record, was consid
ered of prime importance. A small amount of “ squad work” of
service and janitor type was still required of certain boys, but it was
curtailed as much as possible. About the only regular assignment to
strictly maintenance work was the detail for kitchen duty in the
various colonies. Boys spent 2 months on that detail and were then
replaced by others. The intent of the administration was to have
boys in the individual colonies do their own housework with their
colony matrons in much the same spirit that boys in large all-boy
families are required to perform household chores.
12. P H YSIC A L E D U C A T IO N A N D A T H L E T IC S
As the institution had no gymnasium, the old assembly hall was
uused for gymnasium classes. The director of physical education was
assisted part of the time by one of the guards.
The superintendent frankly stated that physical education and
athletics were as yet the weakest part of the program, but develop
ments to be made in this field were beginning to be talked of. As has
been stated, the clinic had been making a survey of the needs, and
plans were in the making. (See p. 154.)
Physical education
Boys reported to the assembly hall for gymnasium periods regularly
irom the school. Calisthenics were taught during part of the period,
«the remainder being used for games.
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Swimming was taught during the outdoor season, practically all
boys having an opportunity to learn. The Boy Scout leaders took
an important part in this work. Reference has been made to the new
outdoor swimming pool. (See p. 139.)
Sports program
The colonies competed wdth each other in basketball, baseball, and
soccer in a regular organized sports program. The teams were
organized in 3 leagues with about 10 colonies to a league. The school
had a team which played outside teams in baseball and basketball.
Part of the games were played at the institution and as many boys as
there was room for attended.
Military training
There was no military training of any kind at this institution >
although the law permits the superintendent to establish a system
of such training.18
13.
O T H E R R EC R E A TIO N A L A N D E D U C A TIO N A L A C T IV IT IE S
As has been stated in the preceding section, the recreational activi
ties at this institution were still somewhat uncoordinated and lacking
in plan, but it was expected that with the help of the clinic’s survey
in this field a program would shortly provide for all kinds of develop
mental activities outside the school and vocational training.
The management felt that considerable progress had been made in
developing recreational activities since the institution was visited
by representatives of the Children’s Bureau in 1931. In a communi
cation early in 1934 mention was made of the entertainment provided
during the holiday season, when groups of entertainers from various
organizations in Rochester put on three evening programs at the
school. More significant perhaps was the inauguration of evening
classes in various types of handcraft, in which boys were displaying
much ingenuity, fashioning all sorts of articles out of celluloid, imita
tion leather, and other materials.
M usic
At the time of the visit the institution had a small band of about
15 pieces. Some 30 or 35 boys were being instructed on various
instruments. The band was formerly rated as a unit of the trade
training program, but the training was found to be of little effective
use on the boys’ release from the institution. Although the band
was still under the trade-training department, the boys who took up
band work attended regular school classes and were excused for
instruction in special instruments at regular periods during the week.
Saturday morning was given over to general band practice.
One of the regular teachers had a music room at the school and gave
classroom instruction in music to each class once or twice a week.
She also gave individual lessons in singing to boys who had special
ability and were interested. Group singing was a customary feature
of school assemblies.
The school had a harmonica band composed of 14 Boy Scouts.
This band was very popular, both at the institution and in the sur
rounding country. It was said to have particularly distinguished
itself at the Boy Scout anniversary program at a motion-picture
is N ew Y ork, Cahill’s Consolidated Laws, 1930, State Charities Law, sec. 187.
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theater in Rochester where it played every night for a week and was
said to have been the most popular feature of each program.
Radio
The school itself owned no radio equipment. However, practically
all colonies had radio facilities owned by the supervisors, who gener
ously turned on appropriate popular programs for their boy families.
One of the nurses had given a radio to the boys at the hospital as a
Christmas gift. The administration would have liked to procure
equipment which would permit them to have loudspeakers in
each cottage through which they could rebroadcast programs from
a central control, but funds had not yet been forthcoming for that
purpose.
Motion pictures
The institution had a motion-picture machine in its assembly hall,
and until the winter of 1931 a motion-picture show had been given
every 2 weeks. As the apparatus was only for silent pictures and it
was very difficult to get good silent films, the pictures had been dis
continued except for an occasional show. The entire school group
were occasionally taken to the city of Rochester to one of the theaters.
For the past 2 years the institution had asked the State legislature
lor apparatus for talking pictures, but so far it had not been allowed.
Reading
The institution did not have a central library. It was making
plans to open one in the school building in the fall of 1932. The only
library facilities yet available were the small collections of books
owned by the individual colonies and by the hospital. It was recog
nized that these were inadequate, both in quantity and in variety of
material.
Boy Scout work
The superintendent and assistant superintendent were convinced
of the benefits to be derived by their boys from participation in Boy
Scout work. They had sought the cooperation of the Scout executive
for the Rochester district, and with his help Scout activities were
organized in December 1930. A previous attempt to organize had
very successful. A full-time scoutmaster was appointed
m March 1931, and his office in the school building was a perpetually
busy scene. It was expected that one of the closed farm colonies
would be placed at the disposal of the Scouts to serve as Scout
headquarters for the school.
The school Scout group consisted of 190 Scouts, organized into
10 groups. It was expected that the number would increase until
there was a steady membership of about 250 Scouts at all times.
various colony supervisors, guards, and teachers acted as scout
masters. Two of these staff members were taking a scoutmaster’s
training course which consisted of 10 night sessions, 2 afternoon out
door sessions, and 1 overnight trip. The same men were also planning
tu take a Red Cross first-aid course and during the summer months a
hle-savmg course.
In addition to a regular program of Scout projects, the scoutmaster
had a regular schedule for hikes by the different troops. He had
taken selected groups to participate in various outside programs.
* or instance, 25 Scouts from this school were taken to a district
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Scout council jamboree attended by 1,500 Boy Scouts from the>
surrounding area. Recently a big Scout rally had been held in the
assembly hall at the institution, with contests in various Scout work,
projects. An all-day outdoor rally for all Scouts at the institution,
was to be held in May.
The scoutmaster hoped to set up an outdoor camp for summer use
on ground owned by the institution, some distance away from themain campus. A communication in January 1934 stated that such,
a camp had been constructed on some land on the Genesee River,,
which flows through the institution property. It had been in opera
tion during the summer season of 1932 and 1933. During 1933 the
scoutmaster had 60 boys in camp each week. At the end of the camp
season 360 boys had spent 1 week each at the camp.
The school administration felt that Scout work had two particular
values for their boys— first, in giving them opportunities for whole
some activities of diverse character during their leisure hours while
in the institution; and, second, in helping to bridge the gap between
their institutional life and their life in relation to other boys when
they were ready to return to their home communities.
The scoutmaster discussed frankly some of the difficulties that had.
been encountered in connection with making the outside adjustment
for a boy when he was paroled. Some unpleasant incidents had
occurred when an attempt was made to affiliate boys with an outside
unit. Through energetic work on the part of the school executives,
and particularly on the part of the parole director and his field agents,,
these difficulties were said to have been largely overcome. Close
contact was maintained with the district and national Scout execu
tives, and whenever there was any difficulty the matter was taken up
through official channels and worked out in that way. Since Feb
ruary 1931, 160 Scouts had been paroled, and 65 of these had been
successfully enrolled in active troops in the communities to which
they had gone. Records at this school indicated that of 660 con
secutive admissions to the institution, 66 were of boys who had been
Scouts before they were committed, some of whom had achieved con
siderable standing in the Boy Scout movement.
The scoutmaster issued a regular intertroop transfer certificate^
supplied by national headquarters to each Scout who was to be
paroled. The parole agent found out whether the community to which
the boy was going had a troop in which he could be satisfactorily and
happily enrolled. If so, the transfer certificate was made out and his
exact Scout standing and record up to the time of transfer were
entered on it. A record of the transfer was sent on a card made
specifically for that purpose to the Scout district council. In the
headquarters at the school a card-system record was being kept of all
boys who had been Scouts at the institution so that the scoutmaster
could tell at any time the Scout history of any boy enrolled there,
whether before commitment, during institutional stay, or on parole.
Outings
All boys from the institution who were not under discipline were
sometimes taken on special trips to attend baseball-league games at,
the ball park in Rochester. These outings were naturally popular and.
much coveted by the boys.
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14. R E L IG IO U S IN ST R U C T IO N
This institution had always placed heavy emphasis on the impor
tance of religious instruction and affiliation for the boys committed to
its care. Reference already has been made to its two very attractive
chapels, one for Catholics and one for Protestants. (See p. 138.)
The school employed a Protestant chaplain full time to serve the
spiritual needs of boys from Protestant families. He conducted a
religious service each Sunday morning. Music was supplied by a boy
organist and a boy choir.
Religious education was not made a matter for attention on Sunday
only. There was no Sunday school, but the chaplain conducted
regular classes during the week, meeting groups for 45-minute periods,
as part of the school work, for Bible study and to give boys an oppor
tunity to bring up for discussion any matters that might be troubling
them.
The school also maintained a Catholic chaplain full time. He
conducted a service each Sunday morning in the Catholic chapel.
This group also had its organist and boy choir. During the week
Catholic boys were given religious instruction in certain periods, as a
part of the school program.
Although the school had very few Jewish boys enrolled, services
were conducted at intervals for them by a rabbi who was paid on a
per diem basis.
Close cooperation had been developed between the parole depart
ment and the chaplains. When a boy was to be paroled his chaplain
was notified. He immediately communicated with the pastor of the
particular denomination to winch the boy had said his people belonged
in the community to which he was to be sent. This was done whether
or not the boy had been a regular church attendant before commit
ment. Sometimes the chaplains wrote to religious organizations in
certain areas as well as to the pastors in an effort to enlist intelligent
help and guidance for the boy among members of his own religious
group.
7
If any difficulty developed after the boy was released and the parole
officers felt that the home pastor was not keeping in as close touch
with the boy as was desirable, or if the boy proved unfaithful to his
religious obligations and the regular parole agent and the pastor were
unable to adjust the matter satisfactorily, the school chaplain visited
the district and helped to solve the problems involved. At regular
intervals also the chaplains visited certain centers where there were a
good many parolees and met with them, giving them an opportunity
to talk over their ethical and spiritual problems, answering any ques
tions and giving any advice which the boys might seek.
15.
C R ED IT S Y S T E M A N D D ISC IP L IN A R Y M E A SU R E S
Credit system
The program at this school did not include a formal merit or credit
system. Each school teacher, shop instructor, and colony supervisor
kept an individual record card for each boy. On that card daily
entries were made. At the end of the month the officer entered a
monthly rating, and these cards were then turned in to the central
record office.
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Boys were graded on conduct, effort, progress, character of the
work done, and attitudes. A card giving specific instructions for
keeping these record cards was placed in the hands of each officer who
was required to rate a boy. Ratings were by letter, one indicating
good, or above the average ; one indicating fair (which was a fluctu
ating average or below-average rating); and one indicating poor, or
considerably below the average. Sometimes plus or minus signs were
used to indicate gradations. Officers were continually cautioned to use
great care in arriving at these monthly grades as these ratings were
used in determining eligibility for parole. The administrative office
expected these ratings to be the result of serious thought and fair
weighing of all factors by the individual awarding the grade. The
cards were not handled by the boys. They were considered confiden
tial between the grading officer and the administrative record office.
If a boy had received a low rating and this was a determining factor
in delaying parole, the matter was explained to him. If he felt that
he had been unjustly rated, the rating officer was asked to appear
before the parole committee and explain the basis for the ratings that
had been given.
Disciplinary measures
General policies with respect to types of discipline to be used were
determined by the superintendent. Working out of detail and the
responsibility for administering disciplinary measures under these
general policies were placed in the hands of the assistant superintend
ent aided and advised by the colony supervisors, school teachers, shop
instructors, and other officers having boys under their supervision.
The assistant superintendent preferred so far as possible to leave
disciplinary problems in the hands of group supervisors. Only when
they felt that a boy was getting completely out of hand did they refer
him to the assistant superintendent’s office for action. It was stated
that relatively few were thus referred and that school teachers and
shop instructors seldom called for aid on disciplinary problems. It
was desired that colony supervisors approximate as closely as possible
the parent attitude in disciplinary administration.
The primary disciplinary medium in use was deprivation of privi
leges. Boys were deprived of their play hours, having to remain
inactive and off the playground while the rest of the colony family
was enjoying its games. Curtailment of food was contrary to institu
tional policy, though it was said to be not unlikely for individual
colony matrons sometimes to take a boy’s dessert away from him just
as any mother might. Standing on line was not very much used at this
institution, although boys withdrawn from active play on colony
playgrounds might be required to remain on the side lines. Denial of
the right to attend school entertainments was not usual.
Boys were sent to disciplinary colonies by the assistant superintend
ent on recommendation of the colony supervisor if on investigation
of circumstances that action seemed desirable. The disciplinary col
onies were not different in their living arrangements from the regular
colonies. Their living rooms were pleasant, homelike places. The
supervision, of course, was very much more rigid. Moreover, boys re
siding in disciplinary colonies did not attend school. They were
required to do the roughest and most unpopular forms of manual labor
about the institution, usually working about 7 hours a day at these
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unpleasant tasks. The length of stay at these colonies varied greatly.
Release from disciplinary colonies and decision as to whether a boy
was to return to his former residence unit, or whether his program of
treatment was to be changed, depended upon the action of the assign
ment committee, which considered each case on its individual merits.
This institution was making great strides in individualizing the
treatment of disciplinary problems through its clinic service. It was*
expected that the clinic study of cases of enuresis, for example, or o f
sex practices, was going to prove invaluable in connection with the'
handling of such difficulties. The clinic had undertaken, with the aidi
of the medical director and with the cooperation of colony super
visors and matrons, to try out various methods of treatment in cases
for which no definite physical reasons which could be corrected were
discovered. The general staff was coming to recognize that problems
of this kind were not cleared up by severe punitive methods.
Boys were sent to the disciplinary colonies mainly for such things
as persistent disobedience, refusal to obey reasonable requests, open
defiance, smoking in the buildings, stealing, and running away. The
institution had a very high runaway rate. Supervision was very
informal, and it was easy for the boys simply to walk away. However,
most runaways were picked up and returned almost immediately.
Smoking was forbidden primarily because of the fire hazard. This
rule was particularly important at this institution where most of the
buildings were old and of frame construction, so that danger from fire
was always present. This was made very clear to the boys, and an
attempt was made to have them feel their responsibility for endanger
ing the property and even possibly the lives of other members of their
groups. Boys were told that it was thought unwise for very young
boys to smoke but that the primary reason for rigid enforcement of
the nonsmoking rule for the older boys was as a fire-prevention
measure.
Corporal punishment was strictly forbidden, and any failure to
observe this rule would be met with instant action on the part of the
superintendent against the offending staff member.
16. IN S T IT U T IO N R E C O R D S
Along with other changes made and the new developments in the
institutional program in 1931 and 1932, the record system had under
gone revision. A system was being developed which made basic a
record for each boy, organized along the lines of case-work procedure,
which would contain all the case-history data, including social history,
institution progress records, and parole history.
The individual departments, of course, kept considerable detailed
data in connection with their study of each boy and their judgment as
to his progress in their respective fields. The reports of the various
departments were summarized for the central case-history folder.
The central records were under the general supervision of the assist
ant superintendent and were kept in his office. A record clerk was in
charge of the detail of the record office. For each boy there was a
folder, the front of which served as a face sheet, with a printed outline
for recording identifying information such as age, school grade, and
nationality. It also contained space for summaries of shop, school,
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and colony assignments.
material:
In each folder was filed the following
Commitment papers.
Reports of psychologist and psychiatrist.
Report of the preliminary home and social investigation.
Report of the preparóle home investigation.
Notes on home-reconstruction work.
Monthly reports from the discipline and trade departments, school,
and colony.
Correspondence.
Medical reports.
Parole data (preparóle and field parole reports).
Special printed forms were used for each of these reports. The
blanks used for the preliminary home, school, and court investigations
were exceptionally complete, covering all possible points included in
a thorough case investigation. These forms, with supplementary
sheets for the parole agent’s comments, consisted of several pages.
The monthly reports as to discipline, school, trade, and colony
record were made on large cards, one for each department. They
were turned in to the record clerk monthly for filing in each boy’s
folder. (See appendix C, pp. 320-324).
. Forms necessary for recording the institution routine of transfer
from one assignment to another, leave of absence, Boy Scout cer
tificates, notices to parents, and similar items were in use.
In addition to the case folder the administrative record office had
an index file of cards 5 by 8 inches, which provided for a complete
summary of each boy’s case. These were filled out progressively and
included very complete detail of the boy’s institutional and parole
history.
Separate individual records were kept by the medical and academic
school departments. A full record was made of the boy’s physical
examination and of the medical history taken on his entrance. Fur
ther records were set up for boys receiving hospital or medical treat
ment. These were very complete and detailed as to progress of
treatment. They became permanent records and, were filed at the
hospital. The school nurse kept records of all boys seen by her,
including weight records for those found to he.underweight.
The academic school kept a set of monthly, report cards which
constituted a permanent file. A copy of the regular report cárd was
given the boy when paroled, and one was also sent to the boy’s
parole agent.
As has been indicated previously, records considered as preparóle
material and the supervisory parole reports were included in the boy’s
general case-history folder. In addition to the preparóle socialinvestigation forms, there were certain forms used in preparóle prep
aration which became part of the record. These were the form letter
of inquiry sent to the judge of the committing court asking his coop
eration in recommending placement or return home, the reference for
parole signed by the judge, and the reference from the pastor of the
boy’s church; and the summary of the parole treatment program as outfined. This last was a 3-page form giving brief identifying informa
tion, brief summary of institutional progress and problems, and an
outline of the program to be followed after thé boy’s release on parole.
r Forms were furnished boys on parole for their monthly reports, and
written reports were required of all visits by the parole officers. Both
were filed in the boy’s case record.
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17. PAR O LE A N D D ISC H A R G E
Boys might be paroled or discharged from the institution at any
time after commitment in accordance with the rules and regulations
which the State department of social welfare was authorized to
•establish.19
.
The parole department was part of the administrative organization
of the institution, with headquarters at the institution, and the assist
ant superintendent acted as director of parole. The immediate super
vision of all parole work was under his direction. During 1930 a
•complete reorganization of parole work was effected. Previously, the
parole work had been organized on a basis of religious affiliation, a
Catholic parole officer being in charge of Catholic boys and a Protes
tant parole officer in charge of Protestants. In the new program the
field staff had been combined into one unit, and the assistant super
intendent assumed the duties of director of parole. The Protestant
parole agent became supervisor of preparóle activities, and the
Catholic parole agent became supervisor of the field parole—that is,
of the services of the parole agents to boys after their release.
There were 8 field agents or parole officers, and it was expected
that 2 more officers would be added at the beginning of the next
fiscal year (July 1, 1932).
.
.
,
Appointment of the parole staff was through civil service ^details
as to salaries, qualifications, and appointment have been given in
pages 141-143. As was there stated, the standards of personnel for
the parole work were being raised, and the few officers who did not
meet the new requirements were men who had been on the staff of
the institution in other capacities for a number of years and had been
promoted to their present work before the reorganization took place.
Investigation and planning with parole in mind and preparation
o f the boy for parole were emphasized as important phases of the
work of the parole department. In his annual report for the year
ended June 30, 1930, the director of parole stated that “ full prepara
tion for a boy’s parole should begin the moment a boy is received at
Industry.” 20 As has been noted, a special staff position had been
created to carry out a carefully planned preparóle program. The
first step in this was a home, school, and court investigation, which
a field agent was directed to make very soon after a boy was received.
This was planned to obtain a complete case history previous to com
mitment relating to home, neighborhood, school, mental status, health
conditions, and court history. These investigations included regis
tering the case with a social-service exchange, if one existed in the
community from which the boy had come, and following up the
references thus obtained.
.
The supervisor of preparóle work was expected to keep in close
touch with the boy while he was in the institution, to follow his
progress records, and to serve as a member of the assignment and
parole committees. He also directed the field agent in work with
the boy’s family during the boy’s stay at the institution if, as was
usually the case, the investigation had shown a need for rehabilitation
work in the home. He made every effort to secure the help and
cooperation of local agencies in this program. Thus through these
i» See p. 135 and Cahill's Consolidated Laws 1930, State Charities Law, secs. 196 (1), 203.
» Advance Pages of Parole Department, State Agricultural and Industrial School, Eighty-second
Annual Report for year ending June 30,1930, p. 6. Industry, N .Y .
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
preparole activities the parole force was brought into contact with the
boy and his problems immediately after commitment and remained
in close touch throughout his period of institutional treatment.
Eligibility for parole was not based on any specific merit or credit
system but depended on the individual boy’s progress in his conduct,
work, and training program. The basis for measuring his progress
was the grading system used at the institution in which the boys were
graded on conduct, effort, progress, character of work done, and
attitudes, as has been described. (See p. 166.)
The assignment committee and the parole committee decided a
boy’s readiness for parole, and the latter committee worked out with
the supervisor of field parole the plan to be carried out on parole.
The personnel of these two committees was practically the same,
both including the assistant superintendent, psychologist, psychi
atrist, psychiatric social worker, supervisor of preparole work, voca
tional director, superintendent of schools, and second assistant super
intendent. The superintendent of the institution, supervisor of field
parole, and the chaplains were additional members of the parole
committee.
Each boy’s case was reviewed by the assignment committee when
he had been at the institution 6 months. At that time the probable
date on which he would be ready for parole was determined, and his
name was placed on schedule for a hearing by the parole committee
on that date. The average length of stay was 13 months. Before
this hearing, the supervisor of preparole work reviewed the boy’s
record and had a check-up visit made to the boy’s home. This
supervisor, with the advice of the clinic, and especially that of the
psychiatrist in problem cases, made the formal recommendation for
parole to the parole committee. Each case was discussed in detail by
the committee and suggestions were made for the after-care treatment
plan to be followed by the supervisor of field parole. If parole was
approved by the committee, the name was sent to the superintendent
and to the parole committee of the board of visitors of the institution
for final approval. References were also required from the judge of
the committing court and from the pastor of the boy’s ?church.
When the preparole investigation showed that the boy’s own home
was entirely unsuitable for his return, it was the policy of the parole
department to recommend placement in a foster home, usually
either a free or a wage home if the boy was of legal working age.
The State was districted geographically for assignment of cases for
supervision. The total number of boys on parole on a given date
(April 1, 1932) was 1,742, of whom 1,112 were “ active cases” and
630 were “ semiactive” (legally still on parole but no longer under
active supervision). As the field staff numbered eight officers, the
average load of active cases was 138 per officer. This varied some
what in the actual assignment of cases, and it was noted that one
officer had as many as 185 active cases under supervision and another
had 150, while others had as few as 115 and 105 cases.
The frequency of visits to the boys by the field agents depended
upon the individual case characteristics. Monthly visits were re
quired as a matter of routine, but difficult problem cases were visited
as often as there was need and as time permitted. After the first year,
visiting was less frequent if good progress had been made; and active
supervision was discontinued after 2 or 3 years if the field agent so
recommended and the school authorities approved.
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N E W YORK STATE AGRICULTURAL AND IN DU STRIAL SCHOOL
171
The written reports required monthly from the boys, on forms pro
vided for that purpose, were sent by the boy directly to the field
officer, who made a record of them for his own information and sent
them in to the institution for filing. These monthly reports had to
be signed by the boy, by his teacher if he was in school, and by his
pastor. Weekly reports of visits made by the parole officers during
each week were sent to the supervisor at the institution. These were
made on separate sheets, so that each might be filed with the record
of the boy concerned.
As was noted in the description of the work of the parole committee,
an after-care treatment program was carefully planned and summari^ed. When a boy was paroled, copies of this summary were sent to
the following people: The assistant commissioner of social welfare in
charge of State institutions; the local superintendent of schools in
the community to which the boy was going; the committing judge;
and the parole field agent. The contact established through this
means with the local school authorities had been found to be very
helpful in many cases in assisting paroled boys to make their school
adjustments.
Each field parole officer was expected to carry out the treatment
program determined upon, and he could not make any change in it
without first consulting the supervisor of field parole. Suggestions
were readily accepted by him, however, and parole officers were
encouraged to recommend change whenever they felt it to be for the
best interests of the boy.
Since the chaplains were field workers as well as resident officers,
they frequently assisted the parole officers in maintaining contacts with
church organizations and in making adjustments in regard to church
problems. In addition to case work with parolees, the supervisor of
field parole considered it part of the work of the parole agents to
carry on an educational program in the communities, to interpret the
parole work to the public, and to make clear to social agencies the
part they might play in the constructive work necessary to help boys
returning to their communities. The parole department had enlisted
the assistance of courts and many social agencies of various types in
connection with the supervisory work.
Another interesting feature of the parole program was the staff
conference of the entire field force and supervisors, held every 2
months. At these conferences the various phases of the parole work
were discussed. It was felt by the supervisory staff that through
these conferences the field officers got a better understanding of the
boy’s problems, of the value of obtaining complete and thorough case
histories, and of the importance of working out plans of cooperation
with agencies in the communities to which the boys were paroled.
As the institution’s legal control continued until each boy reached 21
years of age unless sooner discharged (see p. 135), most of the boys
remained under its supervision until that time, though active super
vision usually was discontinued after 2 or 3 years of satisfactory
parole record. Unless a case demanded special attention the boy
merely “ stayed on^the books.” Boys were automatically discharged
before reaching 21 if they married, enlisted in military service, or were
committed to some other correctional institution.
The decision as to returning a parolee to the institution for violation
of his parole was the responsibility of the parole department. There
76870- 35-
-12
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
was no definite rule as to what constituted a violation. It was left
to the judgment of the field parole officer with final approval by the
supervisor, or to the judge of the court, usually in consultation with
the parole department. Boys were sometimes returned for further
training when adjustment had not been satisfactory, though they
might not have committed any specific offense.
The parole department in its reorganization was developing and
improving its record system. Because preparole and parole activities
were all considered a part of the whole institution-treatment program ,
they were made a part of the case record, so that one record folder
might contain each boy’s complete history.
18. P LA N T AN D P R O G R A M C H A N G E S IN R EC EN T YE A R S
Of the cases analyzed in part 2 of this report (see p. 10), 148 were of
boys from the New York State Agricultural and Industrial School.
Most of these boys (115) were admitted during 1923 and paroled
for the last time during 1924 and 1925. Some admissions were of
still earlier date, one as far back as 1918. The program at this insti
tution was distinctly different in several ways during this period from
that described as in effect in 1932.
Except for the addition of the central school building, the plant
itself was approximately the same. The boys lived in widely separated
colonies, seldom numbering more than 25 to a group, and having a
supervisor and matron in charge of each such family unit. There
were two types of colonies, industrial and farm. Each farm colony
had about 50 acres of land assigned to it and had all the buildings,
equipment, and stock necessary to carry on a small independent farm
program. Each farm-colony supervisor was the directing head of
his own farm, responsible only to the superintendent or his assistant.
Supervisors of the industrial colonies were skilled tradesmen who car
ried on production and maintenance work for the institution with
boys doing the work under their supervision. Each industrial colony
had a large garden plot assigned to it, and its boys were expected to
raise all the vegetables for their colony, in addition to doing their
shop work.
.
,
The boys were segregated according to age, size, mental ability,
home training, and previous experience. The segregation was as
complete as it was possible to maintain. The aim was to prevent the
“ comparatively well-disposed boys” from being brought into any
contact with “ the vicious and depraved.” 21
Comparison of figures for the fiscal years ending June 30, 1922
and 1931, reveals some changes in the intervening years:
Item
1922
665
194
3. 4
$568
1931
572
2 11
2. 7
$820
State Agricultural and Industrial School, Seventy-sixth Annual Report, year ending June 30, 1924t
p. 115. Industry, N .Y .
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NEW
YORK STATE AGRICULTURAL AND INDUSTRIAL SCHOOL
173
It will be noted that the population had decreased but that the
number of employees had slightly increased, so that the ratio of em
ployees to boys was even more favorable than at the earlier date. The
per capita cost had risen, indicating the probable expenditure of more
money to procure not only more but also better-trained personnel.
For many years special attention had been given to the physical
health of the boys admitted and of those under care. Not only had
the boys suffering from acute conditions been given excellent medical
■care, but much corrective work had been undertaken to relieve con
ditions noted at time of examination on admission. In 1923 the school
hospital was destroyed by fire. Until the new fireproof hospital was
built and opened in 1925, the medical work was seriously handicapped
b y the inadequacy of facilities, and much of the corrective work had
to be foregone.
The boys included in this study did not have the benefit of the
psychiatric and psychological services described as operating in 1932.
But all boys were given mental tests (Binet-Simon), and the results
o f those routine examinations were utilized in making assignments to
school classes and industrial training. The tests were given by a
teacher who had taken some special training for that work. The
annual report for the fiscal year 1923-24 included the following classi
fication on the basis of those tests, with the comment that although
the examinations probably did not always do full justice to the boys,
especially those from homes in which foreign languages were habitually
spoken, it was believed the findings tabulated gave an approximately
accurate picture of the levels of intelligence of the boys admitted
during the year:22
Mental level
Superior (110^120)- ________ __
Normal (90-110)_ __ _______ .
Dull normal (80-90)_______________
Border-line (70-80)___________
Feeble-minded (below 70) _____ _
Percent
Number distribu
tion
6
83
102
109
100
15
21 0
25 5
27 0
25! 0
In keeping with theipolicy of complete segregation by colony the
school classwork was carried on in each colony home. During 1924
and 1925 there were 19 teachers under the supervision of a superin
tendent of schools. Each colony classroom really constituted a small
country school, to which a teacher came either m the morning or in
the afternoon every day. Half the colonies had school in the morning
and did their other work in the afternoon, and the rest of them reversed
the program. Three of the 19 teachers taught special subjects (music,
freehand drawing, and physical education), visiting all colonies at
regular intervals. The others taught regular public-school work,
adapting the courses to the varied abilities and degrees of retardation
o f their boys as best they could. But the annual reports for this
period contained comments on the handicap under which the teacher
labored who tried to teach the work of several different grades, and
perhaps some high-school courses, during the short half-day school
period.
** Ibid., p. 90.
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
As has already been pointed out, this institution had been primarily
an agricultural school, about two-thirds of the boys being engaged in
farin’ activities. At the time this institution was removed from
Rochester to this rural site, its founders had firmly believed in the
efficacy of rural life and farm pursuits as rehabilitative agents. They
recognized the fact that most of their boys came from cities and would
return to city life. They had no desire to turn these city-bred lads
into farmers. But they believed there was a healthy freedom in farm
life and activity, a wholesome physical, mental, and moral tonic in
contact with the soil, the sunshine, and the fresh air. They felt that
kindness and consideration for the needs and desires of others could
be developed through teaching the care of animals. It was natural,
therefore, that the most promising boys should be assigned to the
farm colonies, and the most hopeless types should be required to do
the industrial work in the various shops. In the 1926 annual report
these shops were described as “ nothing but ill-lighted, poorly venti
lated, uninviting barracks which create an environment that is
positively detrimental to the best results.” 23 The training consisted
of “ learning by doing” the maintenance and production work for the
institution under the direction of experienced workmen.
In recognition of the fact that the educational and vocational pro
grams were not altogether satisfactory, the board of managers re
quested the State department of education to make a survey of the
institution and to suggest such changes as the survey might indicate
as desirable. That survey was not made until 1928, after the last of
the boys included in this study had been finally released. When
completed it recommended centralizing of the school and vocational
work, greater development of the latter, and correlation of the two
types of educational activity.
The prevailing segregation policy was slightly relaxed from 1917 on
but was fairly rigid until 1928. The only relaxation had been in
certain general assemblies held, always under the closest of super
vision. But there was no intercolony play, nor organized athletic
sports and games until later.
The institution had never been under a military regime nor had
military drill.
#
,
,
Neither had corporal punishment ever been authorized under therules of the school since its establishment in pl&pc of the old House o f
Refuge in Rochester. Discipline was descnbed in 1924 as being
“ maintained by kindly advice and persuasion, by public recognition
of right conduct, by the publication of a ‘ reliable fist’ ” (which en
titled a boy to certain extra privileges). When these measures failed,
sterner ones were employed; for instance, the time before parole wasextended, one or more of the ordinary privileges was withdrawn,
certain unpleasant work had to be done, or the boy was sent for a
term in the disciplinary colony or experienced “ temporary restriction
of diet.” 24
. . . . .
x ^
io
The annual reports of the institution for the past 10 or 12 yearsindicate that parole supervision has been considered one of the most
vital parts of the treatment program. An effort had always been
made to maintain close contact with the boys during the first year
or two after their release. The supervision had been friendly and
33 state Agricultural and Industrial School, Seventy-eighth Annual Report, year ending June 30, 1926,
p. 40. Industry, N .Y .
M Seventy-sixth Annual R eport, 1924, p. 116.
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N E W YO RK STATE AGRICULTURAL AND IN DU STR IAL SCHOOL
175
designed to be as helpful as possible. It had been under the direction
of the assistant superintendent and 2 supervisors (a Catholic and a
Protestant parole agent), aided by 3 additional field agents. In 1924
these 5 parole agents were responsible for 1,840 parolees. Of that
number, 870 were on “ active” and 970 on “ semiactive” parole.
Obviously the case load was too heavy to permit as close relations
as the agents desired to maintain with the released boys whom they
were trying to help, but cooperative relationships were being built up
with outside agencies whose efforts on behalf of paroled boys were
used to supplement those of the institution’s field officers. The
method of actual field supervision, save for the reduction of case
load through addition of more agents, did not differ greatly in
1932 from what it had been in 1924 and 1925. An attempt was
being made to procure agents wdth college and special social-work
training during the later period, with a view to raising the standards
of work still higher and integrating it more completely with the work
of other social agencies in the communities from which the boys
came and to which they returned.
The most important difference between the parole work in the two
periods lay in the procedures preceding parole and concerned with its
granting. In the years during which the boys included in this study
were in the institution or on parole, the parole agents themselves had
no contact with a boy’s case until he had been granted parole and
was about to leave the institution. Usually there was very little
social history available. When a colony supervisor recommended parole
for one of his boys, a home investigation was made a few days before
the boy was to be sent home, but it was said that more attention was
paid to the references signed by the pastor and by the judge than to
the parole agent’s report on the home. For many years the super
vision had included close cooperation with the pastors in the boys’
home communities. Boys were expected to attend church regularly
and to send in at regular intervals written reports signed by their
pastors.
With the reorganization in 1930 the procedures were put into effect
which started preparation for a boy’s parole as soon as he was admitted
to the institution and which insured the procuring of much more com
plete social history and the application of all the findings of the
clinical study of the boy to the plans for his adjustment back into
community life. (The new system is described in pp. 169-170.)
Throughout the reorganization of the school program in 1929, 1930,
and 1931, the institution management had had the strong support of
the State department of social welfare, whose staff took a deep interest
in the plans being made and were most helpful in procuring the neces
sary funds for putting the desired changes into effect. Other State
departments proved to be genuinely interested and cooperative. The
administration expressed particular gratitude to the vocational section
of the State department of education for the aid given in working out
the comprehensive plan for bona fide vocational training for the boys.
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Federal Reserve Bank of St. Louis
Chapter VI.— B O Y S’ INDUSTRIAL SCHOOL, LANCASTER,
OH IO
The Boys’ Industrial School at Lancaster, Ohio, was visited by field
workers in March 1932 for the purpose of securing the material needed
to prepare a description of the physical plant and treatment program
to be presented in this report. Unless otherwise specified, all state
ments refer to conditions existing at the school at that time.
1. ST A T U T O R Y P R O V IS IO N S G O V E R N IN G E S T A B L IS H M E N T A N D
O P E R A T IO N
In Ohio the early statutes establishing institutions for the care o f
delinquent children made provision for several types. In 1857 two
separate laws were passed, one to authorize the establishment of
“ houses of refuge” , the other to provide for the establishment o f
“ reform schools.” The term “ reform school” was to apply to institu
tions “ where youth are detained under discipline for their reforma
tion.” Three classes of institutions were indicated under the reformschool law; namely, city institutions, farm schools, and institutions
for private charity. Farm schools, the second class, were to be “ reform:
farms” to receive young persons sent either by judicial decision or by
parental or township authority, who were to be employed under lessrestraint, chiefly in agricultural labor. The Governor was to appoint,
with the advice and consent of the Senate, a board of commissioners,,
consisting of three members, to establish and supervise these reform
schools.1
Provision was made in connection with the establishment of the farm
schools for an “ Ohio State Reform Farm” , and it was this institution
which became the Boys’ Industrial School of the present time. The*
board of State commissioners was made responsible for the purchase o f
land and for the erection of suitable buildings to accommodate “ 40
male youth and necessary officers and employees.” As soon as the
buildings were completed, the commissioners were to call on the direc
tors of the house of refuge in Cincinnati, or the directors of the Ohio
penitentiary, or the officers of any jail in the State for 40 boys to “ con
stitute the first family of said reform farm.” 2
Under the provisions for commitment boys under 18 and girls under
16 found guilty of an offense or crime against the laws of the State could
be committed to reform schools, also those under such ages who by law
might be sent to houses of refuge— that is, both delinquent and depend
ent or neglected children. In accordance with the statutory reserva
tion of the Ohio State Reform Farm for “ male youth” , girls have never
been admitted. Children committed were to remain under control of
the reform schools until legally of age. They might be placed out on
i £_¥_?' Laws of 1857, pp. 163 (houses of refuge), 171 (reform schools).
8Ibid., p. 171, secs. 7-9.
176
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B O YS’ INDUSTRIAL SCHOOL, LANCASTER, OHIO
177
apprenticeship by the authorities of the school and could be discharged
only by order of the authorities or in due process of law.3
In 1858 the law of the previous year in regard to reform schools was
repealed and a new one was passed, which stated that the purpose of the
reform schools was to provide institutions in which youth were to be
detained under discipline for their reformation, rather than for their
punishment. Three classes of institutions were included: Houses of
refuge, as organized under the provisions of the 1857 law ; institutions
such as the “ State reform farm already established in Fairfield Coun
ty” ; and reformatories. The board of State commissioners remained
the governing authority over all reform schools, and the law specifically
provided for the inclusion of the Ohio State Reform Farm under its
control. The terms for commitment and discharge remained the same.4
There has been only one change in the name of this institution, that
made in 1885 to the “ Boys’ Industrial School.” The statement of the
institution’s purpose was modified as changes were made in the laws;
an act of 1921, which is still in effect, provides that the school “ shall
be maintained for the industrial and intellectual training of those
admitted to its care.” 6 In order to carry out this purpose, the boys
were to receive such education and be instructed in such branches of
industry— agricultural, mechanical, or otherwise— as the State depart
ment of welfare might decide, their reformation and preparation for
usefulness to be kept in view by the administration.6 In 1911 the
administration of the institution passed from a local board of trustees to
the Ohio Board of Administration, created in that year to govern all
State institutions, and 10 years later to the State department of public
welfare, which took over the powers and duties of the Ohio Board of
Administration (except the purchasing of supplies, which was trans
ferred to the department of finance).7 Since that time there has been
no local board of management for the “ Boys’ Industrial School.”
The law had undergone few changes in regard to age limits and length
of commitment. During one considerable period—from 1878 until
1913— the upper age for commitment was 16 years, but the lower age
limit remained consistently 10 years. Commitment had always been
until the boys should reach “ majority” , “ legal age” , or “ 21 years.”
The law of 1921, which is still in effect, provided that boys not over 18
nor under 10 years, of normal mental and physical capacity for intel
lectual and industrial training, might be committed to the “ Boys’
Industrial School.” All boys were to be committed until they became
21 years of age unless sooner released for satisfactory behavior and
progress in training.8
Authority to release on parole or leave of absence and to discharge
boys before reaching majority was vested entirely in the department of
public welfare, which had formulated rules and regulations in accord
ance with the law.9
The law of 1858 had provided for voluntary payment for the care
of children at this institution. If the parents or friends were willing,
3Ibid., p. 163, secs. 6-15; p. 171, secs. 10,11.
1Ohio, Laws of 1858, p. 27-34.
3Ohio, Laws of 1885, p. 141; Laws of 1921, p. 523 (Gen. Code 1932, sec. 2083).
3Ohio, Gen. Code 1932, sec. 2094.
7Ohio, Laws of 1911, p. 212; Laws of 1921, p. 124 (Gen. Code 1932, secs. 154-157, 1835).
8Ohio, Laws of 1878, p. 60, sec. 8; Laws of 1913, p. 879; Laws of 1921, p. 523 (Gen. Code 1932, secs. 2083,2084).
« Ohio, Gen. Code 1932, secs. 92, 154-157, 2091.
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FIVE STATE IN STITU TIO N S FOR D ELIN QU EN T BOYS
they might by “ agreement made between them and the authorities
* * * be held to pay a weekly charge, not exceeding $1.50.” This
provision was omitted from the law of 1878. The only later statutory
reference to payment for maintenance was in the law of 1921, still in
effect, in which no amount was specified; the very general provision
stated merely that “ male youth * * * may be admitted to the
* * * school under such regulation governing tuition, mainte
nance, and discipline as the controlling board may provide. Funds
collected for the maintenance of youth so admitted shall be turned
into the State treasury for the use of the school.” 10
No records indicated whether or not the department of public wel
fare had made regulations regarding the payment of any tuition.
2.
T H E P H YSIC AL PLA N T
Location
The natural setting of this institution among the hills of south
eastern Ohio is very beautiful. Though the rural section surrounding
it was fairly well settled, many of the farm houses were “ up the hol
lows” or on the hillside, presenting many picturesque settings. All
about were extensive hillside orchards, which in the spring added to
the beauty of the whole countryside. The institution was 6 miles
from Lancaster, the county seat of Fairfield County, a city of about
19,000 population. No arterial routes passed the institution, but
it was reached by two good secondary highways. There was a street
car line from Lancaster, the cars running at very infrequent intervals.
The mail was transported over this car line. Lancaster itself was
only about an hour’s bus ride from Columbus, the State capital.
The main buildings of the school were situated on a sort of ridge,
roughly shaped like a horseshoe and considerably elevated over the
surrounding country. The deep ravine which formed this ridge
wound through the grounds and with its wooded slopes added much
to the beauty of the school campus. The grounds were artistically
landscaped, and during the spring and summer the various flower
gardens were profusely in bloom.
Acreage
This institution had a larger acreage than any other among the five
studied, although it only slightly surpassed the New York school in
size. Of the 1,485 acres 502 were under cultivation and 508 were in
native timber, 135 were occupied by the numerous buildings, the
lawns, and the athletic and drill field, 250 were in pasture, and 90 were
waste land. As the land was hilly it was not particularly suitable for
farming. Practically three-fourths of the cultivated land was used
for general farm products (375 acres); 20 acres were used for truck
farming; and 107 acres were orchards and berry patches, both of
which were highly productive.
Administrative offices
The superintendent’s residence, an imposing, 2-story, yellow-brick
house of colonial style, housed also the offices of the superintendent, the
record clerk, and the business manager, and was known as the adminis
tration cottage. It had been erected in 1895 and was apart from the
other buildings, near the entrance to the grounds. The interior was
quite as imposing as the exterior, with high-ceilinged rooms and a
10Ohio, Laws of 1858, p. 27, sec. 15; Laws of 1921, p. 523 (Gen. Code 1932, sec. 2084-1).
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B O YS’ INDUSTRIAL SCHOOL, LANCASTER, OHIO
rotunda in its center. On the first floor were the offices, a reception
room, and a dining room, the last named used for formal entertaining.
The other administrative offices, including those of the assistant
superintendent and the day captain, were in what was known as the
“ main building” , which, except for these offices, the institution post
office, and officers’ barber shop, was primarily a residence building for
staff members. This had & more central location with regard to the
other institution buildings.
Boys’ residence quarters
In this country the plan for housing boys in cottage units, rather
than in one large building, was given its first trial with the founding of
this institution in 1858. However, although a pioneer in this field,
Ohio has not kept pace with the accepted theory that such cottage
groups should be small enough to permit of normal family-group life,
for their so-called cottage populations ranged from 40 to as high as 90
boys, and the bed capacity was reported to range from 50 to 94.
In addition to the large groups per cottage there was apparently over
crowding in some cottages, as the following list shows:
Cottage
Receiving cottage
(Cuyahoga) ______
Discipline cottage
(Auglaize)_______
Ohio ______ ____ _
Highland_________ _
Herrick ___________
Bushnell _ _____
Lagonda. _ ___ _
Hocking. _______ __
N um
ber of
beds
68
50
94
85
80
80
70
75
Popula
tion
Cottage
Muskingham______ _
41 Harris_
Pattison__________ _
50 Scioto __________
74 Nash
59 Harmon A _
81 Harmon B
45 Union.
58 Maumee.
55 Farm nn+.t.fl.ge no, 1. .
N um
ber of
beds
75
74
74
74
72
70
70
51
51
Popula
tion
63
74
93
75
49
47
58
63
53
5
Eighteen cottages were being used for boys’ residence quarters,
including the receiving, discipline, and farm cottages. Only five
boys lived at the farm cottage. Four of the cottages housed the
younger boys in a unit called the “ East Side.” The institution had
practically two campuses, maintaining a very distinct line between its
so-called “ East Side” (used for complete segregation of the younger
boys) and the main school, called the “ West Side” , about one-fourth
mile distant.
The cottages exhibited a wide variety of architecture and interior
planning, as they ranged in age from the earliest buildings of the
institution to a cottage that had been built in 1931. The older cot
tages were all of dark-red brick, mostly three stories high, with cupolas
and fancy cornices typical of the Victorian period. Four of the old
cottages which had contained third-floor attics used as dormitories
had been remodeled about 1925. Three were made into square,
2-story, flat-roofed buildings. The fourth was a 3-story cottage, but
its third floor was left unoccupied. The newest cottage was of modern
architecture, two stories high, and of attractive light-red brick. It
was the only building which was entirely fireproof. Some of the older
cottages seemed to present a distinct fire hazard. There were two
dormitories in each of 11 cottages and only one dormitory in 6 other
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FIVE STATE INSTITUTIONS FOR DELIN QU EN T BOYS
cottages. Windows were not barred, but a very heavy screen was
used to prevent escapes.
Except for a small lavatory off the dormitories, all sanitary facilities
were in the basements, including showers, toilets, and washbasins.
The older cottages had not as modern fixtures as the remodeled
cottages and the new cottage, but all such facilities were fairly
adequate.
Not all the cottage living rooms were visited, but those which were
seen had a formal and rather stiff aspect. The chairs stood around
the room against the wall or had been placed around the tables in
very precise arrangement. Each cottage had some books and table
games. Clothes rooms were in the basement, and these were also
used for indoor play space, particularly on the so-called “ bath nights ”
while the boys awaited their turn at the showers. Some of the living
rooms were made more attractive by plants, all had some pictures,
and most of the cottage supervisors had their personal radios placed
so that the boys might hear them.
Staff residence quarters
Practically all the staff resided at the institution; single persons
had one room each, married couples had two rooms. Cottage super
visors, in all instances husband and wife, had quarters in their respec
tive cottages. The long, 3-story main building, which was entirely
given over to residence quarters, except for the offices of the assistant
superintendent and certain other offices, housed the largest staff
group. There was a recreation room for the men officers in the base
ment, and on the second floor was a parlor or living room for the
women officers. The third floor, except for one guest room, was
occupied by men, mostly night watchmen. None of the staff residents
in this building, except the assistant superintendent, had private
baths.
Some additional staff quarters were afforded on the second floor
of the East Side dining-room building. Two single rooms for men
had been fitted up in the armory building. In a few cottages single
rooms were available in addition to the resident supervisor’s quarters.
Dining-room and kitchen facilities
Separate dining rooms and kitchens were maintained for the two
divisions of the institution. The building used for this purpose on
the East Side was one of the oldest on the grounds. It had been
remodeled, however, and the interior of the dining room was rather
pleasant. A small dining room for the East Side officers adjoined the
boys’ dining room.
The East Side had its own kitchen, in which all the food was pre
pared except the bread, which was baked in the main bakery. This
kitchen was rather small and did not have a great deal of modern
equipment.
The boys’ dining room for the West Side was somewhat less attrac
tive than that on the East Side. It was much larger, and had bare
walls, high ceilings, and long windows. It had capacity to seat
approximately 700 boys at a meal.
The main officers’ dining room adjacent to that of the boys in the
same building seemed to emphasize utility at the expense of attractive
ness and good cheer. Each table seated about 14 people, and the
room was crowded. The officers’ and boys’ food was prepared in the
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B O Y S ' INDUSTRIAL SCHOOL, LANCASTER, OHIO
main kitchen. This was large, airy, light, and adequately equipped
but had few labor-saving devices.
Chapel and assembly hall
The chapel, which had been built in 1895, was centrally situated
about half-way between the West Side and the East Side campus.
It was a gothic building of sandstone with attractive stained-glass
windows and wooden church pews. There was a balcony for staff
nr visitors. All institution assemblies, motion-picture shows, and
other entertainments were held in the chapel, as well as the church
services on Sunday. This chapel had sufficient room to serve as
assembly hall for the entire population of the institution.
■Hospital
The hospital was a 1-story, red-brick building set well back from
the main walk near the East Side. The building was rather attractive
both from the outside and on entrance. The halls were well kept,
and there was a cheerful reception room. The capacity was 100,
arranged in 3 large wards of 20 beds each, 2 small wards with
•5 or 6 beds in each, and 5 private rooms with 1 or 2 beds each.
The hospital kitchen was in the basement, and all meals served
to patients were prepared there. The surgery and dispensary were
said to be adequately equipped, also the dental office in the hospital.
"The physician resided at the hospital, but the nurses had no quarters
there.
School buildings
The academic school, which was carried on in two groups (one for
the younger boys and one for the older ones), had a building for each
group. Neither school had very modem equipment.
The East Side school, completed in 1925, was located at the far
■end of the East Side campus. It w;as a 2-story and basement brick
building of the ordinary type of school building, semifireproof. Oldstyle school desks and seats were used. The classrooms were well
lighted and ventilated and Were made cheerful with colored cut-outs
nnd art work done by the boys.
The West Side school, the one for the older boys and really the
central school building, was some 15 years older than the East Side
•school and less modern in design. It was not fireproof, but it was
kept in fairly good repair. Old-style desks were used here likewise.
•Shops
The industrial building, the paint and tin shop, and the garage were
the three separate buildings provided for shop work in the vocational
program. In the industrial building were several other shops,
including those for printing, shoemaking, manual training, and
•carpentry. These shops were equipped with some modern machinery.
The print shop had 2 linotype machines, a cylinder press, and 3 job
presses. The tailor shop was on the second floor of a building that
was used also for the storeroom. The mechanical building housed
the blacksmith shop, automobile-repair shop, plumbing shop, electri
cians’ shop, and machine shop.
The new modern powerhouse may be mentioned along with the
shops, for although it was part of the institution maintenance plant
it was a training center for a group of older boys. The shops, with
the exception of the shoe shop and the printing shop, were devoted
chiefly to maintenance.
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182
FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
On the East Side a small building, consisting of only one room,
was used as a handcraft shop for the younger boys.
Farm buildings
There were about 19 major farm buildings, all well kept up, some
of recent construction. One of the dairy barns was new, with up-todate equipment. Practically all phases of farming were included in
the agricultural-production program, and farm machinery was ade
quate and up to date. There were two large greenhouses, one for
flowers and one for vegetables, both large and well fitted for the
work carried on in them. These afforded excellent training in horti
culture, especially the raising of hothouse vegetables.
Gymnasium and athletic field
An armory which was an old sandstone building of typical armory
architecture was used both for military drill and as a gymnasium.
During the winter season it was used for basket-ball games. In its
basement was a swimming pool that could be used only during the
summer months.
The athletic or drill field was at some distance from the armory and
was quite extensive, being composed of three playgrounds. It was
used for military drill and as a baseball field during the appropriate
season. Each cottage had a playground, and on the East Side each
of them was equipped with some play apparatus.
3.
P LA N T V A L U A T IO N A N D O P E R A T IN G E X P E N S E
The institution supplied the following figures on plant valuation:
Lands__________________________________ $108, 234 00
Buildings_______________________________ 1, 315, 855. 00
Equipment_________ , ------------------------------ 487, 950. 84
Total_____________________________ 1, 672, 689. 84
These figures did not take into account depreciation of property.
They represented the total amount expended by the State for the
respective items.
The business office supplied the following information on operating
expenses for the year ended December 31, 1931:
Salaries___________________________________$123, 750. 65
Maintenance and supplies____________________ 117, 972. 53
Professional services________________________
3, 906. 47
Equipment_______________________
22, 796. 31
Total________________ _____________
268, 425. 96
As the average daily population was 1,120, the average per capita
cost (cost per boy) was $239.66. In figuring this per capita cost the
business office disregarded entirely the goods produced and consumed
at the institution. No figures were available to indicate how much
the farm contributed to institutional maintenance, though it was
undoubtedly a very considerable item. Expenditures for equipment
also were included in the institution’s figures on per capita costs. As
it was impossible to distinguish new equipment from replacements
within that item, no effort was made to deduct cost of new equipment,
although it is not properly chargeable against operating costs in a
single year.
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183
4.
A D M IN IS T R A T IV E C O N T R O L , STAFF O R G A N IZ A T IO N A N D
P E R SO N N E L
Administrative control
As has been noted (see p. 177), the State department of public wel
fare was responsible for the administration of the Boys’ Industrial
School. This department, through its division of State charities,
supervised all the benevolent and correctional institutions in the State
and received as its wards delinquent, dependent, neglected, and crip
pled children committed to it by juvenile courts. The chief executive
officer of the department was a director appointed by the Governor
with the advice and consent of the Senate for an indefinite term. The
division of State charities, within the department, was under a super
intendent appointed by the director for an indefinite term.
The State department of public welfare included in its budget funds
for the operating expenses of all State institutions and allocated these
funds to the various institutions for their maintenance and operation.
Funds for all capital outlay were appropriated specifically to each
institution.
The Boys’ Industrial School was not under the control of any local
hoard. It frequently consulted the State departments of health and
of agriculture. The hëalth department gave help on questions of
sanitation, conducted occasional inspections of the water supply, and
performed all laboratory work for the school hospital.
The State department of public welfare had on its staff an agricul
turist who supervised farming activities on all land under the depart
ment’s control (some 21,000 acres, including the Boys’ Industrial
School).
The superintendent of the school was appointed by the State direc
tor of public welfare, with the approval of the Governor. His term
was 4 years. The State director of public welfare depended on the
superintendent for immediate executive control and management of
the school.
Personnel: Number and duties
The Boys’ Industrial School at the time it was visited had in its
employ 147 persons, all except 9 of whom were reported as full-time
employees. The following positions were listed:
Superintendent_______________ 1 Day and night captains________ 2
Assistant superintendent_______ 1 Family officers________________ 12
Chief clerk__________________ 1 Assistant family officers_________ 16
Secretary to superintendent_____ 1 Cottage matrons_____________ 16
Other clerical workers__________ 2 Relief officers________________ 6
Court officer_________________ 1 Relief matrons (2 part time)____ 6
Chief matron (part time)_______ 1 Other matrons (administrative, em
Superintendent of schools_______ 1
ployees’, and officers’ quarters,
Principal, East Side School______ 1
etc.; 3part time)____________ 7
School teachers_______________ 16 Physician_____________ ;____ 1
Manual-training instructor______ 1 Nurses_____________________ 3
Military instructor______
1
Dentist (part time)___________ 1
Bandmaster_________________ 1 Shop and trade supervisors11_____ 15
Ghaplain___________________ 1
11In this group were included such industrial officers as seemed to supervise hoys performing maintenance
work in such a w ay as to involve some elements of trade training: Baker, blacksmith, chief carpenter and
assistant, chief cook and assistant, electrician, chief engineer and assistant, painter, plumber, printer, shoe
maker, tailor, and tinner.
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
1 Gardener and greenhouse man__
Farmer and stockman_____
Dairyman and assistant________ 2 Poultryman_________________
Orchardman_________________ 1 Parole officers_____ s._________
Farm and grounds squad foremen__ 6 Other personnel(2 part time) 12____
I
1
4
18
The court officer, whose duties consisted for the most part in main
taining discipline, seemed to rank quite high among the executivepersonnel. The assistant family officers performed duties practically
the same as those of night watchmen. Cottage matrons evidently
were not expected to assume toward the boys the relationship of house
mother; although they were said to be usually at home the entireday, their official day was 4 hours and their duties were limited toresponsibility for the premises; in fact, they were reported under
domestic service. Industrial and maintenance officers were reported
under a classification of work carried on rather than with reference to>
their service as including supervision of boys; therefore it was difficult
to determine which of these officers should be considered in any senseshop and trade supervisors.
Personnel: Salaries
The salary scale ranged from $300 to $3,600. Salaries reported for
some of the positions listed in the preceding section were as follows r
Superintendent_______
Assistant superintendentChief clerk__________
Secretary to superintend
ent___ ___________
Other clerical workers__
Court officer_________
Chief matron________
Superintendent of schools
School teachers_______
Military instructor____
$3, 600 Family officers_______
$1, 020*
1,760Assistant family officers.
600-780)
1 , 500 Matrons, cottage ma
trons 13__,__________
300-360i
900 Physician___________
2, 300)
600-900 Nurses____ ________
720-1, 140)
1 , 620 Shop and trade super
500
visors____________
660-1,800
1, 200
1,560Farmer and stockman__
1, 440.
600-1, 080 Dairyman___________
960 Parole officers________ 1, 740-1, 800)
All but 5 of the officers at this institution were listed as receiving;
full maintenance in addition to salaries, and 1 of the 5 was receiving
partial maintenance.
Personnel: Appointments and removals
All positions at this institution were under civil-service regulationsThe superintendent had complete control of appointments and dis
charges, subject to the civil-service law. All appointments had to
be made from a civil-service eligible list if one existed. It was stated
that by far the greater number of positions had noncompetitive civilservice status, which, according to the superintendent, meant that
applicants for such positions simply filled out application blanks at
the school when they applied. Their applications were then examined
and passed upon by a board composed of the assistant superintendent,,
the day captain, and the chief clerk.
Personnel: Term s o f service
The superintendent had been in charge since 1928. His predecessor
had served from 1924 to 1928. The State department of public welfare
stated that the average tenure since the first superintendent was in
office was 3}i years.
12This group included 2'part-time mail clerks (censors for the boys’ mail), 1 hospital cook, 1 administration
building cook, 2 dining-room officers, 3 seamstresses, 1 laundry assistant, 1 storekeeper, 1 hospital watch
man. 1 engineer and truckman, and 5 operating engineers.
23The low salaries paid to cottage matrons were in conformity with the classification of their duties under
domestic service.
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B O Y S ’ IN DU STR IAL SCHOOL, LANCASTER, OHIO
The following figures indicate the length of service of the 138 full
time employees:
N u m b e r of
employees
Less than 1 year__________________________________
1 year, less than 2 ________________________________
2 years, less than 3________________________________
3 years, less than 4______________ •________________
4 years, less than 5_____
5 years, less than 10_______________________________
10 years or more__________________________________
7
10
7
10
6
49
49
It will be noted that 98 of those employees had served for 5 years
or more, 49 having served 10 years or more. Only one of the family
officers had been with the school less than 5 years, and most of them
had been there 8 to 10 years. Many of the trade supervisors had been
employed long periods. The superintendent of schools had served 11
years, and one teacher had served 20 years.
Personnel: Qualifications
A limited amount of information regarding the education and the
previous experience of employees was made available.
The superintendent of the institution was a high-school graduate,
had taught in the public schools of Ohio for 9 years, and had a life
certificate for teaching. He had come to the institution in 1913 as a
family officer and later had served as a teacher. He had left institu
tion service for some months in 1913 and again in 1922, but had re
mained away only short periods and became superintendent in 1928.
The assistant superintendent had had normal-school training. He
had been an officer in the State schools for boys in North Dakota and
in Michigan. The court officer was a high-school graduate and had
taught in the public schools. He had also served 5 years as probation
officer in Clark County, Ohio, and had acted as superintendent of the
juvenile detention home in that county.
The superintendent of schools held the degree of B.S. in education
and had begun work toward a master’s degree. He had taught in
the public schools 9 years prior to coming to Lancaster and held a
teacher’s life certificate. He also had a special life certificate for
teaching public speaking. The principal of the East Side school had
had some work in Ohio University. He had taught 8 years in the
public schools and held a life certificate for elementary teaching.
Three of the school teachers had B.S. degrees, and all others had
some college or normal-school training. Eight of them held teachers’
life certificates in Ohio. One, in addition to public-school teaching,
had taught 4 years in the Children’s Village at Dobbs Ferry, N.Y.
Most of the family officers were reported to have only a commonschool education, but 2 were listed as high-school graduates. Their
records showed experience in farming, clerking in grocery store, car
pentry, gardening, factory work, and other trades and occupations.
One had had experience of 8 months in a State hospital and
years
in the State hospital for epileptics. Another had been employed 1
year in the Glen Mills Training School for Boys in Pennsylvania and
3 years in the National Training School for Boys at Washington.
The education and experience of the relief officers and the assistant
family officers were similar, by far the greater number having commonschool education only. Three were said to be high-school graduates,
and two had had some college work. Three had previous experience
in Ohio State hospitals, including the hospital for epileptics.
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FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
The general educational background of those who had been classed
as trade supervisors was that of common-school education. They had
been workmen prior to appointment at the institution. One, the
chief carpenter, had come to the school on retirement from the Army.
The military instructor had an eighth-grade education and experi
ence in the Army during the World War.
One of the four parole officers had had some education in prepara
tion for the ministry. He had been appointed as relief officer at this
institution in 1910, become a family officer in 1919, served as day
captain from February to August of 1920, and was made a parole
officer in that year. Another officer, reported to be a high-school
graduate, came to Lancaster as a family officer in 1914, became day
captain in 1920, and was promoted to the position of parole officer
about 1924. The third officer, who had some normal-school training
and some experience as a bookkeeper and also as a druggist, came to
the school in 1922 as relief officer. Soon he became quartermaster,
then day captain, and was promoted to parole officer in 1924. The
fourth parole officer had a common-school education and had taught
in the public schools 7 years. He came to the Boys’ Industrial School
in 1912 as a family officer and became parole officer in 1919. For 2
years of the period thereafter he had been out of parole service, serving
as storekeeper at the institution.
Personnel: Living and working conditions
The superintendent considered the fact that the school had a smaller
labor turnover than any other State institution in Ohio an indication
that the living and working conditions were satisfactory. Quarters
of the cottage personnel varied considerably, depending on the cottage
to which they happened to be assigned. There was nothing preten
tious or particularly attractive about employees’ quarters or the
recreation rooms— either that for men in the basement of the main
building or that for women on its second floor. However, this school
was sufficiently isolated so that the employees had to depend largely
on the social life on the campus for whatever normal social living they
had. Those who had cars could mingle with various social groups in
the city of Lancaster and the surrounding rural territory. For those
who had to depend on the street car, which ran very infrequently
between the institution and Lancaster, it was difficult.
The staff members had exceptionally long hours on duty. It was
stated that the family officers averaged 12 hours a day 7 days a week.
They were entitled to 1 Sunday a month off and to 2 additional days
each month; the latter applied to their vacation allowance and could
be accumulated to 14 days. Several of the school teachers, including
the superintendent of schools, also acted as relief and family officers.
It was stated that the teachers serving as family officers averaged a
14-hour day, 7 days a week, with the same allowance of 1 Sunday and
2 additional days off per month, cumulative to 14 days. The combi
nation of teaching with relief duty made such officers subject to duty
at any time, day or night, and their work was for long periods at a
time. Ten of the teachers were listed as performing double duty in
such capacities. Some family officers who were not teachers had other
work in addition to their cottage responsibilities; for example, one
was the laundryman, another was the florist. One man classed as relief
officer served as supervisor in the main dining room for boys, one was
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B O YS’ INDUSTRIAL SCHOOL, LANCASTER, OHIO
187
engineer and truckman, and another had charge of the canning room
during its busy season.
Office workers and the women teachers had Saturday afternoons
and Sundays off duty. Kitchen and dining-room workers had every
other Sunday off. Their vacation allowance was 14 days, and all
employees were allowed sick leave on pay during the year, to 2 weeks
if needed.
The superintendent stated that the long hours noted when the
institution was visited were necessitated by personnel shortage
which was especially severe at that time because of a cut in budget for
personnel of about $1,000 a month for the current year.
Staff organization
No organization chart was available. The institution seemed to
have a somewhat loosely drawn and incomplete departmental organi
zation. For example, there was a superintendent of schools to whom
all academic teachers were responsible, but there was no director of
vocational instruction, to whom instructors in industrial shops or
vocational work should be responsible and who would supply super
vision and leadership. The chief engineer was said to be in charge
of the plumbing, electrical, and machine shops and of the power
plant; the head gardener was in charge of certain men detailed to
him; and the farm supervisor was responsible for the work of the
various farm officers, but all other instructors or foremen reported
directly to the superintendent of the institution or to the assistant
superintendent. Family officers likewise were responsible directly to
the superintendent or to the assistant superintendent. There was
no cottage supervisor whose entire time could be devoted to the super
vision of the cottage personnel and to helping them develop cottage
activities and organize cottage life in such a way as to approach normal
noninstitutional living in preparation for the boys’ unsupervised life
on release. All matrons were reported to work under the direction
of the chief matron, who was the wife of the superintendent.
The parole department had no chief parole officer to supervise the
work of the parole agents and devote time to the development and
improvement of the parole work. Each parole officer was said to
report to, and be responsible to, the superintendent only.
Administrative leadership and staff teamwork
Machinery for providing channels through which administrative
leadership might flow to the various working staff units seemed to be
somewhat lacking. There was no program for regular staff confer
ences. The superintendent stated that he called special groups
together for discussions as occasion demanded. The impression
gained was that such meetings as were called were for particular
announcements and statements by the executives and were not
conferences of the type that permit free discussion and stimulate
original thought on the part of the staff members. The general
impression which would be received was that the whole spirit at this
school was rather that of an old-fashioned institution running on
institutional precedents established during its long years of existence,
with only such staff teamwork as comes from a somewhat militaristic
organization. No indications were noted of staff teamwork in the
sense of getting together to discuss more progressive policies and
decide as to experimenting with them.
76870— 35------ 13
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
5.
A D M IS S IO N S , C APACITY, A N D P O P U L A T IO N
Intake provisions and policies
Boys 10 to 17 years of age, inclusive, were committed to this
institution on a finding of delinquency under the juvenile-court law.14
The Ohio policy of automatic discharge from parole at the end of
1 year necessitated recommitment of many boys who, in other States
where parole periods were longer, would be returned as parole violators
without court action. Beginning with the 17-year-old group the
courts had the option of sending boys to the Lancaster institution or
to the State reformatory at Mansfield (which received boys and men
between 16 and 30 years of age). It was the practice of the courts
to use both institutions, and a number of such boys were committed
or recommitted to the Boys’ Industrial School.
All commitments were until the boy became 21 years of age or was
earlier discharged, but only a few boys remained until they were 21.
Unless they were returned for violation of parole or were recommitted
subsequently, the average period under care in the institution and on
parole was about 2 years. Some boys, however, remained in the
institution considerably longer—those who were not successful in
“ earning time” and those who were returned repeatedly for violation
of parole. Such boys often remained under care until 21 or near that
age.
As the law stated that any boy within the specified ages having
normal mental and physical capacity for intellectual and industrial
training might be committed by the courts,15 the school could decline
to accept boys who had been definitely diagnosed as feeble-minded
prior to commitment. Neither did it accept cases suffering from
infectious disease, and tuberculous cases and active cases of venereal
disease were excluded. Transfer of tuberculous boys to proper
sanitariums was made when possible.
Capacity and population
This was the largest of the five institutions visited, with a popula
tion on March 14,1932, of 990 boys. The capacity was given as 1,213.
Figures as to nativity of the boys were not available. During 1931
there were 713 white boys and 181 Negro boys committed. The
age distribution for the 894 boys committed during 1931 was as follows:
10 years__________
13
years___________________ 18
12 years_____________________ 45
13 years___________ ________ 96
14 years___________________ 144
11
15 years___________________ 185
16 years____________________ 216
17 years___________________ 178
18 years___________________
2
The total number of boys still under jurisdiction but not resident
was 1,265. Of these 1,147 were on parole, 109 absent without leave
(escaped), and 9 absent with leave. The movement of population
for the last fiscal year before the institution was visited (ended Dec. 31,
1931) was as follows:
n Ohio, Gen. Code 1932, secs. 1644, 1662, 1653-1.
1» Ibid., sec. 2084-1.
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BOYS’ INDUSTRIAL SCHOOL, LANCASTER, OHIO
189
Population Jan. 1 , 1931__________________________
1 14 7
j
Received during the year_______________________
249
First admissions and received from court_________ _ 808
Réadmissions_______!____________________ ” __
gg
Parole violators returned___________ ” ” Z2I32” ” II 196
Returned from absence with leave______ ____ ” II_I
55
Temporary returns_________________ IH III__IIII_
jq
gg
Escapes returned___________ ___________
Lost during the year___________ ______ ________ _
j ggg
Released on discharge direct from institution 18
5
Died________________________________
~
g
Transferred to other institutions___________ ______
3
Paroled and restored to parole__________ I__ ~~ ~ ~ 1 1 1 2
Absent with leave_____ ______________ II_II I_ I. *1-61
Escaped__________________________ ~~ " jgg
Population Dec. 31, 1931___________
Reception
6.
_____
----------- i , 107
1
R E C E P TIO N A N D A S S IG N M E N T PRO C ED U R E
Boys were brought to this school by the probation officer from the
committing court, or by a sheriff or his deputy. Each boy was
brought immediately into the receiving office, where the receiving
clerk signed the warrant which served as a receipt for the boy’s person.
This clerk then made a record containing a few facts regarding the
boy and his family. After that formality the boy was taken to the
quartermaster’s office to receive school clothing. Although heads
of new boys were not shaved, it was stated that they were usually
clipped for sanitary reasons. From the quartermaster’s office the
new boy then went to the receiving cottage.
Receiving cottage
The receiving cottage was in one of the older residence units
adjacent to the main building. There were no bars on the windows,
u 7 eiy .eavy screen was used. Partial quarantine was observed;
the boys did not go to school nor work in the shops, but they ate in
the central dining room, went to general school entertainments, and
did some work about the grounds. The average stay here was
14 days.
While at the receiving cottage new boys were examined by the
resident physician and the psychologist, each of whom prepared a
report of his findings. The psychological work at this institution
was necessarily limited, with but one psychologist for the very large
population of this school. There was no classification or assignment
committee, assignment being made by individual officers.
First assignments
Cottage assignment was made by the court officer. His assignments
were based almost entirely on the boys’ age and physical development,
the younger boys being assigned to cottages on the East Side campus.
(See p. 179.) Colored boys were housed separately from the white
boys, and in three cottages all the boys were of the Catholic faith.
Boys who played in the band had a cottage to themselves.
16 Figures secured at the time of the visit show these as separate item.
aS S S
SeS?t,P? S n d S D i».! 3?, ?9S!pD!K Mme“
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T hey are included with all dis-
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
School assignments were made by the superintendent of schools.
These were made as a result of his interview with the boy and his
conversation with him about prior school experience and progress,
plus consideration of the psychologist’s report.
Vocational assignments were made by the court officer. Items
taken into consideration in making these assignments were the boy’s
expressed preference, the needs of the various shops, and the results
of the psychological examination.
7.
T H E B O Y ’ S LIFE IN T H E IN S T IT U T IO N
Daily routine
The boys spent the day at this institution somewhat as follows,
the schedule varying slightly between the winter and summer seasons:
6 a.m___________________ Rising bugle.
6:30-6:45 a.m ___________Setting-up exercises (in summer boys
rose at 5:30 and had military drill
from 6 to 6:45).
7 a.m____________ ______ Mess call.
7:30 a.m _____ 7__________ Report to work and hospital drill.
7:45 a.m ________________ Report to school.
11:30 a.m _______________ Return to cottages from work and school.
12 noon_________________ Mess call.
12:30-1 p.m ___________ _ Recreation period.
1 p.m___________________ Report to school and work.
4:55 p.m ________________ Dismissed.
5 p.m ___________________ Detail assembly.
5:30 p.m ________________ Evening mess.
6-7:30 p.m _______________ Recreation period.
8 p.m ___________________ Taps.
General atmosphere
At this school there were many more evidences of regimentation
and repression than at the four other institutions included in this
study. One of the most striking evidences was the constant passing
of long, silent, shuffling lines of boys marching two by two about the
grounds. There was also something about the expression on the faces
of the boys—sullenness and sometimes fear or hate—that contributed
to the impression. Little or no spontaneous conversation and laughter
were observed at any time about the grounds. There was a roughand-ready character to the interchange between officers and boys and
a brusqueness in the directions given that suggested military usage
rather than ordinary teacher-pupil relations.
Cottage ** family ” atmosphere
Each cottage had a family officer and a matron who were husband
and wife. As has been stated, however, the matrons at this insti
tution rated practically as housekeepers and were responsible only for
the physical care of the cottage, not for supervision of the boys.
Such relation as was observed between family officers and the older
boys seemed much more like that between a strict master in a board
ing school and his pupils than that obtaining between a foster parent
and foster child. Since very few of the cottages housed less than 50
boys (one housing 81 and one 93), this large size of the cottage
populations almost entirely precluded the possibility of any real
family atmosphere.
Arrangements for sleeping
Each cottage, no matter what its size, had either 1 large or 2 small
dormitories. They were simplv furnished with white iron beds and
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191
adequate bedding and were kept in orderly condition. The boys
left their shoes and coats downstairs, the remainder of their clothing
in clothes rooms upstairs. The dormitories were locked at night,
even though none of the cottages except the new one was considered
fireproof. In some of the older cottages this meant a serious hazard.
Night watchmen visited each locked dormitory at regular intervals.
Arrangements for eating
As has already been stated, each campus had a central dining room
and kitchen for the boys. The dining room for the younger boys on
the ground floor of one of the oldest buildings—which, however, had
been remodeled—was light, having windows on three sides, and its
ventilation was good. The wall decorations were quite unusual, con
sisting of two large mural paintings by a former inmate. The colors
in these murals were pleasing and the designs attractive. Added
cheeriness was furnished by plants at the windows and sometimes
flowers on some of the tables. Except for the boys assigned to the
kitchen and those acting as waiters, all ate in the dining room at the
same time. Each table seated 10 boys, long benches being used for
the seats. White table linen was used, but all the tableware was
aluminum. Boys entered the dining room in military line, going to
their places at the tables and taking their seats on signal in complete
silence. They then said grace in unison before the signal to begin
eating was given. Silence was reported to be the usual rule in the
dining rooms. The assistant superintendent said the boys were per
mitted to talk during part of the meal; if this permission was in
effect at the time the East Side dining room was visited, the boys were
not taking advantage of it, as they were wholly silent. The West
Side dining room (for the older boys) was somewhat less attractive,
perhaps partly because it was so large and had bare walls, high ceilings, and long windows. Each table seated 10 boys, benches were
used, and the table service was like that in the East Side dining
rooms with white table cloths and aluminum ware. Here too, the
atmosphere suggested military repression, and there was complete
lack of cheerful and spontaneous social expression. A sample menu
for 1 week is reproduced in appendix A, p. 292.
Sanitary arrangements
Plumbing in the older cottages was naturally not of the most
modern design, and keeping it in good shape required a great deal of
work. Individual towels were issued twice a week. For certain of the
labor groups clean towels were issued four times a week. All boys were
furnished with toothbrushes and required to use them twice a day.
All boys were required to bathe twice a week, and some of the labor
groups bathed daily during a large part of the year.
Living-room and playground activities
When the weather was too unpleasant for the boys to remain out
doors during the evening recreation hour, the time was spent in the
cottage living rooms except on Tuesdays and Saturdays. Those
evenings were known as “ bath nights” , and the whole cottage group
stayed in the basement rooms adjoining the showers. There they
were free to take part in certain forms of play while waiting their
turn. Boxing was said to be a popular pastime with some of the older
boys.
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In the living rooms they were permitted to read or play games,
the favorites being checkers and dominos. Though the executives
said there was no rule of silence for the living room, the impression
was gained that the matter was left largely to the family officers. In
one of the living rooms visited in the evening, which was that of a
cottage for colored boys with a family officer who had an excellent
reputation, some 15 boys were standing “ on line.” AH the other
boys were seated around tables, some reading, some playing games, but
conversation was in an exceedingly low tone or in whispers. There
was nothing of the natural noisy give-and-take of normal boyhood.
It would be difficult to permit normal energy outlets to boys living in
such large units.
Family officers were supposed to be responsible for the supervision
of boys at play on the cottage playgrounds. However, it was said
that they had so many other duties to perform that they were com
pelled to depend to a large extent on boy monitors for direct super
vision of boys on the playgrounds. The system of “ boundary boys”
was in use, these boys apparently acting very much like army sentries
to keep boys rigidly within the limits of the respective playgrounds.
Otherwise a measure of free play seemed to be possible on the cottage
playgrounds.
Miscellaneous arrangements
This institution had no lockers for individual possessions. There
were large clothes rooms in each cottage, each boy having a separate
space allotted to him, but his things were not under lock and key.
Some of the cottages had a few cupboards in which a little space
could be allotted to individual boys for their personal possessions;
however, there was no possible real security for their private treasures.
Smoking was strictly forbidden.
The monitor system was rather highly developed. Each cottage had
two monitors who served practically as assistants to the family officer.
In addition, each cottage had several other boys serving as stair guards,
lavatory monitors, boundary guards, or on assignment to other specific
duties. Both the assistant superintendent and the court officer stated
that they regarded the monitor system as almost wholly bad, but that
with the exceedingly limited personnel which their budget permitted
they knew of no other way to cope with the situation. They said they
knew it lent itself to abuses against which it was very difficult to guard.
For example, cottage officers who wished above all things to “ preserve
order” were likely to select for monitors the boys able to maintain
order and discipline. As a consequence some of the most unworthy
boys— from the point of general character—might be made monitors
because they had strong personalities with fairly high intelligence and
were wise enough to remain on their good behavior while in the institu
tion in order to win as early release as possible. To have such boys set
up as officers over younger boys or boys with less experience in delin
quent behavior was recognized as bad policy; but the management had
found no way to eliminate the system nor to control its functioning.
Boys at this school were wearing school uniforms which consisted of
blue overalls and an old blue coat that was said to be the coat of their old
dress uniforms. They had small service caps of the overseas type with
B.I.S. buttons. On Sundays they wore dark-blue dress uniforms,
military in style, with dress service cap in winter, and in summer white
caps similar to those worn by men in the Navy.
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Outside contacts
Each boy wrote one letter a month to his parents or, if they were not
living, to his nearest relative. Permission to write oftener could be
secured under special conditions. Boys were permitted to receive
incoming mail without restriction except as to suitability of content.
All incoming and outgoing mail was read by the women officers (the
wives of other employees) designated as mail clerks.
Near relatives were permitted to visit boys once a month. Fridays
were visiting days, a certain Friday being designated as the visiting
day for each group of cottages, the groups rotating. Additional visits
might be allowed under certain conditions with the approval of the
superintendent.
Boys were not permitted to leave the institution to visit their homes
except in cases of serious illness or death in the family. Even then the
permission was granted only if the application came through the court
that had committed the boy concerned. The transportation expense,
of course, had to be borne by the family.
8.
PH YSIC A L E X A M IN A T IO N S A N D M E D IC A L CARE
Hospital facilities
In spite of the age of the hospital building and its type of construc
tion, it was well kept up and seemed bright and cheerful.
Hospital staff
A physician who had been at the institution for 9 years was in charge
of the medical work. Specialists in Lancaster and in Columbus were
reported to be available for consultant service. All surgical work was
done by these specialists and on a fee basis. The dental work was done
by the dentist who gave part-time service— that is, he spent 2 weeks
of every 3 at this institution. The staff included a registered nurse
who served as^ chief nurse, a practical nurse who had many years’
experience in institutional hospital work, a relief nurse who was a
practical nurse with 11 years’ experience in this institution, and a night
watchman and cook. The night watchman gave full duty at night,
taking temperatures and performing other services. Boys were
assigned to hospital duty to assist the nurses and the night watchman.
Physical examinations
All boys were given physical examinations on entrance as a matter
of routine. These included throat cultures and the Schick and Wasser
mann tests. Weighing and measuring was part of the entranceexamination routine, but this was not done regularly. Toxin-antitoxin
was given to those boys who needed it. The results of the physical
examination were entered on a medical record blank which became a
part of the permanent school records. All boys were given a reexamina
tion before release on parole.
Corrective work
The physician in charge stated that until 1932 a great deal of cor
rective work had been done, but that shortage of funds for payment
of the surgical fees had compelled this type of work to be greatly
curtailed. Hospital statistics for 1931 had included 130 surgical
cases, among them being 34 tonsillectomies, 4 circumcisions, and 7
herniotomies.
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Dental work
The dentist examined all new boys and gave such ordinary dental
service as was required, these needs being cared for at State expense.
Other medical care
Daily sick call was held at the hospital at 8 o’clock each morning.
Any boy might go to sick call if he had the permission of his family
officer. Boys reported at that time for treatment for minor cuts,
scratches, and miscellaneous conditions. Boys were permitted to
report to the hospital at any time for examination and treatment of
more serious injuries or illnesses, if the officer who had them under
care believed there was sufficient reason for it. Any boy who on
examination at sick call was found to need treatment was given a
hospital slip which notified his family officer or detail officer of the time
at which he was to report for dispensary treatment daily, if he were
not a hospital case. He then had to return regularly at that time until
released by the physician. Records were made of all examinations
and treatments.
The hospital report for the previous year showed 831 medical and
93 contagious cases, in addition to the surgical work mentioned.
Among these 93 contagious cases were listed 39 cases of influenza, 9 of
diphtheria and 13 of diphtheria carriers, 12 of measles, 8 of scarlet fever,
2 of syphilis, 4 of scarletina, 3 of mumps, and 3 of chicken-pox. Surgi
cal cases in addition to corrective work included 2 appendectomies, 3
amputations, 28 infections, and a considerable number of cases of other
types.
Although the hospital authorities did not like to retain boys suffering
from tuberculosis, one tuberculous boy was in this hospital at the time
the institution was visited, having been under treatment there 9
months. An effort always was made to transfer such cases to a regular
hospital or sanitarium for the treatment of tuberculosis, but sometimes
it proved impossible to find facilities for free treatment for such cases.
In that event boys were retained for treatment in the institution’s
hospital.
Two of the amputations reported were for boys who had escaped
at night, barefooted, during zero weather, and had been hiding out
for nearly a week. It had been necessary to remove frozen feet for
both boys.
9.
P SYC H IA TR IC AN D PSY C H O L O G IC A L SERVICE
Clinical facilities
Psychological service was furnished at this school by the State
bureau of juvenile research.17 At the time the Boys’ Industrial School
was visited the bureau had detailed a psychologist to the school to
examine and classify all cases admitted there and to study such other
problems as might be presented. He had offices in the East Side
school building and the institution was supposed to supply him with
stenographic service. At that time, however, he had only the help
of one boy who was a pupil in the institution’s commercial class.
17 The bureau of juvenile research, which is one of the 10 major divisions of the State department of public
welfare, was established in 1914 (Laws of 1913, p. 175; see Gen. Code 1932, sec. 1841-2). Its purposes are the
physical, psychological, and psychiatric study of juvenile delinquents and children with behavior difficul
ties and the provision of advisory service for the State in its work with such children. It is housed in a
building of its own in Columbus. In addition to the work done here the bureau maintains a field-clinic
department, which sends staff members to various places throughout the State to examine children who for
one reason or another cannot be brought to the bureau and to give such advisory assistance as is desired.
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BOYS’ INDUSTRIAL SCHOOL, LANCASTER, OHIO
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It was even necessary for this boy to take a certain amount of the
information required on the interview sheets. All the writing of the
psychologist’s records was done by such assistants. No aid was
available in the way of psychiatric social work.
Psychological tests
Each new boy was interviewed individually. All new boys admitted
during the week were called together for group tests each Monday.
The National Intelligence and Morgan tests were used. Boys who
obtained a lower rating than an intelligence quotient of 60 were later
summoned for individual examinations. In those the Stanford-Binet
was customarily given. Occasionally achievement tests also were used.
The results of the tests and the information obtained in the interview
were then recorded on a summary sheet. The original was sent to
the superintendent and carbon copies were sent to the bureau of
juvenile research, to the State department of public welfare, and to
the disciplinarian of the school.
During the preceding year 1,104 new boys had been given group
tests and 155 had been called back for individual tests. In addition 14
boys had been given individual examinations on request of some other
staff member and 100 had been retested for research purposes. The
psychologist supplied the following figures on mental classification of
the entire group :
N um ber of
boys
M ental level
Total___________________
__ __ _
Superior_______________
Normal intelligence______
Inferior intelligence_______
Border-line intelligence _ __ __
Feeble-minded________
Percent dis
tribution
1, 104
100
18
312
485
196
93
28
44
18
2
8
The following figures show the number and percent distribution in
this group of 1,104 boys, by commitment, and the median intelligence
quotients assigned for the respective groups by the psychologist:
Num ber
of boys
Comm itment
Total___
____ ___
_____ _
First commitment. ____
________
Second commitment _ _______
_____
Third commitment___ _ _______
Fourth commitment_________________
Fifth to seventh commitments inclusive. _
Percent
distribu
tion
1, 104
100
806
215
56
73
19
5
22
5
2
M edian
intelligence
quotient
81. 5
83. 6
82. 5
82. 5
80. 0
Psychiatric examinations
Psychiatric examinations were not given as a matter of routine.
When the psychological examination revealed that boys had special
problems the psychologist recommended that they be sent to the
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
bureau of juvenile research for a period of observation. He reported
that the bureau usually had one to four boys from this school under
observation in its clinic. The types usually designated for this in
tensive study were said to be those suspected of being incipient
psychotics or those whose antisocial tendencies were considered to be
serious.
Personal histories
Personal histories were obtained from three sources: Some of the
committing courts sent a certain amount of social data, but this
source was not particularly well developed. Each week the full list
of new boys was sent for clearance to the central office of the bureau
of juvenile research, which supplied records of former examinations.
Lastly, the psychologist at the school undertook to obtain supple
mentary history from the boy himself in the interview at the institution.
Application of findings
The psychological findings were used to a certain extent in deter
mining the assignment to school or trade instruction. There was, how
ever, no assignment committee nor clinic group of any kind. The
individuals responsible for assignments always had access to the
psychological records if they wished to make use of them. The school
department called on the psychologist for special examinations and
recommendations for boys who were believed to be incapable of
profiting further from routine school work. There was a regular form
letter which the superintendent of schools used in sending to the
psychologist a request for such examinations. A regular form also
was used for certification that the boy was believed “ incapable of
profiting substantially by further instruction” , on the basis of which
recommendations the boy might be excused from further school
attendance regardless of Ins age or school progress.18
With clinical facilities so limited it was obvious that practically no
individual study and careful planning of individualized treatment
based on consideration of personality difficulties could be undertaken.
Nor did there seem to be any connection between the psychological
work and the parole procedures.
Attitude of other staff members toward clinical services
Some of the staff members, notably the school principal and the
disciplinarian, depended to a certain extent on the psychologist for
advice in connection with some of their most difficult cases. The
disciplinarian often consulted him in regard to his more serious
problems, and he was very careful not to order corporal punishment
for a boy until he made sure through such consultation that the boy
was “ responsible.” There was no evidence that the school personnel
in general believed the application of mental-hygiene principles to
individualized treatment of delinquent boys would be helpful.
Research activities
The psychologist had an interest in research, but the burden of
routine work was much more than he could carry, and it left him
practically no time for study and research.
18 Ohio, Gen. Code 1932, sec. 7762-7.
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BOYS’ INDUSTRIAL SCHOOL, LANCASTER, OHIO
10.
E D U C A T IO N A L P R O G R A M — C L A S S R O O M W O R K
School staff
Academic education was directed by the superintendent of schools
and a teaching staff consisting of 18 men and women teachers; one
of these teachers served as principal at the East Side school and
another directed the work in manual training.
School day and school year
The school day was from 7:45 to 11:15 in the morning and 1:05 to
4:45 in the afternoon. The school year was from September 1 to
M ay 1. The reason for dismissal on M ay 1 seemed to be in order
that the older boys might be used for the spring farm work. A
summer session for the smaller boys on the East Side was conducted.
Attendance requirements and enrollment
The small boys on the East Side attended school all day. The
older group who attended the main school were in school one half
day and in trade training or work assignments the other half day
with the exception of those in the commercial group. The schoolattendance laws of the State served as the guide for attendance
requirements.19 A considerable group of the older boys were excused
from school attendance. Boys past 16 who had completed the
seventh grade were not required to attend school. This older group
constituted a fairly large unit in the school population.
The enrollment in the two schools and the periods of school assign
ment on March 14, 1932, were as shown in the following table:
T im e o f school f o r hoys enrolled i n sp ecified grade or class o n M a r . 1 4 , 1 9 3 2
B oys enrolled
In W est Side school
In East Side school
Grade or class
Tim e assigned
Total
Tim e assigned
Total
T otal.
____ _______
Commercial class.. ________
Ninth grade__________ _____
Eighth grade___ __ ________
Seventh grade___________ __
Sixth grade_________________
Fifth g r a d e ...-- ___________
Fourth grade. ____________
Third grade_____________
Second grade_______________
First grade__ ________ ______
Ungraded________________
Shop class______ _____ ____
Total
All day
M orn
ing
After
noon
i 757
527
21
202
304
34
58
67
163
158
114
80
17
34
58
67
21
1
12
3
34
22
121
114
65
34
34
24
30
41
41
31
34
37
80
73
34
34
230
42
44
49
46
17
7
3
All day
M orn
ing
27
83
120
21
42
23
30
23
23
9
13
17
After
noon
3
34
22
1 The difference between the school enrollment (757 on Mar. 14,1932) and the total population of the insti*
tution on the same date (990) is due to the fact that a number of older boys were excused from school attend
ance and that boys not yet released from the receiving cottage for assignment to school grade were included
in the total population, and also to other conditions of institutional life.
1» Ibid., secs. 7762, 7763, 7766.
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The ages of the boys and the grades in which they were enrolled
were reported as shown in the following table:
A g e o f b o ys enrolled i n specified grade o r class on M a r . 1 6 , 1 9 3 2
Boys enrolled
Age of boy
Qrade or class
Total
T otal.......................
. . .
18
19 N ot re
17.
16
14
15
12
13
11
10
years years years years years years years years years years ported
1767
7
12
34
59
33
1
4
4
117
1
32
Shup cläss- - - - - - - - - - - - - - -
i
11
10
1
11
10
14
17
3
2
1
i
2
133
10
175
210
95
3
1
6
16
8
6
2
1
21
22
19
18
48
32
24
16
5
36
25
9
4
3
1
45
53
25
16
i
4
11
12
2
14
25
34
30
11
1
38
1
22
16
1 The difference between the school enrollment (767 on Mar. 16, 1932) and the total population of the
institution on approximately the same date (990 on Mar. 14,1932) is due to the fact that a number of older
boys were excused from school attendance and that boys not yet released from, the receiving cottage for
assignment to school grade were included in the total population, and also to other conditions of institu
tional life.
As in the other schools from which such data were procured, evi
dence of school retardation was conspicuous.
Courses given
Regular public-school work from the first through the ninth grade
was being given. The curriculum was patterned on the public-school
curriculum for the State and had been approved by the State depart
ment of education. In addition to the regular grades in the main
school a special class was conducted for boys of very low-grade men
tality. This class was being taught by a middle-aged man who was
not using the newer methods for teaching subnormal children. The
school had formerly had an ungraded class to which boys having diffi
culty with particular subjects were assigned. This nad been success
fully conducted by a specially trained teacher. It had been discon
tinued because of the extra expense involved in retaining this wellqualified instructor.
Another experiment which had been tried and which had been very
successful was a special art class in which three kinds of work had been
offered; namely, mechanical drawing, free-hand drawing, and com
mercial art work. To that class had been sent boys showing any
particular talent and boys who were not getting along well in regular
academic work but had some aptitude for drawing. Each boy was
permitted to experiment and to choose the type of art work in which
he was most successful and in which he found the most personal satis
faction. The school superintendent stated that the class had been
very helpful in dealing with conduct-problem boys. However, this
class had also been discontinued because it had been considered too
expensive by the school management.
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The'superintendent, who was particularly interested in public
speaking, held a class every year in that subject. Contests were held
at the end of each semester, and boys who took part in them were
granted certain additional credits in English. The superintendent
stated that he believed the work was genuinely helpful to certain
types of boys who had always had great difficulty with self-expression
and with classroom recitations.
The commercial work was available to boys of average or better
than average mentality who had completed the ninth grade.
11. EDUCATIONAL PROGRAM — VOCATIONAL OR PREVOCATIONAL
WORK
In a descriptive booklet which this institution prepared in 1930 for
distribution to persons interested in its program, a section on vocational
training presented a long list of vocational-training “ departments’’,
together with the following statement:
Each department is composed of an instructor and from 8 to 30 boys according
to the amount of work the department has to be done, and the boys of each depart
ment are organized into efficient operating crews, the older boys doing the more
skillful work, and the new boys learning to do the less skillful work. Usually
one of the more experienced boys is appointed monitor of the crew, and in this
position he becomes a sort of an assistant to the instructor and is quite a help in
keeping the work going as it should.
We realize that the 10 to 12 months which a boy may spend in one of these
departments is not sufficient time for one to become a finished artisan, but we do
believe that a boy by applying himself reasonably well may become so familiar
with the work he is doing that he could follow the same line of work to good
advantage after leaving the institution.20
Production and maintenance work for the institution, in the opinion
of the management, provided opportunities for boys to learn many
useful trades under the supervision of practical workmen and boy
assistants. These opportunities were determined by the “ amount of
work to be done.” None of the instructors had had any special
educational preparation or previous teaching experience. Courses
were not planned with certain periods devoted to group instruction
in general trade information and theory, in preparation for the
practice work. It was wholly a case of learning by doing, within the
limits imposed by the needs of the institution and its materials and
equipment.
Enrollment
The vocational and other work in which boys were occupied on
March 16, 1932, and the time assigned were reported as shown in the
table following.
20 The B oys’ Industrial School, Lancaster, Ohio, 1930, p. 13.
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T im e o f w ork f o r b o y s o ccu p ied in sp ecified vocational or o th er w ork a ssig n m en ts on
M a r. 16, 19S2
Boys occupied in vocational or other work
T im e assigned
Vocational or other work
Total
A ll day
T otal-------- ----------------------
184
Autom obile mechanics..............
B a k in g ........................................
B a n d ..-------- ---------------- ----------Barbering------- ------------------------Blacksmithing______ __________
B u tch e rin g .................. ...............
Carpentry and cabinet making.
Electrical work_______ _______
Farming:
D a iry............ .........................
Fruits_____ ____ - ................
Horse b a r n ........................—
General farming________ _
Poultry raising.....................
Truck gardening.............. .
Horticulture............................... .
Ice plant................... .......... .........
L a u n d ry .......................................
M anual training........... .............
M asonry------- ----------- ------------Painting— ........ ........................
Plum bing...................................
Power p la n t................................
Printing______________________
Sheet-metal work_____ ______
Shoemaking and repairing____
Tailoring_____________________
3
4
M orning
Afternoon
293
Night
14
1
6
1
1
2
2
12
11
1
13
6
7
a2
.....
1
9
Office work_________
Quartermaster______
Storeroom................. .
Telephone operators.
Dining-room service.
General force............
H ospital......... ..........
H ou sew ork ...........
Ironing room ______
Kitchen w ork..........
M ending room .........
Paring room ----------Sewing room .......... .
School janitor______
M onitors in receiving and disciplinary cottages-----
52
185
6
135
19
35
31
24
7
4
1
11
9
2
1
1
5
5
11
2
36
69
2
135
4
22
16
12
6
1
9 .................
112
1
_____
2
4 _________
3
1
15 — ............
11
__ __
3 — ............
i The difference between the number of boys assigned to vocational or other work (932 on M ar. 16,1932)
and the total population of the institution on approximately the same date (990 on M ar. 14,1932) is due to
the fact that work assignments were not given to younger boys and that boys not yet released from the
receiving cottage for their assignments were included in the total population, and also to other conditions
of institutional life.
» Duties in greenhouse and vegetable hothouse.
The total of boys on night assignments (14) and in crews performing
domestic service or routine manual labor concerned with institution
upkeep (488), as shown in this table, indicates that approximately
54 percent of them were spending half or all of each day in work of
that kind. Careful inspection of all items will lead to the conclusion
that the limitation of personnel had compelled the management to
carry on a heavy proportion of the institutional work, including the
office duties, with the labor of the boys themselves. Observation
confirmed that conclusion.
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Maintenance and repair work
As was to be expected in an institution with so low a per capita cost,
maintenance and production were emphasized in all vocational work.
In the descriptive booklet quoted previously, this fact stands out in
every paragraph: “ Nine thousand bushels of apples were picked
in one season. * * * The work is all done by inmates under the
supervision of a head dairyman and assistant [referring to the dairy
which supplied all milk and butter for the school]. * * * More
than 100,000 pieces of laundry pass through this department each
month. * * * The painting department is busy painting the out
side woodwork during the summer, and decorating the rooms and the
inside work during the winter. * * * The new boys must be
dressed out in school clothes and the homegoing boys must be supplied
with ‘ outside’ wear.” 21
The quartermaster’s department purchased the clothes for “ outside
wear” and for each boy to receive on his release, and the tailor shop
made all the school clothes. Thus the work theme runs throughout
the story of their vocational work so that the boys and their training
seemed to be overshadowed by the gigantic material needs of the
institutional machine.
12. PH YSIC AL ED U C A TIO N A N D A TH LE T IC S
Physical education at this institution was under the supervision of
the family officers, except for the gymnasium period immediately
following military drill, when the military instructor was in charge.
Physical education
No special attention was given to corrective work for individuals.
Though records of height and weight for all incoming and outgoing
boys were kept at the hospital and main office, records of height,
weight, and physical development were not made as part of the
physical-education program during the boy’s stay at the institution.
There was an indoor pool in the basement of the gymnasium build
ing which could be used only during the warm months. Swimming
was supervised, but no teaching was done.
Sports program
The sports program included baseball, basket ball, and some track
work. All these activities were participated in by the boys divided
into three classes according to size and age, with intercottage compe
tition in each class. The winning team in each class was presented
with a pennant. An all-star basketball team had played about 12 or
15 games with outside teams. Most of these games were played at
the institution, and the boys from the cottages attended in rotation,
as the gymnasium had relatively small space for spectators.
On July 4 each year a big athletic field meet was held, and indi
vidual prizes were awarded to the winners in the various events.
Military training
During the winter the boys were given 10 to 15 minutes of setting
up exercises each morning in their respective cottages, but in summer
this was replaced by military drill from 6 to 6:45 a.m. Three mornings
each week the entire group was drilled 45 minutes, with the band play81 The B oys’ Industrial School, pp. 15,16,17.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
ing. On other mornings each company was drilled on its own play
ground. During the winter each cottage group spent one-half day
every other week at the gymnasium, where they were drilled by the
military instructor 1% to 2 hours and spent the rest of the time in
games. The older boys drilled with old Army Springfield rifles from
which the firing pins had been filed off. The younger boys carried
wooden rifles. Each cottage had its own company of 40 boys. The
remaining boys in the cottage, usually the newer ones, drilled as
“ rookies.” The Butts Manual of Arms and the School of the Soldier
were used. A dress parade was held every Saturday evening. In
September on the annual military day the 10 companies selected as
best had a competition drill, organized into three battalions, one con
sisting of 4 companies, two consisting of 3 companies each. The day
was quite an event in the life of the school. Judges, usually officers
of the National Guard and the Adjutant General or his representative,
came from various parts of the State. Cash and other prizes were
presented. The sum of $50 was divided among the members of the
companies in the winning battalion, its captain being given $5, second
lieutenants $2.50 each, and the privates $1 each. A Sam Browne belt,
a saber, and a pennant were also presented to each prize-winning
company.
13. O T H E R R EC R E ATIO N AL A N D ED U C A T IO N A L ACTIVITIES
The program at this institution included very little planned or
directed recreational activity outside the sports program previously
described. No individual staff member or staff committee was under
taking to study or recommend developments in this field.
There were no Boy Scouts, no boy clubs, nor organizations of any
kind, nor any provisions for outings away from the institution.
M usic
The institution had a band of about 50 pieces directed by a band
master who had held that position for about 18 years. The band
work was rated as vocational training. Boys were given individual
instruction in the different instruments. The bandmaster had also
organized an orchestra of about a dozen pieces which played for chapel
exercises, and a choir which sang at the Sunday services.
Radio
The institution owned no radio equipment. Practically all the
cottages, however, contained radios owned by the family officers, who
made a practice of turning on appropriate popular programs for the
boys.
Dramatics
There was very little activity in dramatics at this school. The
personnel was so limited and the hours of duty so long that it was
impossible for them to give the time necessary to work up entertain
ments of any kind. It was said that they had some kind of program
on each major holiday and that usually a minstrel show was put on
by some of the boys each year.
Motion pictures
Because of the scarcity of funds for the weekly motion picture, this
had been discontinued, and at the time the school was visited it had
a film only every 2 or 3 weeks. Films were selected by the super
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203
intendent, and the pictures were attended by all boys except those
in the discipline cottage. The apparatus was for the showing of
silent pictures only. At the one picture show attended by the
visitor from the Children’s Bureau the boys entered the building in
strict military lines and went down the aisle in silence, giving an
impression that was wholly prisonlike.
Reading
In the main school building was a small library consisting primarily
of reference books, used chiefly in connection with the school work.
It had been in existence for about 3 years and contained about 500
books. Boy librarians, working under the supervision of the super
intendent of schools and a teacher, were in charge. The teacher was
familiar with methods of book repairing and taught this to the boys
detailed to library work.
Each cottage had a certain number of books, largely fiction. These
were read during the evening hours when weather conditions made it
necessary for the boys to remain indoors.
14. RELIGIOUS INSTRUCTION
A Protestant chaplain, an “ ex-soldier evangelist” belonging to the
United Brethern denomination, was a full-time staff member. At
2 p.m. on Sunday afternoons he conducted interdenominational union
services, which all boys were required to attend. This service was
often addressed by visiting pastors, evangelists, and representatives
from the Salvation Army. Music was furnished by a choir of about
50 boys led by the bandmaster. Every Sunday morning Sunday
school was conducted in the cottages in which Protestant boys resided.
These classes were conducted by the cottage officer and his wife, or
by other staff members or visitors, and the chaplain went from cottage
to cottage visiting the various classes.
The Catholic priest from a nearby Catholic church, who was
employed on a part-time basis, conducted Mass every Sunday morning
for all Catholic boys and went to the school once a week to give
instruction and to hear confessions.
For the small group of Jewish boys religious instruction was supplied
by a layman of their own faith from Lancaster, there being no rabbi
in that city or nearer than Columbus.
It was stated that the school had several boys from Greek Orthodox
families and that an attempt had been made to have a Greek Orthodox
pastor from the church supply instruction. But it was found that
the boys spoke so many different dialects that group instruction was
impossible and the attempt had been discontinued.
The Protestant chaplain stated that he interviewed all new boys
regularly every Wednesday afternoon, talking to them as a group and
then individually about the school and the way to get the most out of
their stay in it. In his own words, he tried to impress on them that
“ to get the most out of life one must be reborn and have Christ in
one’s heart.” On Friday evenings he conducted a special service
for boys about to be released on parole, at which he tried to impress
upon them the importance of affiliating with the church. He had
prepared a form letter which he sent to each parolee within a week
or 10 days after he had left the school.
76870— 35------ 14
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FIVE STATE INSTITUTIONS FOR DELIN QU EN T BOYS
15.
C R ED IT S Y S T E M AN D D ISC IP L IN A R Y M E A SU R E S
Credit system
A boy on entrance was listed for a stay of 12 months. For each
month of perfect conduct during his first 2 months he was allowed 5
days off his total “ time.’ ' If at the end of these 2 months he had won
5 days for each month, he was given an extra 10 days off, which made
a total of 20 days off his institution stay. If at the end of 3 months
he still had no misconduct reports, he was given 15 additional days’
credit, thus having built up a total of 40 days. Under this system
if a boy succeeded in keeping his record absolutely clear of misconduct
reports it was possible for him to win his release in 8 months and 20
days. In addition to these automatic ways of obtaining days of
credit, boys might be given extra awards for such as the following:
10 days for each promotion in school, for each month of service as
monitor, or for winning second place in the monthly military inspec
tion; 15 days for winning first place in monthly military inspection;
5 days for winning third place in the inspection; and 60 days for
capturing a runaway. Additional days off were sometimes awarded
also for particular services such as preventing a fire, returning lost or
stolen articles, and reporting information of value (such as plots to
escape).
Misconduct reports resulted in the addition of time to be spent at
the institution. Records of a b o y ’s status as to “ time” still to be
“ served” were kept in the office of the court officer, and a boy’s
release was entirely dependent on that record. A master record was
maintained by the record clerk. As all these details indicate, this
Ohio institution did not have a credit system in the usual sense in
which this term is used in industrial training schools. Its system
more nearly resembled that of a prison.
Disciplinary measures
Cottage officers, teachers, trade instructors, and other officers who
had boys under their supervision were permitted to place a boy
“ on line” for minor misconduct. This means that the boy was with
drawn from all the regular activities of his group and had to stand on
line wherever he might be, whether in school, shop, or cottage. It was
stated that no unusual strained positions were permitted.
When an officer felt that a boy required more severe punishment
than being placed on line, he reported the case on a “ blue slip ” to the
court officer. The slip contained an entry showing the reason for mak
ing the report. The court officer was a prominent member of the
staff, responsible directly to the superintendent of the institution.
The superintendent determined the general policies with respect to
types of disciplinary measures that might be used. Complete responsi
bility for the administration of discipline within the limit set by
those general policies was vested in the court officer, and every day
he held “ court.” There each case was taken up and discussed with
the boy in person. Occasionally “ witnesses” were called in to give
their versions of the incident reported on the blue slip. A court card
was kept for each boy, and the blue slips were filed in his folder in,
the administration office.
Discipline meted out by this court took several forms. Time might
be added to the period which a boy must complete before he was
eligible for parole. This might range all the way from a day or two
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for minor infractions of rules to the entire year which was regularly
added in case of an escape. Boys guilty of sodomy were required to
remain 6 months longer. For such offenses as insolence, disobedience,
persistent talking on line, fighting, and smoking, varying numbers
of days were added.
It was stated that there was no curtailment of food for any offense;
that is, no boys were ever limited to a bread-and-water diet. With
drawal of the privilege of attending the occasional motion-picture
show or athletic games was used as a medium of discipline. For more
serious cases a discipline cottage was maintained. Boys were sent
there by the court officer for specific periods to 30 days. Boys in this
cottage attended school but did not do shop work. In lieu of their
trade classes they were assigned to do the hardest and most unpleasant
manual labor around the institution. They were barred from all
games and entertainments. The discipline cottage itself was one of
the oldest buildings. It had a living room and dormitory similar to
those in other cottages. The living room was quite bare, stiff, and
colorless in its atmosphere. No talking was permitted at any time in
the living room. When it was visited during an evening hour the boys
were sitting in rigid positions on straight chairs at tables, holding
books in front of them, presumably reading. The officer in charge sat
in a chair in the front of the room. The monitors for the cottage, two
physically powerful boys, walked back and forth around the tables,
apparently watching for any relaxation in attitude or any movement.
Corporal punishment was administered only on order of the court
officer. Individual officers were forbidden to strike any boy or to use
any physical force upon him unless the boy became violent and
attacked other boys or an officer. The corporal punishment used was
known as “ paddling.” The paddle was a flexible piece of leather
shaped like a regular paddle about 6 or 8 inches wide and 12 to 15
inches long, with a stiffened leather handle at one end. The usual
number of strokes was 6 to 9, though in extreme cases 12 to 15 might
be given. The boy’s clothing was not removed for the paddling.
Each paddling had to be witnessed by the superintendent, the assistant
superintendent, the physician, or the chaplain; and this officer signed
the discipline slip as witness. It was stated that boys were paddled
only in extreme cases of persistent repetition of offenses, sex offenses,
continuous insubordination, or some action regarded as a particularly
grave delinquency. Among the latter were sex offenses and escape
from the institution—unless they came back of their own volition.
The court often gave an order for paddling and then suspended the
order so long as the boy maintained a good conduct record.
The court officer believed this procedure had effectively deterred cer
tain types of boys from repetition of offenses, as he found that some of
the vainglorious, would-be gangsters were “ yellow” when threatened
with physical pain.
Although the court officer occasionally sought the advice of the
psychologist in disciplinary cases, the system afforded little opportu
nity for individualizing of treatment in the modern sense of that word.
Procedure was very much what its terminology indicated, patterned
after criminal-court practices, with actual “ hearings” to determine a
boy’s “ guilt” or “ innocence” of the offense charged.
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16. INSTITUTION RECORDS
The records were in charge of a staff clerk, who gave full time to the
work and who had the assistance of boys who were assigned to this
duty. Besides keeping the individual case records, it was the duty of
the record clerk to prepare the parole and discharge lists, to send out
any notices to parents, and to send out to the officers the various
notices as to institutional matters.
The records in the administrative office consisted of a case folder for
each boy and an alphabetical descriptive card file. All the files were
separated according to cases in residence in the institution, on parole,
and discharged.
.
. ,
No face sheet or chronological case history was contained m the
record folder. The court commitment papers, including a statement
of the medical examination by the court, and a social history, if
obtained, were filed in the boy’s folder. The information on social
historv was very meager except from a few counties, and the institu
tion did not seek to supplement it except from the interview with
the boy.
,
, .
.
.
,
Material filed in the folders pertaining to the boy’s institution record
consisted of the “ blue slip” forms (on which were reported miscon
duct and court action), the psychologist’s report, and a card memo
randum of correspondence received and sent by the boy. A separate
card was kept by the record clerk, showing a boy’s trade, work, and
school assignments, and listing his discipline record chronologically.
This was filed in the case folder when the boy left the institution. All
correspondence relating to the case was also filed there, and the field
officer’s reports of visits to boys on parole.
The alphabetical card file had such descriptive information as a caserecord face sheet usually contains about both the boy and his parents.
Such facts as date of birth, color, offense, court, school grade, truancy,
occupation, height, weight, and use of tobacco were entered on the
case, also the parents’ status and occupations, siblings, and other such
data. On the back of the card were recorded the dates of the parole
officer’s visits with brief comments regarding the boy’s conduct or
adjustment on parole and dates of return or discharge from parole. A
smaller card showing such items as the boy s name, age, and color,
with the facts as to his commitment, was made out for each boy admit
ted and sent to the State department of public welfare.
The medical, psychological, and educational departments and the
court officer kept their own records. Several forms were used by the
hospital staff, such as a report of the physical examination on admis
sion, forms sent to parents to obtain consent for corrective work or
operations if needed, and daily hospital registers.
.
The psychological department used the record forms furnished by
the State bureau of juvenile research and kept detailed records of all
examinations and recommended treatment.
The school department kept a permanent record card showing
school progress as to grades completed, ratings in studies,
and
work assignments, and certain identifying information. In addition,
monthly report cards were issued. The rating card for the boy s
progress in trades was also filed with the school records. Various
other forms incident to the school work were used by the school
department.
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An elaborate record system was used by the court officer, whose
duties included the assignment of boys to cottages and to trade
and work detail as well as disciplinary matters. Hence the records
kept by his office included such detail forms as were used in making
a record of assignments and changes in assignments and also those
used in connection with reporting misconduct to his office and
recording the action taken. Each boy’s record was summarized and
entered on a master card as a permanent record for the administrative
office.
17. PAROLE AND DISCHARGE
Both the juvenile-court law and the law governing the Boys’
Industrial School contain provisions relating to parole. Under the
provisions of the latter, the State department of public welfare is
required to establish rules and regulations under which inmates of the
school may be allowed to go on leave of absence until finally dis
charged. Authority to carry out these rules and regulations is given
by the law to the superintendent of the institution, and no boy may
be paroled except on his written recommendation. He also has
authority to order the return of any boy so placed on leave. The
juvenile-court law requires “ agents” to be maintained to “ examine
the homes of children paroled for the purpose of reporting * * *
whether they are suitable homes, and assist children, paroled or dis
charged * * * in finding suitable employment, and maintain a
friendly supervision over paroled inmates.” The department of
public welfare designates the number of such agents or “ field
officers.” 22
.
.
.
.
Therefore, the parole program as it was functioning at this insti
tution was under the direct supervision of the superintendent. Four
field officers were members of the institution staff and had headquar
ters at the institution. Their work was not organized as a depart
mental unit. Each worked independently in his own district, and
each was responsible only to the superintendent. Detail as to the
training and qualifications of these officers for parole work has been
given in the section on personnel (p. 186.) All four had been employees
of the institution in other capacities before appointment as parole
officers, and all had been on the staff for several years.
For parole consideration emphasis was placed principally on the b oy’s
conduct or misconduct while in the institution instead of including
all phases of his institutional treatment and progress. As has been
stated, each boy admitted was listed for 12 months’ stay at the insti
tution, and his release prior to that date depended on the earning of
good-time allowance in accordance with the system in effect in the
institution; this was shortened or lengthened through the credit
system of days off for good conduct or days added for misconduct,
under which it was possible for a boy who had absolutely no miscon
duct reports to earn parole in 8 months and 20 days. (See p. 204.)
The average period in the institution was said to be 9 to 10 months.
A boy returned for violation of parole, or returned from an escape,
entered on the same conditions as on his first admission; that is, he
was listed for a year and could begin to earn good time as before.
Every 2 months a list was made up of all the boys who had made
their time allowance and hence were eligible for parole. The superinii Ohio, Gen. Code 1932, secs. 1677 (juvenile court), 2091 and 2092 (B oys’ Industrial School).
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FIVE STATE INSTITUTIONS FOR DELIN QU EN T BOYS
tendent forwarded this list to the director of the State department of
public welfare with recommendation for their parole. The parole
technically became effective when the director signed the list, but the
approval of the committing court was sought before the boy was actu
ally released. As soon as the list was returned with the approval of
the State department, the superintendent sent a letter notifying the
court of the pending release, requesting that a preparole home visit
be made and that the court advise whether, in its opinion, the boy
should be returned to his home. In Ohio many of the committing
courts had no probation service or other resources for social investi
gations, and it was felt that these preparole inquiries were more or
less perfunctory and that the answers were based on the personal
knowledge of the judge rather than on an adequate social investiga
tion. Practically no preparole work other than seeking this approval
of the committing court was done by the institution. Investigations
of relatives or foster homes were sometimes made by the parole officers
in cases in which the boy had no home or in which return to his home
was not desirable. Nor was there any definite preparation of boys
for the parole period. Both the superintendent and the chaplain
gave them short talks before they left, usually to groups of 25 to 40
boys, just as they were all ready to leave the institution grounds.
As there were 1,147 boys on parole as of March 14, 1932, the case
load per parole officer was 287. Obviously no officer with so many
boys under his care could give much supervision through personal
visits. It was stated that each officer tried to get around to visit
parolees once a month. Sometimes when a parole officer was to be in
a certain county seat, the juvenile court would ask the parolees to
call on the parole officer at the court rooms. The committing coiirts
did not accept responsibility for any parole supervision, but parolees
were directed to report to the court within 10 days after their return,
and frequently the court maintained friendly contact with them. If
the policy of monthly visits was carried out, actually making that
many visits left little or no time available for individualized super
vision or giving assistance in employment, school, or recreational
adjustments. The monthly visit did not always include seeing the
parolee. The records examined indicated that an interview with a
member of the family, if the boy was not at home, or perhaps a verbal
report from the judge or some other person interested in the boy
frequently constituted the monthly visit. Considerable time was
reported spent by the officers in investigating cases of parole violations
and in returning boys to the institution.
The parolees were not required to send in written reports. The
officers reported any visits or contacts in relation to each boy on regular
forms which were filed in the boy’s folder at the institution. They
constituted the only parole records.
In accordance with the provision of the law that boys, although
committed until 21 years of age, may be sooner released for satis
factory behavior and progress in training (see p. 177), it was the
established policy to grant final discharge from parole before boys
reached the age of 21, theoretically on a basis of satisfactory conduct
for 1 year subsequent to release from the institution on parole.
This system of discharge had become very automatic, based almost
entirely on the time element. So far as could be ascertained, a boy’s
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conduct was considered satisfactory for discharge when after the
year he had not been returned for violation of parole.
No consideration was given to conduct which might not have been
satisfactory yet had not been such as to warrant return to the insti
tution. The possibility of the boy’s needing further supervision or
assistance in making his adjustments in society was not taken into
consideration. The time period was firmly fixed and seldom if ever
extended. No approval or recommendation for discharge was re
quired from the parole officers, nor were the reports of their contacts
with the boys reviewed for discharge consideration.
The actual procedure for discharge was the same as that followed
for release on parole. Every 3 months the record clerk prepared
lists of all boys who had been on parole for a year. These were
submitted to the superintendent, who sent them to the State depart
ment of public welfare with his recommendation for discharge. The
discharge became effective on the approval of the director of the
department.
As a result of the 1-year rule, return to the institution for violation
of parole was possible without further' court action within a year’s
time from release on parole. Recommitment was necessary following
discharge. Each time a boy was returned, whether as a parole violator
or on recommitment, the same policy as to his length of stay in the
institution and the 1-year parole period was followed. Thus it fre
quently happened that boys were recommitted several times who
ordinarily under a program of longer parole care would have been
returned as parole violators. Recommitments were made even if the
boy was to be returned within a few days after his year of parole
had ended. Some boys who were returned to the institution re
peatedly remained under jurisdiction until 21 years of age because
of their continued record. In such cases discharge was automatic
when thejr became of age. Frequently a boy committed at an early
age and discharged after a year of parole was recommitted, perhaps
two or three years later, and became a “ new” case.
. There was no fixed policy as to what should be considered suffi
ciently serious misconduct to warrant return for violation of parole.
It was stated that it was the policy to be reasonable about minor
offenses and to have the parole officers make an adjustment in the
community rather than return the boy. In cases of continued mis
conduct which seemed to tend toward, the later commission of a
serious offense, the boys were returned.
18. PLANT AND P RO G R AM CHANGES IN RECENT YEARS
Of the cases analyzed in part 2 of this report (see p. 10) 151 were
from the Boys’ Industrial School. The period during which these
boys were under treatment included the years 1918 through 1925,
with by far the greater number under care during the period 1922
through 1924.
•?piere k&d been relatively few changes of major importance in
either plant or program at this institution since the training period
of the cases studied. Construction of the new building for the East
Side school had been begun in 1925, and in 1931 one new cottage
had been constructed. In 1925 four of the old cottages had been
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FIVE STATE INSTITUTIONS FOR DELIN QU EN T BOYS
remodeled. The annual report for that year commented that the
remodeling contemplated elimination of the third-floor attics that had
been used as dormitories accommodating about 35 boys each.
The following figures for the fiscal years ended December 31, 1922
and 1931, reveal the similarity between certain factors affecting
institution life in the two periods:
Item
1922
1, 156
130
9. 0
$324
1931
1, 120
147
7. 6
$240
The later period shows a slightly more favorable ratio between
boys and employees, the number of employees having increased to
some extent while the population remained about the same. In spite
of this increase in personnel there was a slight decrease in per capita
cost in the institution.
.
In August 1930 a psychologist from the State bureau of juvenile
research was detailed full time to the Boys’ Industrial School. Before
that time psychological tests had been made only occasionally. The
State department of public welfare reported in 1922 that the bureau
of juvenile research had been making a thorough examination of
inmates at both the girls’ and the boys’ industrial schools, such
examinations to be conducted regularly at each institution at 30-day
intervals 11so that all new inmates will be classified and the feeble
minded or degenerate set apart.” 23 Many of these earlier reports
referred to the presence of a considerable number of mentally defec
tive boys who were unable to profit by the training offered. In 1925
it was reported that 28 percent of the year’s admissions had been
classified as subnormal, but the division between feeble-minded and
border-line cases was not indicated. Exceptionally unstable cases, and
those suspected of being psychotic or presenting exceptionally difficult
problems in behavior and control, were sent to the bureau of juvenile
research in Columbus for periods of observation, to be followed by
advice as to disposition to be made or treatment to be given.
It was stated that prior to 1925 the academic school had not been
chartered by the State, but that a charter was granted that year. This
meant that it could exchange school credits on an equal footing with
outside schools. Since 1924 psychological and educational tests had
been used to aid in school assignments.
.
Vocational training had undergone no great change during the
10-year period, according to the management, except that more boys
were being given trade training through the half-day school and halfday work plan than had been the case in the early 1920’s. The train
ing had always been limited very much to the production and main
tenance work of the institution under the direction of experienced
foremen. The director of the State department of public welfare
stated that insofar as funds had been available the shops had been
modernized to keep abreast of mechanical progress.
u
State Department of Public Welfare, First Annual Report, for the fiscal year ended June 30,1922, p. 23,
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BOYS’ INDUSTRIAL SCHOOL, LANCASTER, OHIO
211
The same system of military organization and training had been
in effect. The amount and type of recreational activities were about
as they had been over the 10-year period.
In 1924 the annual report had described the school’s treatment
methods as being governed by “ common sense and discipline,” which
were “ based upon simple, orderly, regular, and strict routine.” So
far as could be discovered the 1932 disciplinary methods had been
in effect for some years past without any important changes. The
superintendent, who had been at the school in various capacities for
about 20 years, stated that in the early 1920’s boys had been sen
tenced for specific terms and had to “ serve out their time” regardless
of their good conduct. The merit system in use when the school
was visited has already been described. The superintendent said
that in 1932 they did not make such rigid rules, and they and the
boy might agree on “ a proposition” with respect to the terms under
which he could earn his release under a relaxation of the requirements.
The average time a boy remained at the institution had been reduced
according to the management from 18 to 10 months.
At the time the boys included in this study were on parole there
were but 3 parole officers looking after 800 to 1,000 paroled boys
scattered over the State of Ohio. By 1932 the number of such officers
had been increased to 4.
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Chapter VIL— RECAPITULATION AND C O M M E N T S
In the five preceding chapters the facts gleaned in visits to each of
five institutions have been presented as objectively as possible. The
following sections contain a recapitulation of certain salient points in
relation to characteristics of the plants and phases of the programs,
with comments on the strengths and weaknesses believed to be
inherent in them and to characterize much current institutional work.
Representatives of the Children’s Bureau have visited 37 State
institutions for delinquent boys during the past 2% years in connection
with the Bureau’s program of cooperation with the Bureau of Prisons
of the Department of Justice in the interest of the Federal juvenile
offender. Certain comments hereinafter include the institutional
field beyond the 5 institutions described in detail in this report, and
are based on the observations recorded as a result of the visits to all
those 37 institutions.
Methods and practices in general administration, in accounting, in
statistical recording, in personnel classification and management, in
educational programs, and in control and guidance of boys all differ
so radically that there is grave danger of erroneous conclusions if
comparison of institutions is attempted. Therefore few comparative
judgments have been undertaken.
1. STATUTORY PROVISIONS GOVERNING ESTABLISHMENT AND
OPERATION
Throughout the 48 States there is no uniformity in the laws govern
ing the operation of institutions for juvenile delinquents. So far as is
known, no attempt has been made to discover what provisions have
seemed to work out most effectively. Opinions on the subject are
readily offered, but painstaking accumulation and analysis of factual
data in support of these opinions are not forthcoming. No group has
attempted to formulate the essential principles which should be
incorporated in legislation of this character for the guidance of citizens
who may wish to scrutinize the laws designed to meet this govern
mental responsibility in their own States.
The first legal enactments for the establishment of the five institu
tions especially studied were made in 1850 (New York), 1855 (Michi
gan), 1857 (Ohio), 1865 (New Jersey), and 1889 (California). The
statutes have been amended from time to time as described in the
preceding chapters. Some of the amendments reflect the changing
concepts as to how reformation may be effected and reveal the
growing emphasis on training and education in that connection.
Similarities and differences in the regulations governing administra
tive control, types of commitment, releases, and discharges will be
discussed in subsequent sections of this chapter.
212
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RECAPITULATION
Location
AND
COMMENTS
213
2. THE PHYSICAL PLANT
These institutions differ considerably with respect to location. One
is in the midst of a residential area in the State capital. One is
immediately adjacent to a college town with a population of about
15,000, quite close to a city of more than a million inhabitants. The
others are in rural districts, with varying degrees of accessibility to
cities offering good shopping and amusement centers, educational and
cultural resources, and opportunities for diverse social contacts.
None suffered from extreme isolation. All were reached by good
paved highways. All were served by bus, trolley, or railroad lines,
although service on these lines was not always frequent enough for
real convenience in relation to needs.
Location is important for several reasons. Since the primary
purpose of institutional treatment is to prepare the boys for return
to community life, it would seem that they should not be removed
completely from community contacts during the training period.
The more isolated the institution the more artificial its life inevitably
becomes, with consequent difficulties of reorientation for the boy on
his return to the community. In many of the institutions generally
regarded as progressive a distinct trend toward seeking to establish
normal community contacts for boys under care is perceptible.
Normal contacts for city*-bred boys, who constitute a heavy propor
tion of the institutional population, mean urban contacts. This is a
difficult problem under any circumstances. It becomes practically
impossible when the group is of necessity, by reason of physical
remoteness, out of touch with any organized community life.
On the other hand, a city site offers certain disadvantages. Prop
erty may be too costly to warrant its use for the very considerable
space, with ample playgrounds and athletic fields, which is indispens
able. Such a location also robs a campus of the degree of privacy that
is desirable for wholesome, unsélf-conscious movement and play
activity. No matter how innocuous a name may be given the insti
tution and no matter how completely it may be shorn of outward
evidences of restraint, such as fences, bars, and posted guards, to the
general public it remains a custodial and training center for young
delinquents. A large part of that public continues to regard the boys
moving about its campus as objects of somewhat curious interest, as
somehow different from boys over whom the magic commitment
papers have not been waved, thus deplorably intensifying the boys’
feeling that they are set apart. A rural, or at least suburban, site
would seem to be more likely to offer ample space, coupled with a
reasonable degree of privacy, than a site in the heart of a city. But
it should be readily accessible in order that contacts with suitable
outside groups may be developed, to give the boys a sense of belong
ing in the community and a feeling of responsibility for contributing
to the good character of its life and its reputation.
Location has also some significance in relation to staff morale.
Employees need a normal social life. Friendly associations outside
the institutional circle are helpful in achieving and maintaining
emotional balance and a rational attitude toward the problems that
constantly arise in connection with the guidance, control, and training
of boys. Wholesome amusements of diverse kinds, entirely devoid of
institutional flavor, may be highly tonic in effect. Ambitious and
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FIVE STATE INSTITUTIONS FOR D ELINQUENT BOYS
able staff members who take advantage of opportunities for educa
tional or cultural advancement in nearby urban centers supply a
valuable leaven in any institutional group. Extreme isolation may
make it difficult to obtain and to keep high-grade personnel, one of
whose greatest assets is a desire to keep abreast of the times, to avoid
sinking into a rut, no matter how smooth and comfortable the traveling
within the rut.
Another penalty attendant upon inaccessibility is the relative infre
quency with which the institution may obtain the advisory services
of experts in divers special fields ranging from animal husbandry to
surgery or psychiatry. Moreover, an institution remote from wellpopulated centers and from much-traveled highways is likely to
remain unknown and unappreciated by a large proportion of the
public. Yet an intelligent understanding of its aims, its program,
and its needs on the part of a considerable number of the citizens of
the State might notably affect its progress in two directions, first, in
that more support might be forthcoming when funds are needed to
increase or improve institutional facilities or to develop new phases
of the guidance and training program; second, that much greater
cooperation might be had in the communities in which boys must
make their social and economic adjustments on release from the
institution.
Acreage
All five institutions owned farm lands in addition to the acreage
occupied by the campus buildings, lawns, roads, playgrounds, and
athletic fields. The following figures give some idea as to their
respective land utilization in relation to the boy population:
A cr ea g e used f o r bu ildin gs and grou n ds, athletic field s, and cultiva tion, a nd n u m b er
o f b o y s p er acre in 5 State in stitu tio n s f o r d elin qu en ts
B o y s 1 per acre of land
used for—
Acreage used for—
State
California___________________ - - -----------------M ichigan___________
________ - .
------N ew Jersey___________________________________
N ew Y ork ___________ ______________ _______
Ohio- - ________________ - ---------------------------
Buildings
and grounds
and athletic
fields
Cultivation
Buildings
and grounds
and athletic
fields
48
191
150
106
135
178
331
589
652
502
3.6
4.2
4.4
7.3
6.6
Cultivation
1.8
2.1
1.1
0.7
2.0
1 Based on institution population: California, N ov. 9,1931; M ichigan, M ar. 21,1932; N ew Jersey, Mar. 3,
1932; N ew York, Mar. 29, 1932; Ohio, Mar. 14, 1932.
As has been shown in the previous chapters, the remaining acres
in some cases were meadow, pasture, or woodland. In Michigan
466 acres were used by other State agencies. No attempt was made
to obtain information on differences in soil productivity. Such data
would be required if any effort were made to compare the available
land in terms of actual usefulness, either for maintenance or for train
ing purposes.
In general, it may be said that three considerations are of prime
importance in making any estimate as to the suitability of a tract of
land for an institution of this character, in addition to its location.
Any such tract should afford ample space for attractive and convenient
building sites for all the units essential to a well-rounded training
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RECAPITULATION AND COMMENTS
215
program for a maximum anticipated boy population. A plentiful
supply of good water should be available, and there should be enough
fertile farm land to carry on an agricultural program that will offer
useful training to boys from rural areas or to others interested in farm
operations and that will make a reasonable return in farm products for
labor expended.
The institution dietary will be greatly improved by such fresh vege
tables and fruits as can be produced. Most institutional budgets do
not permit the purchase of as much fresh market produce as is desir
able in the light of present-day knowledge of food values and food
needs for growing young persons. When the soil is poor, costs rise
rapidly, and too much boy labor is consumed for the food produced.
A farm of low-grade soil constitutes a poor laboratory for agricul
tural training. Most institutions for delinquent boys regard agri
cultural work of various kinds as a type of vocational training. It
is therefore short-sighted economy that establishes a permanent
handicap to the training activities in order to effect an initial saving
in investment in capital assets.
Buildings and equipment
In this study much more emphasis was placed on program than on
plant and equipment. Inspection of buildings was somewhat cursory,
and no survey of equipment by persons technically informed in that
field was undertaken. However, certain comments seem permissible
on the basis of observations made by the field workers and the remarks
made by staff members with whom they talked.
It goes without saying that an institution will find it easier to func
tion effectively when its buildings and equipment are adequate and
are fully adapted to the work that is to be done. That means thought
ful planning by the members of the administrative staff who most
thoroughly understand the true objectives of institutional treatment
and the methods most likely to result in progress toward the attain
ment of those objectives. Many institutions occupy buildings erected
at various times during the past 50 or 60 years. Some have had funds
for considerable new construction during the past decade, others have
been able to make plant improvements by remodeling old structures,
and still others have been able to make very few changes for many
years.
When old buildings must be utilized for new activities, careful study
of the enlarged program in relation to all facilities available will some
times reveal the possibility of rearrangement that will make for much
greater efficiency. Custom, tradition, and the preferences of privi
leged, old-time employees should not be permitted to stand in the way
of perfecting the best possible location of activities in relation to needs
of the training program.
When new buildings are authorized, it is of vital importance that
persons who know exactly what activities are to be carried on in them
shall outline the plans. Architects and builders rarely know enough
about the projected uses of institutional structures to be able to design
acceptable floor plans unless they consult the proper staff members at
every step. An architect who has done considerable institutional
building has stated this need in the following words:
The architect * * * is helpless without, the technical advice based on
years of experience which necessarily must come from the technician who so ably
handles this problem throughout our country. It is only when a happy correlation
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
of these two fields is properly expressed that a successful institution can be exe
cuted.
Any properly trained architect can take the requests of a properly trained super
intendent and clothe them in architecture which suits the particular locality in
which the institution is to be built.1
Expenditures merely for making the institution a show place are
inexcusable. Such ostentation does the boys no good and wastes
money that should go into providing useful structures and adequate
furniture and equipment. On the other hand, some attention may
well be devoted to making sure that all decorations are in good taste
and devoid of drabness, that the buildings are well proportioned, and
that they are so placed as to make for general attractiveness as well as
convenience. Satisfaction in belonging to a school group possessed
of a good-looking campus can be made an asset in the reeducation of
boys; and the cultivation of a taste for beauty, for balance, for genume
quality in material things, may well be a step forward in preparation
for successful independent living.
Administrative offices
Very little comment is needed on the subject of office space.
Recognition is being given in greater and greater degree to the con
tribution that can be made to the effectiveness of a treatment program
through the introduction of modern business methods into the opera
tive machinery. That need was probably first recognized clearly in
connection with the business management of the institution, but,
more important in its results, the establishment of a scientific caserecord system is rapidly becoming an indispensable item in the treat
ment program of all progressive institutions. Attention to business
methods leads also to realization that it is necessary to provide, so
far as is possible, sufficient office space for doing the work comfortably
and conveniently. Light and ventilation are important problems in
connection with any office arrangement.
Office equipment is of considerable importance to the smooth func
tioning of the program. All modern aids that will definitely contribute
to the making and keeping of records which have a direct usefulness
in the treatment program should be provided. This does not mean
that a great deal of money should be spent on expensive equipment.
It does mean that some thought must be given to the office needs and
that some person on the staff should be interested in keeping advised
of new developments in office equipment and supplies so that advan
tage may be taken of new devices, particularly any that will simplify
processes.
B oys’ residence quarters
All these institutions were described to the field agents as being of
the so-called “ cottage plan.” To some extent there seemed to be
uncertainty as to just what should be properly called a cottage.
Residence units ranged in size from those accommodating 16 or 17
boys to those accommodating 75 or more. In general, there seems to
be justification for the belief that cottage units should provide living
arrangements for not more than 25 to 30 boys, and for still fewer if
plans can be worked out for operating even smaller units with a
reasonable degree of economy.
i Hopkins, Henry P .: Building Design and Its Relation to Efficient Institutional Operation.
ings of the National Conference of Juvenile Agencies, 1932, p. 141.
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RECAPITULATION AND COMMENTS
217
In four of these institutions the residence units for boys were built
on the dormitory plan. At the fifth (the Whittier State School), four
cottages contained single rooms and one new cottage contained half
dormitory and half single-room sleeping arrangements. In other
State institutions for delinquents that have been visited by represent
atives of the Children’s Bureau the dormitory arrangement prevails
almost exclusively. There is some division of opinion as to whether
or not this is entirely necessary or desirable. It simplifies night
supervision, but there is some question whether that is as necessary
as has sometimes been believed. Some workers expressed the belief
that it would be well to have at leaát one cottage containing single
rooms at each institution, this cottage to be used as a residence for
boys preparing for release on parole. It would provide for them a
transition period from the supervised dormitory to a more private
bedroom comparable to what they would have when they left the
institution.
For the most part, in institutions of this kind, considerable attention
is now paid to provision of sufficient sanitary facilities for comfort,
convenience, and the promotion of proper standards of personal
hygiene. These facilities of course vary in type and arrangement;
no particular investigation of this equipment was undertaken in con
nection with this study.
Each individual residence unit in an institution of the kind under
consideration needs sufficient living-room or recreation-room space so
that an approximation of home life may be enjoyed by the boys when
weather conditions do not permit them to spend their free time out
of doors. In these particular institutions there was considerable
variation in the type of living room provided. They ranged all the
way from the rather bare, stiff, and formally arranged room, with its
polished floors and with the chairs set in rows about the tables, to
the comfortably and attractively furnished living room with colorful
decorations, such as might be found in any moderately well furnished
home. It is believed that living rooms in institutions of this kind
should be conducive to the informal free-time activities that any big
family of boys might enjoy in their own family home. Inexpensive
but comfortable furniture, pleasing decorations, and plenty of light
and ventilation are essential for this phase of the cottage life. The
right kind of living-room atmosphere, with which the actual room
itself and its furnishings have much to do, can be very helpful in
building up an appreciation of good standards in family life.
Staff residence quarters
Sometimes too little attention is paid to making staff members
comfortable and happy through the provision of good quarters. These
do not necessitate extravagant expenditures. It is, however, essential
that some attention be given to this phase of institutional manage
ment, and such attention will bear fruit in increased efficiency on the
part of the personnel. Often it is necessary for institutional workers
to be on duty for long hours and for long periods without leaving the
institution. Familiarity with human psychology compels recognition
of the fact that service of this nature produces a certain amount of
nervous tension and consequent fatigue. Opportunities for privacy
and for physical comfort in off-duty hours help to relieve the tension
and to offset the fatigue.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
The farther away an institution is from an organized community
that offers opportunity for social life and entertainment, the more
necessary is provision of recreation or club rooms for staff members,
so that they may build up a community social life of their own,
separate and distinct from any connection with the boy life of the in
stitution. In other words, they need some place where they can enjoy
a change from the surroundings that create the work atmosphere for
them.
Dining-room and kitchen facilities
In these five institutions, as well as in other State institutions that
have come under observation, the most common place for serving
meals is a central dining room to which the members of all cottage
units come. In the New York school each cottage had its own kitchen
and dining room, however, and in the Michigan one food was prepared
in a central kitchen but taken to the cottages and served in cottage
dining rooms. The Ohio institution had two central dining rooms,
one for the younger and one for the older boys. The institution in
California was the only one which had adopted the cafeteria style of
serving. Members of the staff were quite enthusiastic about it and
believed it to be particularly efficient and satisfactory, both from the
point of view of the boys themselves and from the point of view of
the management.
The dining rooms and the dining-room equipment at these insti
tutions showed considerable variation. Some were very cheerful,
attractive rooms, others rather drab and bare. Benches instead of
chairs and aluminum ware instead of china at one institution tended
greatly to emphasize the institutional character of this phase of the
boys’ life.
The central kitchens were for the most part supplied with modern
equipment and with mechanical labor-saving devices of various kinds
for preparing the food and washing the dishes. Certainly it is desir
able that such labor-saving devices be installed that the boys’ time
which might be better employed in specific educational and vocational
activities is not required for routine kitchen and dining-room work.
Chapel and assembly hall
Every institution needs some general meeting place large enough
to seat the entire boy population and the staff. All five institutions
had assembly halls, and some of them had separate chapels for religious
services. In every large group of this kind will be found boys with
talent for music or some form of dramatic art. It is desirable, there
fore that the institution have an assembly hall with a stage so arranged
that good concerts, also plays and other entertainments, can be
presented conveniently.
Hospital
Hospitals fairly adequate to meet the needs of the boys were found
at all these institutions. Some were fully equipped for practically
all lands of medical work, including major surgery. No general
requirements can be laid down for hospital plant or equipment. It
may be said that each institution of this kind should have a separate
hospital with enough space to give first-class care in all cases of acute
illness, to isolate contagious or infectious cases, and to carry on correc
tive surgical work for boys found suffering from remediable defects.
An institution near a city that has high-class hospital facilities which
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RECAPITULATION AND COMMENTS
219
may be used at reasonable cost for certain major operative cases
may find that preferable to equippmg the institutional hospital for
such work. The facilities must be available; but each institution
must determine for itself the best and most economical method by
which the service may be provided.
School building
Very considerable variation was found in the types of school build
ings and equipment at these various institutions. In some the school
building was thé conventional plant most common in public-school
architecture in this country. In others the school building combined
classrooms, shops, and space for extracurricular activities of various
kinds which were closely affiliated with the more strictly educational
work.
The variation seemed greater in equipment than in the buildings
themselves. Some classrooms were found equipped with the old-style
fixed desks ; some had much more modem desks but nevertheless the fixed
type; and others were so progressive as to have no fixed desks, the
classrooms being equipped with tables and chairs and other movable
furniture. There was considerable difference in the amount of equip
ment for visual aids to education. These items will be dealt with in
more detail in the section on the educational program (p. 254).
The instructors in the schools which had discarded the conventional
fixed desks were enthusiastic about the type of work which was encour
aged by maintenance of a less formal classroom atmosphere. It
would seem that the general trend in education is toward the elimina
tion of the old formal mass instruction, and that this is inevitably
reflected in the type of equipment considered desirable.
Shops
Very often in years past the shops at institutions of this description
have been set up with a view to carrying on certain types of mainte
nance work for the institution, the vocational-training aspects being
given secondary rather than primary emphasis. In many institutions
that attitude is now giving way to the desire and the intent to make
all the industrial shops genuine training centers. In some of the
institutions visited new shops had been built or were being built with
that purpose definitely in mind. Any detailed discussion of this tech
nical subject, however, would be of value only if presented by persons
thoroughly familiar with vocational training and shop management.
It is sufficient to say here that any institution which pretends to give
vocational training should devote careful attention to planning and
equipping its shops so that they can give a kind of training worthy of
the name. This will mean that they should resemble as closely as
ossible the shops with high standards of working conditions in which
oys may seek employment when they go from the institution to the
community. That in turn postulates tools and machines that are
currently in use in the commercial and industrial world, so that a boy’s
prevocational training is not in the use of antiquated tools and
machinery.
There are bound to be certain institutional services midway be
tween maintenance labor and industrial training; for example, the
great central laundries, the central heating plants, and the bakeries.
In all these it seems logical that as much modern labor-saving machin
ery as possible should be provided in order that the boys may give
more time to the training than to the work aspects of these activities.
E
76870— 35----- 15
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FIVE STATE INSTITUTIONS FOR D ELINQUENT BOYS
Farm buildings
It seems to be general practice for institutions of this kind to carry
on rather extensive farm operations, even though these are not defi
nitely for vocational-training purposes. There is no doubt that one of
the primary reasons for large-scale agricultural operations is to produce
food for institutional consumption. When hours are reasonable and
programs are laid out with a view to training, participation by the
boys in these activities is in no sense undesirable. However, farm
buildings and equipment should be such as to make it possible to
emphasize training with the several types of agricultural work and to
give the boys a thorough acquaintance with modem agricultural
methods and machinery. Labor-saving machinery is highly desirable
so that the boys may have enough time for the study which should
accompany all agricultural work if it is to serve its true purpose over
and above mere production.
Gymnasium and athletic field
Gymnasium facilities at these institutions ranged all the way from
use of the general assembly hall for gymnasium classes to the elaborate
and very completely equipped field house at the Michigan school.
It is generally agreed that every training school for boys of these ages
has a definite need for facilities for both indoor and outdoor athletics
and sports. The size and the character of the building need to be
determined through a thorough analysis of the exact uses which can
be made of it with greatest benefit to the whole school population.
Inasmuch as an active sports program is a desirable feature for every
institution of this character, there is need for an athletic field properly
laid out and arranged for the various types of seasonal games. In
addition it is highly desirable that each cottage group have a play
ground of its own, sufficiently large to permit practice by cottage
teams in addition to general free play.
3.
P LA N T VA L U A T IO N A N D O P E R A T IN G E X P E N S E
The plant valuations as supplied by these five institutions totaled
$7,529,232. No one plant was valued at less than $1,000,000. As has
been pointed out in the preceding chapters, these valuations represent
almost without exception the total expenditures by the individual
States for lands, buildings, improvements, and equipment. They do
not represent a current appraisal of lands, improvements, or equip
ment. In some instances an appraisal on buildings and equipment
might have been procured from the valuation placed on those items
by the insurance underwriters. However, it was not deemed suffi
ciently meaningful for purposes of this report to seek any figures
beyond such as are currently carried on the books of the institution
as “ valuation.” These figures have a certain significance as indicat
ing the investment which the various States have made in physical
properties for use in their treatment of delinquent boys. Their in
vestments vary decidedly, some States having a much heavier invest
ment per boy under care than others. It would require intensive
research in this field to arrive at any trustworthy basis for establishing
a fair minimum of investment from which reasonable results could be
expected. Moreover, it is doubtful whether any such minimum could
be set up. Results of treatment are largely dependent on other factors
than physical properties, although these affect the work to some extent
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since a rightly designed program can function very much more effi
ciently with proper material aids.
The item of operating expense cannot be asserted to be strictly
comparable among these five institutions. There is little or no uni
formity in accounting methods. Expense items are classified under
different headings and in different subtotals at the several schools.
So far as possible in this report the operating expense for each insti
tution was calculated from the actual expenditures for salaries, main
tenance and supplies, and replacement of equipment. Sums for new
equipment or for additional improvements were not included as oper
ating expense where it was possible to eliminate them without too
prolonged review of itemized accounts.
At the several institutions there was variation in accounting prac
tice with reference to the value of food products produced and con
sumed at the institution. So far as possible the item charged on some
o f the books for goods produced and consumed was subtracted in order
that actual expenditures for operating might be comparable. How
ever, in Michigan the products of the farm were recorded as purchases
by the school, and these purchases were included in the total expendi
ture for maintenance and supplies in such a way that they could not
be eliminated without a complete review of the accounts.
Although the figures, are not comparable and no far-reaching conclu
sions are possible, it is nevertheless interesting tó examine the average
per capita cost (cost per boy) and the proportion of the total expendi
tures used for salaries in these five schools:
State
California_______________ _____
M ichigan__________________
N ew Jersey_____________________
N ew Y ork...........................................
Percent of
Per capita
cost (cost per total expend
iture
used for
boy)
salaries
$905
540
556
820
240
49
42
45
60
46
In practical considerations this per capita cost often looms very
large. In the fight for adequate State appropriations the demonstra
tion of a low per capita cost seems in some places to be considered a
telling argument in behalf of support. Such an attitude seems to
indicate lack of appreciation of an institution’s objectives. That is,
an institution struggling to do good work with too limited funds should'
be able to obtain better support financially by showing how impossible
it is to do the things that need to be done with the limited financial
allowances. Far greater emphasis on the human aspects of the work,
and less pride in material economies that cripple human effort are
highly desirable and should be productive of results under tactful and
vigorous leadership.
There would seem to be in this, as in all other matters, a desirable
moderate course between niggardliness and extravagance. By nig
gardliness is meant the refusal to allow enough money not only to give
good physical care but also to maintain a high standard of educational
and vocational work and to have the best possible trained leadership
and guidance. By extravagance is meant spending too much money
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on matters for external show or indulging in a great deal of experi
mentation that could not be justified by practical results.
Again it must be admitted that in this study no attempt has been
made to determine what might be a reasonable minimum expenditure
in an institution of this kind. No general minimum could be estab
lished which would be applicable in all parts of the country and in
institutions of differing size. Material costs and salary scales vary m
different regions. So-called 1Overhead expenses of administration as
well as service expense per capita naturally run higher in the smaller
institutions.
4.
A D M IN IS T R A T IV E C O N T R O L , STA FF O R G A N IZ A T IO N , AN D
P E R SO N N E L
Administrative control
Throughout the various States administrative control of institutions
for juvenile delinquents assumes a great variety of forms. Even in
the five institutions studied, no two had exactly the same form of
control. All five were under the ultimate supervision of the director
either of a State public-welfare department or of a State department
particularly concerned with institutional management. As has been
described in the previous chapters, these various State departments
were differently organized as to personnel, powers, and duties.
The author of a study of training schools for girls in the United
States found about two-thirds of the 39 State-controlled institutions
studied administered by some central system, and reached the
conclusion that there was a definite trend toward some form of
centralized control for State institutions.2 This has certain advan
tages. It makes for more economical operation. It makes it possible
to set up uniform standards for all types of institutions. It should
place ultimate control in the hands of well-trained and experienced
professional executives who can offer much guidance and support in
the development of progressive programs. The disadvantage of such
control lies in the fact that the citizens of a State may permit this
important authority to be placed in the hands of individuals whose
qualifications are political rather than professional and who will inject
political considerations into the appointment and removal of institu
tion personnel. This need not happen in any State in which even a
minority group is ready to protest publicly and vigorously the use of
public-welfare machinery to supply rewards for political workers who
do not have proper training and experience for the jobs to which they
are appointed.
<
.
Three of these five institutions— California, Michigan, and Ohio—
had no local boards. The California institution had two local persons
designated as trustees, but they were trustees in name only, perform
ing no service for the institution at the time of the visit. In 1933,
however, through administrative action an advisory committee was
created and is now functioning at this school. (Seep. 12.) Although
the institutions in New Jersey and New York were under State con
trol, each had in addition a local board that was active and took
interest in the work being done. The management^ at both of these
institutions felt that the local board was a distinct aid in many ways.
Members of a supplemental local board who thoroughly understand
an institution's activities and objectives might provide a good link
a Reeves, Margaret:
Training Schools for Delinquent Girls, p . 49.
York, 1929!
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RECAPITULATION AND COMMENTS
223
between the institution and the public. Such board members could
render genuine service in connection with winning popular support
for more adequate appropriations to carry on a progressive program.
The contribution which such a local board makes will depend on sev
eral things— the caliber of persons appointed to its membership, the
genuineness of their interest in the work, the care taken and the
ingenuity exercised by the institution management in preparing for
the board such subject matter as will best utilize its services and enable
its members to make real contributions in the way of advice or even
of personal service in connection with committees appointed for special
purposes. Without this close friendly working relation between the
local board and the management of the institution under its control,
a local board may become simply an automatic rubber-stamp organi
zation— or under some circumstances it may become an obstructive
force. On the whole, it is believed that a good local board, working
in harmony with an institution superintendent who provides a pro
gram for services which the members are well able to render, can
appreciably further the attainment of an institution’s objectives.
So far as relation with State departments or other State agencies
that do not have a direct supervisory power were concerned, a close
advisory contact was found with such agencies working in various
fields. In many States there is doubtless much room for further
development of such cooperative relations. Many State agencies are
in a position to render service of great value to an institution of this
character and would be glad to do so if their aid were sought. State
universities and their extension courses might be utilized, it would
seem, to a much greater degree than is now the case. Home-econom
ics departments could give valuable suggestions if consulted with
regard to institutional food problems and the preparation of balanced
menus in institutions that do not employ trained dietitians. Many
State library-extension services would be glad to cooperate with
institutions of this character and might be able to help in improving
the character and the quantity of reading matter available and the
uses made of it. Relatively few institutions in this country are able
to employ the services of a trained librarian who keeps abreast of all
the latest developments in this field. These are merely samples of
the varied resources which would be available for cooperative service
in other State administrative groups.
Personnel: Number and duties
The number of employees in relation to the number of bovs varies
considerably among the State institutions. In the five" schools
included in the present study the number of boys per employee was
approximately as follows: California and New York, 3; New Jersey, 4;
Michigan, 6; and Ohio, 8. No specific ratio is known to have been
determined as the minimum below which personnel should not drop.
In the study of training schools for delinquent girls that has been
mentioned, it was reported that approximately one-fourth of 57 schools
studied had more than 4 girls per employee but not more than 5, and
about one-fifth had more than 7 but not more than 10. The average
number of girls per worker was 5.5.3 The number of employees will
be determined partly by the extent to which the institution is expected
to be self-sustaining.
1 Ibid., p. 69.
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Several points are important in considering the number of employees
required to operate an institution of this kind effectively. If the
management is too limited in its personnel for tfhe number of boys
under care, all employees will have long hours on duty without needed
time' for complete relaxation and for getting away from their jobs.
Many of them also will have a multiplicity of duties which will be
both tiring and confusing if the mental and physical energy required to
do each one effectively is expended. Inevitably the efficiency of each
such individual will fall below his or her possible maximum. Limita
tions on personnel also mean that the staff must be deprived of the
services of persons peculiarly fitted for special types of educational
or guidance work of which the individual boys stand in exceptional
need.
As State institutions follow no uniform pattern in classifying posi
tions and prescribing duties for the holders of those positions, no exact
comparison between any two institutions in this particular is possible.
In many of them the duties seem to have become more or less fixed
in character by virtue of tradition from the earlier days. In some
there is greater similarity in the pattern of the personnel as a whole
than in others that have been doing considerable experimentation
with new types of work necessitating new and differently qualified
workers and the creation of positions with new duties. A few serious
attempts are being made at job analysis. Studies of this kind with
consequent outlining of the place of each particular type of employee
in the whole picture should be of great value. Institutional manage
ments that carry this job analysis through and that prepare their
findings in usable form for the benefit of other States will make a
splendid contribution to institutional work.
Personnel: Salaries
The salary range for many of the comparable positions of the sev
eral schools was rather wide. There is danger in attempting to draw
any conclusions from a comparison of the salaries paid in different
parts of the country. For some of the jobs with the same general
title, the duties and responsibilities in the different institutions may
vary in such a way as to account for some of the variations in salary.
It would be easy to bring together in a single table the salaries paid
for somewhat analogous positions at the different schools, but every
attempted comparison would have to be so qualified as more or less to
nullify any conclusions that might be drawn. The material has been
presented in the separate chapters so that readers may know what
salaries were actually being paid at the time of the study in these five
States.
It is obvious that a State will seriously cripple the work of its insti
tutions if it reduces its salary scale below a certain level. Many
superintendents assert that their greatest difficulties lie in their inabil
ity to obtain high-grade workers for the salaries they are able to pay.
It would seem that this is one of the most vital points in an institu
tion's budget. No institutional program can possibly rise above the
level of the personnel entrusted with its operation. The finest physi
cal plant and the most generous budget for maintenance and supplies
will be largely wasted unless accompanied by adequate provision for
a well-qualified staff, for high-grade workers from the chief executive
to the least important of the laborers who come into any kind of
contact with the boy population.
•
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Personnel : Appointments and removals
Some variation was found in the provisions relating to appoint
ment and removal of personnel. In two of these institutions— New
York and Ohio— all personnel, including the superintendent, were
subject to civil-service regulations; in New York the superintendent
was appointed by the director of the State department of social
welfare from an eligible list created by civil-service examinations;
and in Ohio he was appointed by the State director of public welfare,
with the approval of the Governor, from such a civil-service list. In
both institutions all other workers were appointed by the superin
tendent from civil-service eligible lists. It was noted that a heavy
proportion of the positions were classed as “ noncompetitive” , which
means that the holders of those positions were subjected to no special
tests and the civil-service provision was simply an observance of
certain formalities in the matter of application.
Only one school— Michigan-—was entirely without any civilservice regulations in the matter of selection of personnel. There
the superintendent was appointed by the State corrections com
mission, and that commission’s approval was required for appoint
ments to all other positions at the school. In practice this meant
that the superintendent had a free hand in both appointments and
removals.
In the California school all positions except those of the superin
tendent, the assistant superintendent, and the chief placement officer,
and in New Jersey all except those of the superintendent and the
secretary to the superintendent, were under civil-service regulations
as to appointments and removals. In California the superintendent,
the assistant superintendent, and the chief placement officer were
appointed by the State director of institutions with the consent of
the Governor. In New Jersey the two non-civil-service positions
were filled through appointment by the local board of managers,
subject to the approval of the State board of control. In California
all other positions were filled through appointment by the superin
tendent from a civil-service eligible list if any had been established.
In New Jersey the incumbents of all positions except those mentioned
were appointed by the local board of managers from civil-service
fists. In practice, however, the workers were actually selected from
these fists by the superintendent, whose recommendations the local
board almost invariably accepted. A high proportion of the positions
there were also rated as noncompetitive.
Opinions differ widely as to the best method for selecting personnel
for institutional work. Some superintendents feel that the civilservice law hampers them in obtaining the best-qualified workers
and in removing incompetent or unsuitable ones. Others feel that
the weeding out accomplished by civil-service examinations is a great
help to them and that the protection from political influence afforded
by civil-service regulations relating to removal is a beneficial, stabiliz
ing factor.
To anyone who knows the destructive influence of political activity
in connection with appointments to positions in public agencies and
removals from them, it must be apparent that civil-service principles
properly applied make for much greater efficiency in public service.
The difficulties seem to be not with civil-service principles but with
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some prevailing practices. Under civil service the selection of per
sonnel for particular positions, if to render constructive service,
cannot be perfunctory. The assembling of the right personnel is
one of the most difficult pieces of work in connection with any enter
prise. A civil service that establishes proper qualifications to require
for each particular job within its classification and that permits no
breakdown in the application of those standard qualifications will
render incalculable benefits to the public which it is supposed to
serve. The kind of job analysis which makes it possible to set up
qualifications for appointment by civil service is in itself useful. In
order to set up those standards and to give examinations that will be
truly selective, the civil-service staff of examiners must be well quali
fied and must be thoroughly imbued with interest in and enthusiasm
for the work to be performed. They must seek and obtain advisory
aid from properly qualified experts when examinations are held for
positions in any skilled work or in the professions. In the higher
administrative and professional ranks, competition from outside the
State should be permitted so that the best possible standards of
personnel may be maintained.
Critics of the civil-service system who advocate its abolition because
of its failure in many instances to operate effectively must face the
alternative that without it the institutional personnel may at any
time lawfully become the prey of the political-spoils system. The
fact that some State administrations do not utilize institutional jobs
to pay political debts does not remove the threat. Every new election
holds the possibility that qualified, experienced, and competent
workers may be removed to make way for friends of a new official
dom. The amount of energy that sometimes goes into an attack on
a poorly functioning civil-service system might, if intelligently direc
ted, bring about a genuine reform in civil-service methods which
would mean a long step forward in raising standards for personnel in
public service.
Personnel: Term s of service
Although it is necessary to exercise considerable discretion in
drawing any conclusions from comparison of tenure of office of em
ployees at the several institutions, the figures for these five schools
are of interest. They are as follows:
L en gth o f service o f fu ll -t i m e em p lo y e e s i n 5 S ta te in stitu tio n s f o r d elin q u en ts
1
Percent distribution
Length of service
N ew Jersey N ew Y ork
Ohio
California
Michigan
Total........- ..............- ....................................
100
100
100
100
100
Less than 1 yea r.............. ............... - ...................
1 year, less than 2 ...................................................
2 years, less than 3 „ ........................ ....................
3 years, less than 4__________ _____ __________
4 years, less than 5----------------- ------- ---------------5 years, less than 10........... .............. ...................
10 years or m ore______ ______- ------- ----------------
30
3
3
26
8
10
10
7
11
13
9
5
15
16
2
11
5
56
19
10
12
7
8
19
18
8
8
23
33
5
5
7
4
36
36
1 For number of full-time employees in each institution, see California, p. 17; M ichigan, p. 58; N ew Jer
sey, p. 89; N ew York, p. 142; Ohio, p. 183.
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It is interesting in this connection to observe that the one school
under no civil-service requirements whatever— Michigan—had the
highest percentage whose tenure of office was 5 years or more.
Although governors are elected every 2 years in Michigan, they
apparently have not made any clean sweep of the personnel at this
institution for the purpose of satisfying political obligations. The
California school, on the other hand, though presumably protected
by the civil-service laws, had a very high turnover within the months
immediately preceding the visit. The comparatively low percentage
for long tenure of service in New Jersey is attributable to the large
number of new appointments at this institution during the year
before it was visited, owing to the creation of a number of new posi
tions, notably the adding of several assistant cottage masters. The
New York and Ohio schools had the highest percentages of personnel
who had remained in service 10 years or longer.
The personnel problem in this connection is one of maintaining a
balance between too constant a turnover and the accumulation of
too many employees who have fallen into a routine. Too frequent
changes in personnel, either through dissatisfaction of the individual
worker or through discharge, tend to be injurious to staff morale and
to the stability and smooth operation of the program. On the other
hand, institution workers who remain in one place and one job for
many years will have a tendency, unless they are very exceptional
people, to get into a rut and to remain at a standstill so far as develop
ment is concerned. They are likely to become dependent on tradition
and to constitute a dead weight that retards progress when new
methods are introduced. Probably the most successful management
will be the one that so manipulates appointments and removals as
to keep a rather steady flow of new blood coming in, at the same time
never haying such frequent changes as to threaten the stability of
the training program.
Personnel: Qualifications
An attempt to obtain complete information about all workers at
each institution would constitute a study within itself. All that
could be done in this study was to assemble whatever was readily
available from the institutional records and other sources that could
be easily consulted. No attempt was made to check the correctness
of the statements made as to education and prior experience. Judging
from the five institutions especially studied, there is great variation as
to the amount of previous education and the type of previous experi
ence of institutional employees performing all kinds of duties. Though
educational requirements would differ with the type of work to be
done, it would seem that all employees should have had at least a
grade-school education, except the occasional individuals who lack
this amount of formal schooling but are unusually well qualified by
experience and self-education. No attempt will be made here to set
up specific standards for the qualifications of persons for the various
types of work to be done at an institution of this kind. Nevertheless,
certain general statements are applicable to all personnel.
Probably more uniformity exists in the educational and experience
requirements of academic teachers than in that for any other group
of workers. Teachers for the most part conform to whatever stand
ards the State public-school systems have set up. Obviously these
differ considerably from State to State. Not all State institutions
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FIVE STATE IN STITUTIONS
FOR D ELIN QU EN T BOYS
require State certification of their academic teachers. Certainly that
is the minimum that should be required for teaching as difficult as
that in institutions for juvenile delinquents.
More will be said of the vocational instructors in the section dealing
with that phase of the training program. (See p. 255.) Vocational
training is now being developed in many public schools, and courses
by means of which persons may obtain some preparation for teaching
in this field are now available. It would appear that efforts should
be made to obtain instructors who have prepared for this special work
and that trade teachers at the institution should be encouraged to
take courses which would give them a new vision of possibilities in
connection with training of this kind for juvenile delinquents. The
whole industrial picture is changing so rapidly that even the most
alert persons find it difficult to keep abreast of the times. Those
who are out of the main stream of industrial activity, at work in an
institution, can easily become so out of touch with current happenings
that they are poorly equipped to aid boys who later must take their
chances in the constantly changing labor market.
Observation not only at these five schools but also at many other
State institutions leads to the conclusion that the point at which there
is the greatest breakdown in personnel qualification is the parole
work. The nature of this work requires that it be done by individuals
who are thoroughly trained and who have had a reasonable amount
of experience in case work under supervision. They should be well
grounded in the social sciences and in the principles of mental hygiene.
They should have a thorough knowledge of the many different types
of social agencies that may be found functioning in the communities
to which the boys in their care will be released. Surprisingly few
institutions throughout the country have made real efforts to procure
the services of such trained workers in their parole departments. A
few States are making energetic efforts in that direction. So far as
these five schools are concerned, the parole service in New Jersey
and New York stands out as having sought to raise the standards of
personnel who engage in parole activities, and California has recently
taken a step in that direction.
Education and suitable prior experience represent only one side of
the picture so far as qualifications for effectiveness in institutional
work are concerned. Personality traits are at least equally important,
perhaps even more important. It is difficult, if not impossible, to
determine or even to estimate how much of the success of institutional
training depends on the personal influence of individual staff members
on individual boys. There is every reason to believe that such influ
ence, whether it be good or bad, is one of the strongest factors in
institutional treatment. That being the case, the character and
personality of the staff are vitally important. Men and women of
fine character, possessed of those personality traits that enable them
to understand and to influence boys, must be secured if the institu
tion’s program is to approach its objectives. The mental and
emotional attitudes of prospective employees are extremely significant.
They should be emotionally stable, yet responsive to emotional
variations; that is, they should not be devoid of feeling but should
be able to maintain a desirable balance. They must under no circum
stances be individuals who will show favoritism. They must above
all things be fair, just, reasonable, and courteous in all their dealings.
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Boys are much more likely to acquire desirable traits through imitation
of individuals whom they like and admire than through any amount
of instruction. Toward all the different behavior problems that arise
in connection with the handling of these boys the satisfactory employee
will be able to maintain an impersonal but interested scientific attitude,
one that is devoid of faultfinding, that seeks to comprehend the
underlying factors in particular instances of misbehavior and to help
eliminate them.
Obviously no amount of education and experience that is not
coupled with the right type of personality and the right attitude will
make a successful institutional worker. On the other hand, individuals
qualified by character and personality are only partly effective if they
have not been able to obtain that education and experience which the
work demands. The ideal employee is the one who combines a
reasonable amount of training with a good basic personal equipment.
Personnel: 'Living and working conditions
Living conditions have already been touched upon in the section
dealing with staff housing. (See p. 217.) Let it be repeated here
that there is a direct relation between the provision of proper housing
for the staff members and individual efficiency on the job. Wherever
one goes among institutions, one finds evidence of working hours
that are too long. In some places a multiplication of duties in itself
constitutes a strain over and above the long hours necessitated by
carrying more than one job at a time. Consequently it is ail the more
essential that the employee off duty should have comfortable quarters
where he may have a reasonable degree of privacy, for complete rest
and relaxation. It is also essential that employees have recreation
centers that are roomy, attractive, and equipped for real social life.
This becomes still more imperative when the institution is some
distance from communities that offer social activities in which insti
tutional personnel may participate.
Probably too much emphasis cannot be laid on the need for estab
lishing, as nearly as the complicated schedule of the institution will
permit, an 8-hour working day for all employees. It is recognized
that this is difficult and in many places as yet impossible. However,
it should be the goal toward which every institutional administration
directs its efforts. Solely on the basis of consequent efficiency in
operation, such a goal can be amply justified. It is a matter for com
miseration rather than congratulation when devoted employees have
to overtax their energies through long and continuous hours on duty.
The devotion and the willingness on the part of the employees are
admirable, but the results in lowered effectiveness on the job are far
more likely to be disastrous.
The same statements may be made with respect to the necessity
for days off at regular intervals and for vacation allowances ample
enough to permit employees to get completely away from the institu
tion and its problems for a sufficient period to permit complete
relaxation. In work that is as confining as institutional duty, 30 days
of annual leave does not seem excessive. The renewed strength and
energy which employees will bring back to their tasks will more than
make up for the time away from duty. It is hardly necessary to say
that reasonable time off because of illness should be permitted.
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Staff organization
The desirability of departmental organization of the staff depends
to a great extent on the size of the institution and the type of program
in operation. In small institutions it is, of course, unnecessaiy. In
those having populations of less than 200 the superintendent probably
can maintain close enough contact with all lines of work so that not
much formal staff division is required. The larger the institution,
the more the chief executive has to delegate to subexecutives
responsibility for the various training and maintenance activities.
These subexecutives perhaps can function most effectively when the
work is divided into departments with the lines of demarcation as to
powers and duties clearly defined. Such organization places responsi
bility for all detail on the subexecutive who is the director m each
department. Tims freed of the overwhelming burden of administratrve detail, the superintendent is able to devote more of his time
to thoughtful consideration of the bigger issues and to planning for
constant development of the work toward its avowed objectives.
Various types of departmental organization have been worked
out at some of the institutions studied, as has been shown in the
preceding chapters. On careful study of the functioning of the
component parts of the institutional machinery, an alert executive
sometimes will see that certain changes in organization and in division
of duties may lead to better results.
Administrative leadership and staff teamwork
An institution whose staff works in close harmony toward mutually
understood and accepted objectives will be certain to produce the
best results. How to bring about close teamwork on the part of
personnel is one of the superintendent’s primary problems.
Some of the superintendents who are generally considered pro
gressive and who are accepted as leaders in the correctional group
believe that teamwork can best be effected through frequent staff
conferences. These are of various types. Some institutions hold
regular weekly or biweekly conferences of the subexecutives, the
directors of their various departments. At these meetings, at which
the superintendent presides, questions of general policy are thoroughly
discussed. Staff members are encouraged to bring up difficulties that
have arisen or criticisms of the policies or regulations in effect. When
these conferences follow a well-planned program and are diplomatically
handled by the presiding officer, they result in ironing out many
differences of opinion that might pro re disrupting to the general
program. More valuable is the opportunity thus afforded for offering
suggestions as to improvement in the program on the part of the
persons most closely in touch with the success or the failure of the
existing methods.
In addition to regular staff conferences of the heads of departments,
it is the practice at some institutions to hold regular or called con
ferences of special groups. Sometimes these are merely for the purpose
of announcing changes in program or policies and dealing up any
misunderstanding as to just what is expected of individual workers or
departments. Sometimes they are called for the mutual interchange
of ideas as to how well the program is working and what might be
done to improve it. Group thinking and frank discussion of practical
problems presented in the various fields are said to aid materially m
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231
the development of the program. Much probably can be done every
where to develop this plan of group thinking in the interests of improved
operation in the various phases of institutional work. Thoughtful and
understanding leadership in the planning and conducting of such con
ferences should produce gratifying results in perfecting personnel
teamwork. Small conferences of this description may be of particular
help in carrying forward a progressive program in institutions where
a considerable proportion of the personnel is devoted to existing
traditional methods. Their cooperation is essential if progress is to
be made. It will be obtained much more quickly and will be much
more sincere if friendly effort is made to persuade staff members of
the value of the new methods. Old-line workers who give lip service
and who observe the letter but not the spirit of new regulations do
much to nullify the success of a program during a transitional period.
It is in situations of this kind that administrative leadership of the
highest order is called for and has its best opportunity to demonstrate
its value. After all, the question is not whether the superintendent
can “ get o n ” with these people but what their attitudes do to the
boys under their care.
5.
A D M IS S IO N S , C APACITY, A N D P O P U L A T IO N
Intake provisions and policies
Statutory provisions governing commitments to these five insti
tutions offer further evidence of the lack of uniformity in the States'
approach to the problem of caring for their juvenile delinquents.
No two had identical regulations. No two had even the same age
limits for commitment. The upper age limit was 15 in two, 16 in
two others, and 17 in the fifth. The lower age limit was 8 in two, 10
in another, and 12 in the remaining two. The range was as follows:
California______________________________
8 to 16 years, inclusive
Michigan_______________________________ 12 to 16 years, inclusive
New Jersey_____________________________ 8 to 15 years, inclusive
New York______________________________ 12 to 15 years, inclusive
Ohio___________________________________ 10 to 17 years, inclusive
This range is fairly typical of the provisions found in other States.
Exceptions and qualifications in various statutes affect certain types
of cases at either end of the scale.
Statutes often contain clauses intended to prevent the commitment
of boys who are mentally or physically incapable of being benefitted
by the training offered. The great majority of counties lack the
clinical facilities or the expert consultant service which would be re
quired for the strict observance of those requirements. This is es
pecially true with respect to resources in the psychiatric and psychologi
cal field. Therefore in practice every State institution for delinquents
receives boys so far below normal mental level that they do not fit into
the general training picture. Some meet this problem more or less
effectively by transferring such boys, after examination and study, to
a more appropriate State institution. At times this transfer is ren
dered difficult through lack of the proper statutory authorization. In
each State transfer authority should be conferred upon the appropriate
officials, care being taken to safeguard the rights and the welfare of
the child and of society by the requirement that qualified experts
examine the child and certify his physical or mental condition and
needs.
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As most institutions for delinquents do not accept boys suffering
from communicable diseases, boys suffering from tuberculosis or from
gonorrhea or syphilis in an infectious stage are barred from admission.
Consequently full responsibility for seeing that the boy receives proper
and adequate treatment is left with the court which desires to commit
that boy. Because examinations made at the instance of the com
mitting court are sometimes hasty and superficial, boys may be
received at the institutions in infectious condition. The institution’s
medical officer then discovers the need of segregation and treatment.
Some institutions have the facilities necessary to provide the indi
cated treatment, others return the boy to the committing court for
treatment until he can be certified to have reached a noninfectious
stage. It would seem that, having accepted the case and discovered
the disease, the institution is under obligation to make sure that the
boy receives proper and adequate treatment to clear up the condition
that is barring him from the training which he has been adjudged to
need. There is grave doubt whether an institution is justified in
declining to accept a boy committed for treatment for a conduct
disorder on the ground that the boy is suffering from an infectious
physical disease. The institution would be meeting its responsibilities
better if it undertook to provide proper medical care for such boys
whenever hospital care could not be arranged elsewhere, or when boys
who were ambulatory cases were unable to make satisfactory ad
justment to the ordinary hospital regime. General hospitals cannot
provide the training activities that such boys need. In many areas
institutions that follow the policy of refusing infectious cases encounter
considerable difficulty in fulfilling these various obligations. Hospitals
for mental disease and institutions for the feeble-minded may be over
crowded and burdened with long waiting lists. Clinics and hospitals
for the treatment of venereal disease may be entirely lacking or hope
lessly inadequate. • Faeed with" such situations, the institutional
administration has a fine opportunity to work hand in hand with the
individual communities and with other State-wide organizations in
an effort to improve the public service in these respects.
Capacity and population
The capacity and the population of the five institutions on given
dates within the period during which each was visited were reported
as follows:
State
Michigan
New Jersey _
_ _________________
_ _____________________________________
Capacity
350
575
625
700
1, 213
P opulation 1
319
684
631
470
990
i On N ov, 9, 1931, in the California institution; on given dates in M arch 1932 in the other institutions.
See pp. 23, 61, 96, 144,188.
These figures recall the overcrowding at the Michigan institution
to which reference has been made on page 61. The New Jersey insti
tution was running close to capacity. The other three institutions
were not filled to capacity.
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A growing appreciation of the values inherent in individualized as
against mass treatment strengthens the belief held by many institution
executives that training schools for young delinquents should remain
relatively small in size. There seems to be general agreement that
no such school should exceed a capacity of 500 and that a population
considerably less than this figure can be handled much more effectively
for training and treatment purposes. But over against this belief on
the part of thoughtful executives is the inescapable fact that per
capita cost rises as population diminishes. This creates a problem
in public education of community leaders.
It will be noted that three of the institutions studied had popula
tions in excess of 500 boys. By 1933 these (in the order listed) had
decreased 31, 16, and 14 percent, respectively, Michigan having only
470 boys, New Jersey 528, and Ohio 852.4 According to the Ameri
can Prison Association, 10 institutions for delinquent boys in the
United States had an average population of more than 500 in 1932.5
Despite the handicap offered by an overlarge population, some of
these schools were making valiant efforts to operate on a basic policy
of individualized treatment. New Jersey, for example, has made
great strides in that direction.
,
The ratio between number of boys committed to four of the insti
tutions for delinquents that were studied and the total number of
boys of the same age in the respective States is given in the accompany
ing table, in which are shown the legal age of commitment to each of
these institutions, the State’s total male population oi the same age
group, and the number and proportion of boys committed— the latter
being the rate calculated per 10,000 male population of commitment
age. For the fifth institution— New York— such ratio could not be
computed owing to uncertainty as to just what counties should be
included in the total-population count. Although courts in all except
five specified counties in the State were authorized to send boys to this
institution, they were not compelled to do so and committed boys to
other schools when this seemed desirable. (See p. 135.)
L ega l age o f com m itm en t and c o m m itm en t rates per 1 0 ,0 0 0 bo ys o f the sa m e age com
m itted d u rin g a ye a r 1 to 4 S tate in stitu tio n s f o r delinquents
B oys com m itted
State
California..
M ich ig a n ..
N ew Jersey.
Ohio_______
Legal age of commitment
Ï2*years, under 1 7 . ..--------------------
M ale popula
tion of com
mitment-age 1
394,656
224,167
309,956
483,321
Bate per
N tìm ber
3
215
488
358
808
10,000 b o y s of
commitment
age
5.4
21.8
11.6
16.7
* Figures for year ended: California and M ichigan, June 30, 1931; N ew Jersey, Feb. 29, 1932, Ohio,
Dec. 31,1931.
s Population according to the 1930 census.
3 Includes recommitments.
< Figures as of October 1933 furnished b y the probation office of the Bureau of Prisons, U. S. Department
0i«JStat(fand National Penal and Correctional Institutions of the United States and Canada, com piled b y
the American Prison Association, N ew York.
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234
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
It appears that in California relatively few boys were committed
to the State school for juvenile delinquents. New Jersey stands next
with a rate a little more than twice that of California. Ohio com
mitted almost three and one-half times as many boys as California,
Michigan four times as many. No effort was made to discover any
explanation of this variation. That would make a study in itself. It
seems unlikely that California has actually fewer delinquents in pro
portion to total boy population. It seems far more probable that the
difference could be traced to the use of other methods of attacking the
delinquency problem in those States having the lower commitment
rates.
The striking difference between the rates for institutional treatment
of white and Negro boys is shown in the following table, which gives
the rate per 10,000 white and Negro boys of these age groups com
mitted to or in the four institutions for delinquent boys under discus
sion in relation to commitment:
L eg a l age o f c o m m itm en t and com m itm en t rates p er 1 0 ,0 0 0 w hite a n d N e g r o bo ys o f
the sa m e age com m itted d u rin g a ye a r 1 to 4 S tate in stitu tio n s f o r d elinquents
State, legal age of commitment, and race of boy
Male popula
tion of com
mitm ent age 3
Boys committed during the
year or in institutions on a
specified date 1
Rate per
N um ber
California (8 years, under 17):
W hite_______ _______________ .
Negro................................. ...................................
Ohio (10 years, under 18):
W hite............. ................................................
Negro_______________ ______ ___________
Michigan (12 years, under 17):
W hite...................- ...........................
Negro__________________ ____________
N ew Jersey (8 years, under 16):
W hite______________________
Negro.......... .......... .................................................
10,000 boys of
commitment
age
340,324
4,840
170
23
5.0
47.5
464,647
18,383
3 713
3 181
15.3
98.5
218,209
5,150
589
93
27.0
180.6
296,469
13,367
451
191
15.2
142.9
1 Figures for California and Ohio are for boys committed to institutions during years ended June 30,1931,
and Dec. 31,1931, respectively. Figures for Michigan and New Jersey are for boys in institutions on speci
fied date, M ar. 31 and Feb. 29, 1932, respectively.
J Population according to the 1930 census.
3 Includes recommitments.
As this table shows, in California the commitment rate for Negro
boys is almost 10 times that for white boys, and in Ohio it is more than
6 times as great. In Michigan the rate for Negro boys in the institu
tion on a given date was almost 7 times that for white boys, and in
New Jersey it was more than 9 times as great.
No field work was done to try to determine whether these figures
should be assumed to indicate a greater amount of delinquency among
Negro than among white boys or whether they merely indicate that
a higher proportion of Negro juvenile delinquents were receiving
institutional treatment. Police-department statistics on arrests al
most always show a figure for Negroes considerably out of proportion
to their number in the population. The rate of arrests per 10,000
population (15 years of age and over) in a period of 3 months in
1933, as reported by the United States Department of Justice, was
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RECAPITULATION AND COMMENTS
8.0 for native white persons, nearly 5.6 for foreign-born whites, and
25.0 for Negroes.6
Tabulation of the number and percent distribution of boys commit
ted, by age at commitment, reveals other similarities and differences in
State planning for the treatment of youthful offenders. The figures
are given herewith for the five institutions studied:
A g e at date o f c o m m itm en t f o r b o ys com m itted d u rin g a yea r
f o r delinquents
1 to
5 S ta te in stitu tio n s
Boys committed
Age at date of
commitment
Michigan
California
N um
ber
488
14 y e a r s .__
16 years and over
Age not reported__ .
215
100
17
8
10
21
22
45
69
60
2
N ew York
Ohio
Percent N um Percent N um Percent N um Percent
Percent
distri N um distri
distri
distri
distri
ber
ber
ber
ber
bution
bution
bution
bution
bution
215
Under 12 years.-
N ew Jersey
32
28
1
486
27
50
109
154
146
2
460
100
6
10
22
32
30
393
894
460
100
393
100
894
100
67
46
93
15
12
3
9
17
25
42
3
31
45
96
144
185
393
h
112
126
16
10
20
24
27
3
37
67
99
166
12
3
5
16
21
44
1 Figures are for year ended: California, Michigan, and N ew York, June 30, 1931; N ew Jersey, Feb. 29,
1932 (includes recommitments and 102 returned parolees); Ohio, Dec. 31,1931 (includes 86 recomm itm ents).
The New Jersey school received the heaviest proportion of cases
under 12 years of age, with New York a close second, followed by
California and Ohio, the latter having a low percentage. Michigan
admitted none under 12. On the other hand, the intake in both
Michigan and Ohio showed a large proportion of boys 16 and over.New York admitted none of these older boys, New Jersey relatively
few, and California only an exceptional case. California sends this
older group to a separate institution, the Preston School of Industry;
New Jersey had just opened a new institution offering training facili
ties for the group of cases intermediate between those in the school
studied (the State Home for Boys) and the Rahway Reformatory.
In New York some of the 16- and 17-year-old boys were sent to the
House of Refuge in New York City, and others were committed to the
reformatory at Elmira.
The provision of an intermediate institution between the training
school for the youngest group of delinquents and the reformatory is
believed highly desirable by some of the most thoughtful of the
experienced executives in correctional work. It serves several useful
purposes. Through this division the size of each institution can be
kept down to a group that can be handled effectively, and individuali
zation of study and treatment becomes more feasible. The educa
tional and recreational needs of boys under 12, boys in their early
teens, and boys in middle or late adolescence differ materially. Com
plications often arise in trying to work out a satisfactory training
program for a large mixed-age group. These tend to disappear when
the boys more mature in body and mind and more fixed in behavior
patterns can be kept separate.
• Division of Investigation, U.S. Department of Justice: Uniform Crime Reports for the United States
and Its Possessions, vol. 4, no. 3, Third Quarterly Bulletin, 1933, p. 18. Washington, 1933.
76870— 35------ 16
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
6. RECEPTION AND ASSIGNMENT PROCEDURE
Reception
Boys are usually brought to institutions of this kind by some officer
designated by the committing court. From the urban areas it is
frequently a probation officer who accompanies the boy. Very often,
however, that duty is delegated to a sheriff or his deputy. This is
especially true in the rural areas. Arrangements for the boy’s recep
tion at the institution vary considerably. At some institutions the
initial reception is by a special clerk or secretary who gives the accom
panying officer the necessary acknowledgment of the delivery of the
boy and who registers the newcomer. This means receiving the
commitment papers and noting such additional information as the
particular institution may require.
In some institutions a special effort is made to have the new boys
greeted by some member of the administrative staff. This first con
tact is considered extremely important. The staff member under
takes to give the boy, immediately upon arrival, some understanding
of the institution’s desire to be of help to him, to offer him opportu
nities for education and training that will enable him to make his way
satisfactorily and without conflict when he returns to his community.
At this first meeting with the people in authority at the institution, it
is considered essential for the boy to understand that the institu
tion officers desire to be his friends rather than his keepers.
In these five institutions and in other institutions that have been
visited more briefly there is some variation as to the next step in the
boy’s induction into the regular life of the institution. In order to
safeguard the health of the institutional population, some form of
quarantine of new boys is usually observed. This ranges all the way
from a few days of complete isolation in the institution hospital to
partial segregation by temporary residence in a receiving cottage,
whereby contact with the rest of the school population is kept at a
minimum.
Institutional staffs that recognize clearly the importance of the
boy’s own attitude toward the institution and its program probably
are taking a long step in the right direction when they undertake to
give the new boy the right point of view at the moment of his first
contact with the place in which he is to live for a considerable period.
To those who have been in close touch with prevailing practices in
dealing with juvenile delinquency it must be apparent that one of the
greatest handicaps to successful institutional treatment is the dis
trustful antagonism with which the boy approaches this new sort of
life. All too often the delinquent has had commitment to an insti
tution held up as a constant threat. He has been “ warned” that if
he fails to observe the conditions of probation under which he has
been permitted to return to his home after one or more juvenile-court
appearances, he will be sent to a place where he will learn what dis
cipline means. Unthinking social workers and probation officers
use this threat of commitment in a misguided effort to strengthen
their juvenile clients’ resistance to adverse influences in the environ
ments in which they are permitted to remain. Inevitably a boy gains
the impression that commitment to an institution means something
in the way of punishment of a distinctly unpleasant character. He
may even expect it to be very much in the nature of a prison. Cer
tainly under such conditions he is not likely to acquire the idea that
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RECAPITULATION AND COMMENTS
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it is a very special kind of school in which he must live away from his
family and his old associates but in which he will find friends and
helpers.
Likewise institutional commitment often is resorted to only after
every other method of adjusting the boy in community life has been
attempted and has failed. Through all those experiences a boy is
likely to build up an attitude that greatly magnifies the difficulty of
doing anything for him. His attitude may become that of a genuine
social outlaw; that is, he may feel that everyone is against him, that
everyone considers him simply a nuisance, that no one is interested in
him, and that he might as well take up the fight against society and
make it a thorough one; or a boy may have been thoroughly dis
couraged by failure after failure so that he has a deep feeling that it is
of no use to try to do what seems to be the accepted thing. Another
type may be the boy who has developed great personal satisfaction
in being the center of attention as a notoriously “ bad” case. He may
be looking forward to an enjoyable career in the spotlight as one of the
institution’s worst problems. These and other perverse attitudes with
which boys approach the institution are definite obstructions in the
way of successful work. Undoubtedly most institutions would agree
that it is the exception and not the rule for a boy to come to the
institution more or less voluntarily. Institutional commitment
seems to be seldom the result of a frank and friendly discussion with
the judge and the probation officers of the committing court in which
opportunities open to the boy through the institutional program are
made clear and in which his consent to going to the institution is
sought and obtained.
Since delinquent boys do approach institutional life very often in
an emotional state of fear, hatred, or active antagonism, the boy’s
reception and his experiences during the first few days become excep
tionally important. It would be infinitely better if the procedures
through which he comes to the institution could be devised to operate
in such a way as to send him to the institution in a cooperative mood,
anticipating interesting and profitable activities. Until that can be
done, it is highly desirable that his interest and his cooperation be
deliberately sought immediately on entrance.
Receiving cottages
In many institutions the receiving cottage differs very little in its
physical arrangements from the other residence units. In some it
is somewhat less attractive in its living arrangements and less effort
is made to have in it any resemblance to family life. In the institution
in California a very definite philosophy lay back of the provision of
less attractive living quarters in the reception cottage than in other
units. This philosophy was based on a belief that there was some
psychological advantage in having the boy feel that he had a respon
sibility for earning pleasant living arrangements, that by his own
conduct he had forfeited these to some extent, but that he could earn
privileges and more satisfactory living arrangements again through
his own efforts. In some other institutions it was felt that the receiv
ing cottage should be exceptionally pleasing and friendly in atmos
phere in order to help establish a cooperative attitude in the boy and
to help overcome the feelings of strangeness and the homesickness that
interfere with adjustment to the training program. There is probably
something to be said for both points of view. However, as in other
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
questions, it seems likely that the policy which would prove best for
some cases might prove less effective in others. In other words, even
in the reception procedure, if it were possible so to arrange matters, it
might be more effective to have the initial treatment based on indi
vidual characteristics and needs, dependent on previous experience,
previous conduct, and current attitudes.
As has been mentioned, there is usually a system of quarantine or
semiquarantine designed to prevent the introduction of communicable
diseases into the institutional group by boys coming in from possible
exposure in the community at large. It is accomplished usually by
considerable restriction of activities for the group resident at the
reception cottages. That is, for the most part these boys do not
participate in the general assemblies, and in some institutions they
do not attend school nor mingle in any way with the other residence
units.
The period during which a boy remains in the reception cottage is
occupied usually with making observations and examinations which
may form the basis for assigning him to a permanent residence unit and
to a school and vocational or work group. It is during this time that
he has his complete physical examination, his psychological test, and
his psychiatric examination, if the institution has such clinical service.
He is also interviewed by staff officers who are delegated to determine
certain of his characteristics or abilities either in school or in voca
tional lines in preparation for assignment. The average stay in a
reception cottage in complete or partial segregation varied from 2 to
6 weeks in these five institutions.
Some of the superintendents stated that they considered it vitally
important to have in charge in the receiving cottage an exceptionally
well qualified cottage officer, one who was an excellent judge of charac
ter and a keen observer, able to detect and to have some insight intothe problems of individual boys. They felt that this cottage officer
must be unusually skillful in handling boys and in helping them to
make the emotional adjustment which is sometimes very difficult.
First assignments
Three of these five institutions used the clinical method in making
first assignments to cottage, school, or vocational units. In the other
two schools these assignments were made by individual staff members
delegated for that purpose by the superintendent when he did not
himself make the decisions. At each of the three schools using clinical
methods (see pp. 25, 96, 146), there was great confidence in the
effectiveness of this procedure. Their experience indicated that it
was very useful to have the various points of view with respect to
an individual case brought together and considered in relation to one
another. It was felt that the final plan of treatment evolved for the
boys was often more appropriate than would nave been the case had
the different assignments been made by different individuals without
knowledge of the points of view of other staff members and without
joint discussions. Another point made was that this method tended
to direct the attention of all the leading staff members who partici
pated in the discussion toward the boy’s case as a whole instead of to
particular phases of his problem, and that this resulted in a much
better all-around program of treatment. Thus his cottage-family
life, his school work, his vocational work, and his general recreational
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239
and emotional life were all considered in relation to one another and
to his needs as evidenced by his physical and mental condition, his
previous experience, and his current conduct and attitudes.
Institutions that are able to operate in relatively small cottage units
(not more than 25 boys) are much more fortunate than those which
must maintain larger residence groups. A greater number of small
units makes it possible to maintain a greater variety in cottage groups
in relation to the characteristics of the boys. Consequently the per
sons responsible for assigning boys to residence units can give more
consideration to each boy’s particular characteristics and social needs.
The small unit reveals one of its greatest advantages when it is effec
tively utilized for the grouping together of types of boys and of cottage
personnel that seem particularly suited to develop congenial and
satisfactory community living and to bring out the best rather than
the worst in one another’s personalities. Institutions that must main
tain very large cottage units are badly handicapped in this regard.
Many of them find it impossible to do much more than classify by size
and age, with a little attention to previous experience in delinquency
or to mental level.
In making the first school assignment some institutions rely almost
entirely upon the boy’s statement as to what grade he had completed
in his home community, plus a little questioning in an interview by
the school principal. Others supplement this by the use of psycho
logical findings when available. The variation in possible school
assignment dependent on the simplicity or the complexity of the
institution’s educational program will appear more clearly in the
sections which discuss the educational program. (See pp. 253, 255.)
The industrial or vocational assignments seem to be made on a
variety of bases. They depend, of course, upon the fullness or the
paucity of the information available relative to the abilities of the
individual boy. Usually the boy’s own preference is ascertained and
some consideration given to it if it seems reasonable in relation to his
obvious abilities. In some institutions special vocational tests are
given. In others, attempts are being made to devise satisfactory shop
try-out systems for new boys. If this can be done in practical fashion,
it would seem to be a step forward in the development of the voca
tional work. Very little evidence was found of any attempt to can
vass the community to which the boy was likely to return, to deter
mine what would be the probable work opportunities open to him
when he was ready for self-support. That is, of course, a somewhat
difficult task, and under present unemployment conditions, with the
seeming uncertainty as to what employment opportunities will be, it
becomes almost impossible. Nevertheless, it does seem desirable that
some consideration be given to probable work opportunities in making
vocational-training plans for individual cases. The young man who
has more than one skill at his command has a decided advantage over
the person who is entirely dependent on one line of work. The needs
of the various shops that are carrying on a heavy maintenance or pro
duction program for the institution should never be permitted to
divert the assignment of boys from training for a vocation.
In some institutions care is taken to consider the boy’s needs for
development that will not be met by the help he will find in school
and vocational training. In these institutions plans are made which
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
insure that each boy will have an opportunity to participate in recre
ational or other free-time activities that will contribute to the growth
and development of his personality along normal lines. His partici
pation is not left to chance. His needs are very definitely analyzed,
and an attempt is made to meet them through the various activities
available in the institutional program.
In the institutions using the clinical method for making these first
assignments, it was usually part of the procedure to have the boy come
in after the decision had been reached and to explain to him in friendly,
informal fashion just what plans were being made for him. It was
considered important to have him feel that everyone there was inter
ested in his future and that every decision made had been reached
because they all thought this the best plan for him to follow at the
time. In schools where the clinical method was not used an effort was
usually made to convey this impression of friendly interest through
interviews conducted by the individual officers making the different
assignments.
7. THE BOY’ S LIFE IN THE INSTITUTION
Daily routine
Every institution which cares for a considerable number of boys
must of necessity follow an established routine for daily activities.
With slight variations in time the routines established at the various
schools were quite similar. In each all the boys rose at the same time,
dressed, breakfasted, performed such chores around their cottage as
were assigned to them, and then reported to the classroom, the shops,
or work assignments. Some boys belonging to squads that worked
in the dairy, in the kitchens, and on other assignments requiring early
rising had to go to work earlier than the rest of the group. At noon
there was usually a recreation period following the noon meal, then
all boys reported back to school, shop, or work. M ost schools re
leased the boys from shop and school and work assignments early
enough to allow a short period of free time before the supper hour.
Supper was fairly early in most of these institutions and was followed
by the longest recreation period of the day. The retiring hour varied
somewhat, being usually around 8, 8:30, or 9 o’clock. Some of the
institutions which cared for older boys permitted them to remain up
later than the boys in the cottages for the younger group.
This necessity of living by exact routine inevitably tends to create
an institutional atmosphere that in some ways hampers individual
development. On the other hand, it inculcates regular habits of eat
ing, working, playing, and sleeping. The fact that these things are
done by the boys en masse because it is the rule that they be done at
the same time instead of because they are good habits to acquire,
decreases the training value. However, the same type of routine
characterizes practically all boarding-school life and is an essential
feature of life in large groups. Much can be done to offset the me
chanical character of the routine by those in charge if they make sure
that every boy understands why the rules exist and why it is necessary
for the good of all of them that the routine be gladly and carefully
observed. The boys’ response will then tend to be voluntary in
character instead of purely mechanical.
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General atmosphere
In external appearance all these institutions visited were devoid of
prison characteristics; that is, the buildings were surrounded by no
walls or fences and no bars were in evidence. The types of archi
tecture used and the placing of the buildings affect to some extent the
impression which the visitor gets as to the character of an institution.
Some have more in common with private boarding or military schools
than with public correctional institutions. In general much care has
been taken to make the grounds attractive and pleasing.
Radical differences were observed as to the freedom of movement
permitted to the boys. In some institutions boys went about freely,
alone or in couples, apparently with no thought of being constantly
observed or under guard. In others such freedom of movement was
allowed to a very few “ honor” boys, and others moved only in groups
accompanied by an officer or a boy “ monitor.” The restrictive insti
tutional atmosphere was naturally conveyed most distinctly in those
institutions where the boys almost always marched in groups two by
two accompanied by some supervisor.
Although the psychological or emotional atmosphere of an institu
tion is so intangible that any appraisal of it must necessarily be
subjective, the character of such “ atmosphere” in each of the insti
tutions visited by representatives of the Children’s Bureau seemed to
be revealed more or less clearly by numerous small matters. The
facial expression of boys and staff, the tones in which boys and officers
addressed one another, the phrases used, the evidence or lack of evi
dence of sincere liking between boys and staff members, the absence
of spontaneous laughter, the droop of shoulders or the upright and
confident bearing with which boys walked about the grounds or
worked in shop or school—such things as these, plus the attitudes
expressed and those revealed without open expression, furnished a
basis for at least some measure of appraisal of institutional atmosphere.
Evaluated in such terms, the atmospheres of the various institutions
visited were very different.
If such a thing as the psychological or emotional atmosphere is
apparent to a visitor who spends a comparatively short time within
the institution, it must surely be very real to the boys who live in it
for months or years and must have a profound effect on the majority
of such boys. If that atmosphere is relatively free of restraint,
devoid of fear, imbued with friendliness and an invitation to natural
boyish gayety, encouragement to industry, and appreciation of effort
and accomplishment, it should be highly tonic in its effect. On the
other hand, if it is distinctly repressive, curbing boyish exuberance
through fear, bowing heads and painting sullen expressions on young
faces, echoing curt comments and harsh reprimands, or scoldings
and faultfindings, it is hard to see how it could have a beneficial effect
on the personalities of boys, particularly those already warped and
twisted by unhappy experience.
Cottage “ family” atmosphere
In most institutions operated on the cottage plan, it was found that
there was a desire to approximate a feeling of family life and family
relationship within each residence unit. As has been remarked
previously, this becomes practically impossible when the cottage
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population exceeds 20 to 25 boys. In larger units such family atmos
phere as is created begins to take on an artificial character, and as
the number increases it is strained to the breaking point. In all but
one of these institutions studied, the cottage personnel included a
man and wife who were supposed to stand in the relationship of
father and mother to the boys in their residence units, so far as that
was possible. In the fifth institution the woman on the cottage
personnel staff was considered a part-time worker and ranked as a
matron responsible for the housekeeping but haying practically no
responsibility for the supervision and guidance of the boys.
Since the principal objective of the institutional treatment is to
prepare boys for normal social living in a home in a community, too
much attention cannot be paid to the development of a semblance
o f home atmosphere in relation to the boy’s life in the institution.
This means the provision of pleasant homelike surroundings, also
exercise of the greatest care in the selection of cottage personnel, as
their character and their personal attributes are highly important.
They need to be men and women who understand and like boys.
They should have an appreciation of the needs of all the boys com
mitted to their care. They should be people quick to take advantage
of the opportunity to teach all boys who become members of their
cottage groups the reasons behind all the rules, regulations, and
customs that control cottage fife. One of the criticisms that seems
justified in relation to institutions is that they tend to suppress the
impulse to self-direction and to make boys dependent on routine and
regulation. This hinders instead of encourages the development of
personal and social responsibility. The chance to help boys to learn
to stand on their own feet is probably greater in the homely details
of cottage life than in any other phase of institutional activity, though
this fact is not always recognized.
The building up of a cottage spirit which will resemble family
loyalties can be a very good thing if not carried too far in a competitive
direction. The awakening of loyalties of this kind sometimes satisfies
a real hunger in boys who have had too little sense of belonging to a
family or other group in which they could take pride.
Arrangements for sleeping
In these five institutions, as well as in many other State institutions
more briefly visited, the dormitory system prevailed. There is a
division of opinion as to which is the more desirable, the dormitory
or the single-room system. The dormitory of course makes night
supervision easier. In the one school where there were some single
rooms there seemed to be a feeling that it was wise to have both types
•of housing available and to use them with discrimination for different
types of cases, and the newest cottage at that institution provided for
half of the cottage population in a dormitory and half in single rooms.
In three of these schools all-night supervision was given in all
dormitories. In one institution the only dormitories supervised were
those in which the more difficult boys slept. In the fifth the boys
were locked in the dormitory at night and the dormitories were visited
at regular intervals by night watchmen. There has been considerable
discussion of this question of all-night supervision, and opinions as
to its value differ. Some institutional authorities feel that this inces
sant watchfulness has not arparticularly good psychological effect on
the boys; others feel that despite the drawbacks it is essential, and
very few favor discarding it altogether.
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Arrangements for eating
As was the case in regard to the physical aspects of the kitchen and
dining-room arrangements, the social aspects among the five institu
tions revealed similar variations. In some dining rooms the silence
rule was observed during meals, in others boys were permitted to talk
in natural tones. With so many boys it is of course difficult to conduct
a dining room in informal fashion without running into difficulties in
the way of too much noise and too boisterous behavior. But it can
be done. When the boys eat in separate units it is easier to encourage
natural conversational habits and to give more attention to table
manners. This is one more place in which there is real opportunity
to give the boy an understanding of standards of living with which
he may have had relatively little acquaintance in his own home.
Sanitary arrangements
Little need be said in the way of comment on this subj ect. Obviously
the sanitary arrangements should be adequate to encourage a high
degree of cleanliness. The use of sanitary arrangements under the
guidance of the cottage personnel can be made to furnish opportunity
for teaching good personal hygiene and an appreciation of the care
of the body and the importance of such care to health, growth, and
happiness. The institution that merely has routine bath nights and
has boys bathe because it is the rule to do so, not because they want
to be clean and understand the values of cleanliness, is missing a fineopportunity to contribute to the development of personal habits and
standards that may mean a good deal to the boy in later fife.
Living-room and playground activities
Even the busiest daily routine includes some free time that usually
is spent on the cottage playgrounds when the weather permits and
indoors in cottage living rooms at other times. These hours free
from scheduled duties offer opportunities for developing self-direction
and provide an outlet for physical, mental, and emotional energy
in directions that may contribute to healthy growth of personality
or the reverse. These are the hours that are the counterpart of the
ones during which boys are most likely to get into difficulty when"
they try to make their adjustment after they are returned to normal
community fife. It is therefore highly important that careful atten
tion be given to teaching them how to make profitable and satisfying
use of this free time. This places a heavy responsibility on cottage
personnel that already bear a very considerable burden. One of the
institutions studied was developing a system under which assistant
cottage managers were expected to take the major responsibility for
leadership and supervision during this part of the boy’s day. In two
others a few students from nearby colleges were being utilized to
aid in this particular feature of the institutional treatment. Those
hours are full of opportunities for teaching in an unobstrusive way
all kinds of lessons in personal ethics, in subordination of individual
impulses and desires to the comfort of others, and in the general
personal control that is essential to successful social living.
It seems important to provide the necessary physical facilities for
activities that will be helpful in these directions. Each cottage needs
a playground of ample size so that boys may play games in small
groups, if they desire, without interfering with one another. The
use of the playground should not be too formal nor the activities too
restricted to permit choice according to individual likes in the way o f
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games and exercise. Each cottage too needs for the hours that cannot
be spent out of doors a living room that is attractive and as homelike
as possible, in which the boys may read, play games, or do any kind
of handicraft that appeals to them. Institutions using basement
playrooms should take care that such rooms are not used exclusively
for the purpose of keeping the regular living room an orderly “ show”
room that does the boys no good. If and when basement playrooms
are used they should be reserved for the rougher play which boys
like and which provides an outlet for pent-up energy during bad
weather that keeps them indoors. These rooms should be carefully
supervised at all times. The use of boy monitors for this purpose is
very inadvisable. The cottage atmosphere should be kept as near
to that of a large family of boys as possible. This means that a
reasonable amount of order is necessary but the normal boy talk and
laughter should be heard at all times. With the right kind of cottage
personnel the spirit of the boys can be so built up that it will not be
difficult to maintain such an atmosphere.
Miscellaneous arrangements
Some institutions make a special effort to provide at least a small
space in which a boy may keep his few valued private possessions in
safety. In others there is no such provision. It is a universal
characteristic of human beings that they do like to have, and as a
matter of fact they need to have, some degree of privacy and some
place in which to keep at least, a few personal “ treasures” . Boys
certainly are no exception to this rule; and, if possible, it would seem
desirable to provide individual lockers for personal possessions.
Smoking was forbidden at all times in all five of these institutions.
At some of them it was made quite clear to the boys that the principal
reason for the establishment of such a regulation affecting all ages
and for its strict enforcement was the fire hazard involved in per
mitting smoking among so many boys lodged or working in buildings
that were not entirely fireproof.
At some institutions boys are used in the capacity of monitors, the
extent of the practice varying considerably. At every institution
in which their use was noted, staff members expressed considerable
dislike of the system. They seemed to feel that it had more disadvan
tages than advantages, but all declared that with the limitations on
personnel, it was absolutely necessary to make use of boy assistants
in connection with many phases of group management.
Outside contacts
In all five institutions the boys were permitted to receive letters and
were encouraged (and in some cases required) to write to their parents
or to members of their immediate family at regular intervals. Both
incoming and outgoing letters were inspécted by staff members
assigned to that duty.
Each institution also permitted relatives to visit boys under certain
conditions and at established times, the rules for such visits not
differing greatly, except in details due to local conditions.
Some institutions permitted boys to go to their homes for visits.
These visits were often made a special feature of the Christmas
season. It was said that very little difficulty had been experienced
in connection with the return of boys from such leave. At other
institutions no such visits were allowed, different reasons being given
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for this prohibition. At none of the institutions was the impression
gained that these home visits were a part of what might be called a
“ gradual-release” system, such as is sometimes discussed in relation
to release from institutional supervision.
8.
PHYSICAL EXAMINATIONS AND MEDICAL CARE
Hospital facilities
Reference has been made in the section of this chapter on the
physical plant to the type of hospital facilities provided (see p. 218).
These of course necessarily differ with the size of the institution and
its accessibility to such facilities outside the institution itself. Every
institution requires sufficient hospital accommodations to provide for
thorough physical examinations, for the treatment of minor injuries,
and for care in slight illnesses. For an institution of any size it seems
desirable to have facilities to take proper care of all cases of acute
illness, with arrangements such that cases of communicable disease
may be isolated properly. Surgical work, either corrective or emer
gency, may be carried on in the institution, or arrangements for such
cases may be made at hospitals near by. Every institution should
have adequate provision, which should, of course, be made in the
most economical fashion consistent with the boys’ safety and welfare.
Hospital staff
Three of these institutions had physicians serving full time and two
had physicians on part time at the head of their medical divisions.
The two latter physicians were in private practice in nearby cities.
No general rule can be laid down as to which arrangement is the
better. The decision depends on a number of factors, such as size of
the institution, its location, and the availability of high-grade medical
men in adjacent communities willing to devote part of their time to
the institutional work. Generally the services of the directing physi
cian are supplemented by surgeons and specialists in various fields
who serve as consultants, either on an annual retainer’s fee or on a
case-by-case fee basis. M ost institutions need considerable service
from ear, eye, nose, and throat specialists.
The dental work likewise was done in some institutions by a dentist
who gave full time, in others by dentists employed only on part time.
Arrangement for dental service, like arrangements for medical service,
needs to be worked out in the most effective manner possible in relation
to the institution’s needs and the resources available. It is of great
importance that good dental service be provided.
These five institutions varied somewhat as to the amount and the
character of the nursing service. All of them employed at least one
registered nurse. In some institutions she was assisted by a practical
nurse and attendants or boy aids. Others had additional registered
nurses.
Physical examinations
On entrance or within a very short time after admission to these
five institutions— also a considerable number of other State institu
tions visited for other purposes than this study— all boys were given
physical examinations. The character of these examinations ranges
from a fairly simple clinical examination to one involving quite com
plete procedure including laboratory tests. Height, weight, and other
physical measurements are usually taken and recorded. Throat cul
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tures and a W assermann test are usually made in all cases and fre
quently the Schick test is part of the initial examination routine. In
some institutions urinalyses, blood-chemistry examinations, and basalmetabolism tests are made in all cases; in others these tests are done
only as indicated. If there is any suspicion of tuberculosis in an indi
vidual, most institutions arrange for an X-ray examination. Immuni
zation against diphtheria and typhoid fever and vaccination against
smallpox are frequently included as part of the initial routine.
In some institutions boys are periodically weighed and measured,
and a continuous chart of their growth and development is kept. In
others the boys are not reexamined until just before they are to be
released, unless they come to the hospital for some reason.
Corrective work
A varying degree of use is made of the findings of the physical
examinations. In practically all cases the medical record is available
to all officers under whom the boy may live or work, if they choose to
consult it. In some institutions particular effort is made to direct
the attention of officers under whom boys work, or under whose
direction they may indulge in active exercise of any kind, to any
physical weaknesses which would make undue exertion or special kinds
of effort unwise, if not unsafe. In some institutions all under-weight
boys are recommended for special diets, and each case is followed up
to make sure that the diet is followed and that it is proving successful.
There is great opportunity for fine health service of this description
in connection with boys committed to institutions for delinquents.
Many physical defects of a type easily remedied are discovered
through the entrance examinations, and the better-supported insti
tutions seek to do such corrective work as appears to be needed.
This means that funds are made available for proper glasses, that
appliances such as arch supports and special shoes can be purchased
as needed. The hospital records at many institutions show a con
siderable number of operations annually to remedy such conditions
as diseased tonsils, adenoids, and hernias. In those institutions that
make an effort to study each individual boy and to give him every
possible aid toward normal growth and development as a part of the
treatment looking toward readjustment, this attention to physical
defects and difficulties is considered an indispensable part of the
treatment routine.
Dental work
In institutions for juvenile delinquents the amount of dental work
provided at State expense varies considerably. In some instances
funds are insufficient to do more than provide the absolutely necessary
extractions and fillings. In others more complete care looking toward
the preservation of the boy’s teeth and toward putting his mouth into
first-class shape and keeping it that way is provided. In this con
nection a special feature at one of the institutions might be mentioned.
It employed a full-time dental hygienist who maintained an office
in the school building and who examined and cleaned the teeth of
all the boys at regular intervals, designating those who needed to
report to the dentist for treatments and making sure that they did
so report. An important part of her work was educating the^ boys
in the care of their teeth and the importance of such care to their
general health.
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Other medical care
In these five schools and in most of the other State institutions that
have been visited more briefly by Children’s Bureau representatives,
arrangements are made for boys in need of attention to see the physi
cian any day. Sometimes this is done at a set hour known as “ sick
call” , sometimes the service is operated like a dispensary and boys
may come at any time during certain daily office hours. In some
institutions it is the policy to make the cottage officers responsible
for sending boys to the physician or at least for giving them permission
to report to the hospital. In others there is a strict regulation that no
cottage officer may refuse a boy permission to go to the hospital. In
the latter the physicians wish to keep strictly in their own hands full
responsibility for the health of the boys. They believe that they them
selves should make the decision whether or not the boys need medical
attention. They permit no home remedies to be used in the cottages.
They require that even minor cuts be dressed at the hospital. In one
institution where this regulation prevailed it was stated that the school
had an exceptionally low rate of infections, even of slight character,
and it was believed that the close attention paid to even minor
injuries was very much worth while.
Each of the institutions had some regulations fixing responsibility
for following up each case which the physician decided needed further
treatment, until the case was dismissed by him as no longer needing
attention.
All five of the institutions in this study were fairly well equipped
to take care of acute illnesses. Inevitably an occasional epidemic,
particularly of influenza, overcrowds hospitals planned for ordinary
needs. In general it was the policy not to attempt to give care to
chronic cases. Effort was made to secure hospitalization for such
cases in their own home communities or in other State institutions
particularly designed to serve their special needs. Occasionally it was
found very difficult to arrange proper sanitarium care for boys with
tuberculosis. The institution hospital then made special arrangements
to give hospital care pending the working out of the boy’s return to his
own community for care.
Most institutions, as has been stated in the section on admissions
(see p. 232), are not required to admit and do not admit boys suffering
from venereal disease in an infectious stage. The better institutions
make very careful provision for giving continuous treatment to boys
suffering from syphilis who may be admitted after being rendered
noninfectious. Occasionally boys returning from parole are found to
be suffering from gonorrhea or syphilis in an infectious stage. They
must then be isolated until rendered noninfectious, and care must be
taken to continue treatment so long as tests indicate that there is
need. It is vitally important that when a boy still in need of treat
ment for syphilis is paroled, the parole officer make sure that treatment
is available for him in the community to which he goes, and that he
reports regularly for such treatments or periodically for necessary
reexaminations.
A special feature at one of the institutions that seems worthy of
mention here was the maintenance of a school nurse. (See p. 151.)
Her office in the school building was a completely equipped dressing
station in which, under the physician’s direction, she could take care
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of all first-aid work and to which teachers could have boys report if
they appeared to need some attention. This seemed to be a very
effective supplementary service in the field of medical care.
9. PSYCHIATRIC AND PSYCHOLOGICAL SERVICE
Clinical facilities
Four of these institutions had some full-time or part-time psychiat
ric and psychological personnel rendering diverse services.
In one institution a State juvenile-research bureau was supplying
one full-time psychologist for a population that at the time of the visit
was 990 boys, with 808 new admissions during the previous year.
When the institution was visited this psychologist did not have even
stenographic service, except as such duties were performed by boy
inmates detailed to his office. To a second institution a State research
bureau detailed a full-time psychologist and a psychiatric social
worker. The services of the other psychiatric or psychological per
sonnel of the bureau were available for special cases. This institu
tion had a population of 330, and its new admissions during the
previous year numbered 215. In the third institution one full-time
psychologist was carried on the school pay roll, and the mentalhygiene division of the State hospitals supplied a second full-time
psychologist and a consultant psychiatrist who visited the institution
once a week. The population of the institution when visited was 631,
and the previous year’s new commitments were 358. _ The fourth
institution had a psychiatric and psychological unit directed by a
part-time psychiatrist who was connected with a psychiatric clinic
in a nearby city. Its staff at the time of the visit included, in addition
to this psychiatrist, two clinical psychologists (one on part time), a
psychometrist, a psychiatric social worker, a second psychiatrist giving
part time, and a secretary. This school had a population of 470, and
the new commitments during the previous year had been 393.
Obviously there was much variation in the amount of clinical
attention which could be given to each new boy or to all boys under
treatment at these various institutions and to the relation of either
handicaps or abilities to their physical condition and hygiene.
Psychological tests
In all five institutions psychological tests were used to some extent,
varying from the routine of a group test for all new boys, with addi
tional individual tests for a very limited number of boys who made
poor showings in the group test, to fairly extensive use of various forms
of both group and individual tests. In the institution which had no
clinical facilities, the principal of the school gave psychological tests
to all new boys prior to their school assignment. It is obvious that
a single psychologist working with a large school population and a
heavy load of new commitments can give little time to individual
study through the application of special tests and to thoughtful
interpretations of individual responses to the tests given. On the
other hand, the institution which had the complete unit was able to
do a considerable amount of genuine study of the psychological
characteristics of individual boys as a basis for determining certam
needs in individual cases.
~
,;
Routine psychological tests, which must be applied and interpreted
in more or less wholesale fashion because of the great burden of work.
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may well be regarded as of doubtful value. Psychological measure
ments are by no means rule-of-thumb procedures. Unless utilized
with great care they can do harm rather than good. It is little short
of terrifying to contemplate the damage that may have been done
by labeling individuals as subnormal after diagnoses by inadequately
trained examiners. On the other hand, thoroughgoing, painstaking,
psychological analysis aimed at discovering exactly what abilities a
boy has and whether he has any special aptitudes can be a potent
force in shaping effective treatment plans. In the opinion of some
psychiatrists, far too much attention has been given to looking for a
child’s handicaps and far too little to discovering his innate abilities
and the relation of either handicaps or abilities to his physical condi
tions and hygiene; yet it is upon his abilities that constructive effort
to point him toward a hopeful future must be centered.
Psychiatric examinations
In the two institutions served by psychologists from a State research
bureau, psychiatric examinations were given only to certain boys
designated by these^ psychologists on the basis of their examinations,
or to boys whose difficulty of adjustment in the institution showed
special need for such examinations. In one State institution these
boys were sent to the State bureau and remained in its building for
a period of observation and examination. Then they were returned
unless the diagnosis and recommendations were for some other type of
treatment. The institution which had no clinical services sent indi
viduals suspected of being “ psychopathic” or “ psychotic” to one of
the State hospitals for examination and for recommendation as to
further treatment. In the institution which was regularly visited
by a consultant psychiatrist, the two resident psychologists designated
cases for special psychiatric examination. In the fifth institution,
which had a complete clinic, all new boys were made the subject of
psychiatric study by the clinic’s psychiatric personnel.
Thus in three of the institutions studied, only the boy rec
ognized as suffering from some serious mental condition or con
stituting a grave and especially troublesome behavior problem is
given psychiatric attention. In the other two institutions, and
especially in the one with full clinical facilities, all boys had the benefit
of some psychiatric service. Presumably this meant a more complete
understanding of the factors underlying their conduct problems and
some valuable advice as to types of treatment likely to help them
overcome their difficulties.
Personal histories
In two of the institutions relatively little personal history was
obtained concerning the committed boys. In one of these, if the boy
had been under observation at the separate institution operated by
the State bureau of juvenile research, a fairly complete history was
usually available. In the other three institutions a fair amount of
social history was usually on file, and in any case certain definite
efforts to obtain such histories were made. In all five States relatively
few of the committing courts sent anything like an adequate case
history with the committing papers. The story was buüt up through
interviews with the boy himself, through correspondence with the
committing court or other social agencies in his home community,
and through information obtained by parole officers who visited bis
home and his community shortly after his commitment.
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Here the institution has a clear-cut obligation. It must seek to
build up, through correspondence and through as much direct personal
contact as possible, the channels through which it may obtain the
information required if it is to perform its own function effectively.
In institutions which have no psychological or psychiatric clinics
through which this information may be sought the responsibility may
be assumed by some other staff unit or by a person qualified by train
ing and experience to know what data will be useful and from what
sources they may best be obtained in the communities from which the
boys come.
Application o f findings
Psychological and psychiatric examinations are largely waste
effort unless their findings are used in developing plans of treatment
that will help the boy make the adjustments necessary for return to
community life and for remaining there without further serious con
flict. The findings of course have considerable value in the field of
research, but their primary purpose should be to serve the needs of
the boy.
,
.
,
In three of the institutions such findings were of definite and
practical use through the clinical method for making treatment plans,
for making first assignments and reassignments, and for determining
the boys’ fitness for parole. Staff members at these institutions were
generally of the opinion that this clinical method was very satisfactory
and was much more likely to result in a good understanding of the
entire need of the boy than any plan which permitted different
parts of his program to be determined by individuals working in
complete independence of one another. Often, it was said, a staff
member who was considering the boy and his problem from some
particular angle obtained much help from getting a new point of
view for that particular problem through the observations of staff
members who were concerned with other aspects of the boy’s life.
In the discussions in these clinic groups recommendations for treat
ment were often modified or changed when the whole picture was
put together and examined critically by all the specialists on the
staff. If all points of view could be combined in one individual, the
same purpose might be achieved. However, such persons are rare.
Some are being developed in connection with the psychiatric work in
child-guidance clinics, but there is still so much to be learned about
the things which determine a boy’s attitude and his conduct that few
individuals are likely to be found who possess the great insight and
wisdom required if a decision as to a boy’s program is to be left in the
hands of one person.
. . . . . . . .
In connection with disciplinary problems within the institution,
the psychologists and the psychiatrists are being consulted more and
more frequently. Their value in that connection should be especially
notable, but caution should be used in seeking their aid, lest their
clinical and guidance usefulness be jeopardized by their coming to
be known in the institution as a punitive force. The whole question
of disciplinary method is one to which mental hygiene can and will
undoubtedly make a great contribution.
R esearch activities
A certain amount of research had been done at some of these insti
tutions, and more was contemplated. Considering the importance of
the problems here presented and the opportunities for study in a field
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that should have tremendous practical value in relation to the preven
tion of delinquency, by an effort to discover the forces that produce
it, the field seems to have been as yet relatively untouched. These
institutions lie ready to serve as laboratories in which the scientific
mental hygienist may find fertile fields for exploration in his search
for a knowledge of what the community needs to do to render the
maintenance of such institutions less necessary.
General comment
The past 20 years have seen the growth of the mental-hygiene
movement and its initial steps in connection with institutional treat
ment of young delinquents. Unfortunately, both inside and outside
institutions—speaking generally rather than with specific reference
to the institutions dealt with in this report—much of the early work
has been confined largely to so-called “ diagnosis.” The next step
was to follow up such diagnoses with recommendations for types of
treatment. At first the work consisted mainly of sorting out the
mental defectives or those suffering from mental disease, with conse
quent effort to have them committed to other types of institutions
than training schools for delinquents. The growth of child guidance
clinic service has given impetus to the study of the behavior problems
of all children. The difficulties so far have been in making sure the
treatment recommended is given a fair trial. Like the parent who
takes a sick child to the doctor, learns what is wrong with him, and
then fails entirely to follow the doctor’s advice, many communities
have not followed the recommendations of the psychiatric clinic. A
psychiatrist does not give a recommendation which is to be followed
regardless of consequences any more than a physician seeking to
heal some physical disease. The effects of the treatment must be
constantly reviewed. Individual reactions to a program vary greatly.
The result of regarding diagnoses and recommendations as though
they were verdicts ending a case instead of information on the basis
of which a case begins has been clearly pointed out in the recently
published study of 1,000 juvenile delinquents whom the Boston
juvenile court had referred to the Judge Baker Foundation for clinical
examination. This study revealed that the clinic had confined its
efforts mainly to diagnosis and to the initial recommendations for
treatment and that in a large proportion of cases the court and other
agencies concerned did not follow the recommendations or made some
modification in them.7
If the psychiatric clinic in the institutions is to be of definite practical
value, it would seem that four things are essential:
1. Sufficient properly trained and experienced professional workers
so that each boy may be given the thorough study that is required if
his difficulties are to be analyzed successfully. This means both psy
chological and psychiatric service of high quality for all cases, supple
mented by social case work for procuring adequate histories, as well
as such stenographic and clerical aid as is required for systematic
records.
2. A plan of operation which insures the use of all the findings of the
clinical study in connection with planning the various phases of the
boy’s institutional treatment and in making the preparations for his
return to his own community. The clinical service should be sufficient
J
Olueck, Sheldon, and Eleanor T .: One Thousand Juvenile Delinquents; their treatment b y court and
clinic, p. 258. Harvard University Press, Cambridge, 1934.
76870— 35------ 17
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FIVE STATE INSTITUTIONS FOR DELIN QU EN T BOYS
to’ permit review from time to time of the boys who do not make the
hoped-for progress under the initial treatment plans.
3. A system through which it is certain that the treatment plans
finally decided on m il be carried out in all their essentials. This
probably means that the clinic will need psychiatric social service. No
child-guidance clinic in a community can expect to operate with any
degree of success without psychiatric social workers. This is as true
in an institution as in any community. In the institution the boy
fives in a group more or less similar to a family. He has teachers,
vocational instructors, and other group supervisors. The clinic must
have the sympathy and understanding of all of those workers who are
daily affecting the boy’s fife if full use is to be made of the clinic’s
appreciation of the boy’s needs. It is this work of interpreting the
boy’s need, as scientifically determined by the clinic, to all the insti
tutional personnel who in any way associate with him or direct his
activities that is tremendously necessary and as yet relatively unde
veloped. Just as clinic workers in communities emphatically declare
that much of their most difficult work must be done with parents,
teachers, and employers, so it is undoubtedly true that much of the
work which would obviate many of the boy’s difficulties in institu
tional adjustment needs to be done with cottage officers, teachers, and
other group supervisors. In all this the psychiatric social worker can
be of great assistance.
This does not mean that all the boy’s previous misconduct must be
made known to any considerable number of staff members and dis
cussed with them. Nor does it necessitate the psychiatrist’s violation
of the boy’s trust through presentation of material obtained in confi
dential talks. Just how much must be divulged regarding a boy’s preinstitutional experiences in order that staff members may fully appre
ciate his problems and help him to meet them is always problematic.
No rule can be laid down. The decision will depend in great part
on the education, the experience, and the personal attitudes and ethics
of the staff members concerned, also on the skill with which the clinic
personnel can bring about intelligent, helpful attitudes without the
use of the full history. Each case will have to be handled on the basis
of the personalities involved. A summary of the discussion of these
problems at a recent conference of psychiatrists and psychologists
from juvenile training schools contains the following statement:
Clinics, as a new invention, have been welcomed with open arms in some insti
tutions, with the expectation that immediate and permanent solution of the
institutional problems would be forthcoming. And sometimes clinics have been
viewed with suspicion as meddling in a field where they had no experience.^ Both
receptions have hindered the work of the clinic, and in some schools the clinic has
taken steps to modify the attitude of the staff— to instruct them in the functions
of a clinic, its possibilities, and its limitations * * *. The importance of
educating the cottage parents in mental hygiene was remarked especially. The
clinic must realize that the cottage parents generally have more contact with the
child than the psychiatrist or psychologist has and they can help or hinder the
clinic’s plan of treatment according to whether or not they understand and
sympathize and cooperate with the aims and methods of the plan.8
4. A parole or placement service that will make intelligent use of
the clinical analysis of the individual boy in making and carrying out
the plans for the boy’s return to community fife.
One of the surest ways to discredit a method or a movement is to
claim too much for it. Like many another good movement, mental
* Butler, Louise H .: Third Annual Conference of Psychiatrists and Psychologists from Juvenile Training
Schools. M ental Hygiene, vol. 17, no. 2 (April 1933), pp. 331-332.
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hygiene is in grave danger of suffering seriously at the hands of those
who hail it as a panacea for all social ills. Its sincerest advocates
make no such claims; they urge its use, however, as one particularly
effective approach to the problem of the young delinquent— an
approach characterized by scientific objectivity, unhampered by
emotional attitudes and moral prejudices. It will attain its purpose
most completely when it so wins the confidence of the boys themselves
that they respect it, turn to specialized clinical help when in difficulty,
and recommend it to associates who appear to need such aid as they
themselves have received from a clinic.
10.
E D U C A T IO N A L P R O G R A M — C L A S S R O O M W O R K
The problems presented
Into the classrooms at these institutions come boys from a great
variety of previous educational experience. They have attended all
kinds of public schools from the simple 1-room rural school to the
highly organized institution in a metropolitan center. The boys enter
and leave the institutional classes irregularly throughout the year.
Many of them are badly retarded. (See the tables in foregoing chap
ters showing school grades by age, pp. 67,105,157,198.) Many State
institutions for delinquents receive boys of all gradations of mental
ability except the very lowest grade of the feeble-minded. In every
institutional population can be found boys presenting special educa
tional problems that may or may not have been previously recognized.
Reading difficulties are not at all uncommon.
A number of the boys are confirmed rebels against school and school
routine. The schools which they had attended failed to arouse their
interest or to provide the things that would satisfy their particular
developmental hungers. Many dull boys or boys of slow reactions
have acquired resentful attitudes and definite feelings of inferiority
when compelled to compete in classes with pupils much brighter and
quicker. Sometimes exceptionally bright boys have wearied of the
slow and dull routine and have become hostile toward school programs
that failed to give them sufficient activities to hold their interest. As
a consequence the institution for delinquents is immediately confronted
with the necessity of finding a way to change the b oy’s attitude toward
school work and educational activity in general.
The first step toward the solution of the problem is to discover each
boy’s educational need with special reference to such abilities as he
may have and to his probable environment and mode of life when he
will leave the institution. The services of the psychological and
psychiatric clinic can be invaluable here. The next step is to build
an educational program sufficiently rich in subject matter and in
diverse instructional media so that it will supply these things needed
to arouse the interest of every boy and to convert him from his attitude
of rebelliousness to a real interest in his school work.
An important need in every institutional program is to devise an
educational system that will permit each boy to progress at a rate
suited to his particular intellectual endowment, thus eliminating the
discouraging competition and comparison with boys much quicker
and superior in intelligence. A chance to enjoy a sense of achieve
ment and to be protected from the unpleasant emotional reactions
aroused by continuous defeat and failure is particularly important for
the dullest and slowest boys.
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School facilities
If the problems outlined in the preceding paragraphs are to be met
adequately the institution must have a school plant of size and equip
ment suitable for carrying on a fairly diversified educational program.
It must have a teaching staff highly qualified, not only by training
and experience but also by possession of certain personal endowments
that especially fit them to work with boys presenting unusual educa
tional problems. Institutions of this kind need teachers with a genu
ine liking for boys and a willingness to go to any length to help them
overcome not only their* educational difficulties but their emotional
ones as well.
In general, State institutions tend to follow the State compulsory
school attendance laws and to conform to the public-school curriculum.
This is of course essential, since the boys come from the public schools
and are to return to them unless they stay at the institution through
out their school-attendance years.
Observations indicate that most boys are released from school
attendance as soon as they have completed the minimum legal require
ment. This probably results in an educational handicap to some boys
who might have continued their schooling with profit if the right
guidance had been offered them and if the curriculum had been full
enough and flexible enough to meet their further needs.
Another essential is sufficient funds for high-grade teaching mate
rials, so that the institutions not only may have enough good materials
to work with but also may keep up with new and progressive ideas in
the teaching world. This is particularly noticeable in relation to the
amount of money that can be spent on various types of visual aids,
including the equipment necessary for the use of slides and motion
pictures in connection with classroom or vocational work. Some
institutions are fairly well provided with funds for such purposes,
others are not. A good reference library is likewise an essential for
first-class school work, but in some institutions the library facilities
are poor.
.
In many States the institutions for juvenile delmquents do not seem
to be utilizing as completely as might be possible the services of cer
tain other State educational agencies, such as the extension depart
ments of the State universities, the State libraries and museums, and
special consultants in State departments of education. Some institu
tions of other kinds do call on these other State agencies, sometimes
for special studies and advice, sometimes for fairly continuous service
of various kinds.
Meeting the problems
In these five institutions educational problems were being met in
a number of ways. The amount of study of an individual case pre
paratory to planning for the boy’s academic work varied considerably.
In some of them it consisted of little more than asking him what grade
he was in before committed, determining his age and his standing in
a psychological group test, and then placing him accordingly. In
others a rather intensive study of the boy was made, a number of
different types of tests being in use, any particular educational dif
ficulties he may have had were discovered, and his academic program
was made up with special reference to enabling him to overcome them.
The two schools that were using the contract system considered it
well adapted to the needs of an institutional population such as they
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were handling. It has certain distinct advantages. It makes pos
sible a high degree of individualization in education. It permits
rather easy correlation with vocational work. Lessons within the
same school grade can be arranged so as to suit the different mental
pace of dull, average, or superior boys. The dull boy may plod along
at his own rate of intellectual progress without feeling the sense of
inferiority that comes with classroom recitations when boys of all
degrees of intelligence are doing the same lessons at the same time.
The exceptionally bright boy can go ahead as rapidly as his interest
and his energy carry him. The system is peculiarly effective in rela
tion to the irregular entrance and exit from classes at all times of the
year.
There is always a need for ungraded classes in institutions of this
character. Some of the institutions studied have set up a consider
able variety of ungraded classes in an effort to meet the many con
spicuously different problems presented by individual boys. In some
of these ungraded classes teachers with considerable imagination were
doing a great deal of individual work. Experimentation in this field
by qualified teachers is highly desirable. In their work they need to
have available a great variety of teaching materials. It was interest
ing to note that in some of these schools provision was made for just
such experimental individualized instruction.
In one institution the classroom work was in two divisions, one
academic and one designated as manual education. In each division
the work of the different grades was going on. The academic division
was following the more or less conventional type of instruction, largely
through the use of text and reference books; the manual-education
division, planned particularly for boys classified as nonverbal types
by the clinic, made use of a great deal of visual material and hand
project work of various kinds. Thus the same general subject matter
was taught to the boys in both divisions, but through entirely different
instructional media and method.
Essentials
From the foregoing paragraphs it will be apparent that if an insti
tution for delinquent boys is to meet its full responsibility in relation
to educational activities, it must have adequate appropriations for
specially qualified personnel, for good modern classroom equipment,
and for an abundant supply of many different types of educational
material. The problems presented are challenging and difficult.
Many of these institutions' inmates represent failures, not of the
individual boys, but of the conventionalized school system into which
they have been forced and from which their personalities have suffered
definite damage. It is not an easy task for an educational unit to
undertake to repair the damage done and to win the interest of the
boys and make it possible for them to develop to the highest possible
degree whatever abilities they may have, be they ever so limited or
ever so superior in quality.
11. E D U C A T IO N A L P R O G R A M — V O C A T IO N A L O R P R E V O C A T IO N A L
WORK
From the beginning many of the State institutions for young
delinquents were designed to include industrial training as an impor
tant part of their program. For example, the statute authorizing the
establishment of the New Jersey institution in 1865 specifically pro
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FIVE STATE INSTITUTIONS FOB, D ELIN QU EN T BOYS
vided that the program should have the boys under care do regular
labor of mechanical, manufacturing, or agricultural character. (See
quotation from this statute on p. 83.) Many other States included
a similar definition of purposes in the statutes which created their
institutions for juvenile delinquents. The general wording of many
of these early laws, also some of the earlier reports from the institu
tions, show clearly how well established in the minds of the founders
was the idea that many of these young offenders committed their
delinquencies because they lacked education and possessed no knowl
edge of some useful trade through which they could make an honest
living. They needed “ to be taught to work.” There seemed to be
confidence at that time in the efficacy of agricultural and industrial
training as a means of deflecting boys from criminal careers. It was
the popular panacea of those days.
At present there seems to be much difference of opinion as to the
amount of definite vocational or trade training that can and should be
given in an institution of this kind, though no one doubts its necessity
in an institutional program. The questions are how that training
should be given and to what age groups and what types of boys.
Considerable difference in actual terminology in this field has been
noted among many institutions visited. Descriptive terms used are
“ manual training” , “ vocational training” , “ industrial-arts training” ,
and “ trade training.” These have different meanings, yet there is
some confusion as to their exact applications. No attempt will be
made here to enter into any technical discussion nor to establish any
exact definitions. Such comments as are made will be rather general
and directed to the ways in which some institutions have been seeking
to meet those problems.
The problems presented
In State institutions for juvenile delinquents may be found minors
all the way from 8 or 9 years of age to 18, 19, or 20 years of age.
This immediately raises the question as to how old a boy should be
before he is introduced to vocational work of any kind. As has been
remarked in the section on academic education, there is also the
problem involved in planning for boys of exceedingly different mental
endowment. (See p. 253.) This brings up at once the need for deter
mining, so far as tests of various kinds can analyze them, each indi
vidual boy’s abilities and his special interests or aptitudes. If a boy
expresses some particular interest, the next question that arises is
how much or how little he may know about the great variety of other
occupations that are open to boys at the present time. Institutional
workers find that many boys coming to them for care have very little
knowledge of occupations upon which they may base their choice. One
such worker commented on this point in these words:
He may have a vague idea that he wishes to be a mechanic but may not even
know the several trades by name, much less anything about the work, wages,
opportunities for employment, or social environment of such occupations. The
popular choice among the uninformed youth is the auto-repair and electrician
trades. Usually he has no real conception of these trades but chooses them
because they touch his life in some spectacular way. The great need for many
of these young people is sane counsel and an opportunity to come in contact with
some life activities suitable to them.9
* Shank, All An L .: M ethod of Developing M anual Skills through Industrial Arts Training.
ings of the National Conference of Juvenile Agencies, 1932, p. 87.
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Whatever trade training is to be a part of the boy’s institutional
treatment, one of its objectives, presumably, is to provide h im with
some skills that will be useful on his return to community life. It is
therefore highly advisable that something be known about the em
ployment opportunities in the region to which he will go when he
leaves the institution.
A difficulty often mentioned by the instructors in trade-training
«ourses at institutions is the relatively short period during which boys
remain under their instruction. They ask very seriously how useful
short-time training actually is in trades that usually require an
apprenticeship of 3 or 4 years. However, even those who ques
tion the practical value so far as employment on release is con
cerned often express a belief that the training has definite thera
peutic value in connection with the boy’s social adjustment, both in
the institution and in later life.
One of the problems that is as old as the institutions and that still
remains to be worked out to the satisfaction of thoughtful institution
administrators is how the maintenance and production work for the
institution can be done as part of the vocational training with a
proper balance between the performance of a reasonable amount of
work for the institution and the other kinds of vocational training.
Even when the welfare of the boy is the only criterion, a decision is
not always easy.
Training facilities
An institution for training delinquent boys, representing as it does
a simple community, constitutes an excellent laboratory for trade
training. Instructors commented that they found the boys liked to
do useful work and responded very much more enthusiastically to
projects in which actual jobs were to be done than to pseudo or
so-called “ made-work” projects. If this is generally true, then an
mstitution has a distinct advantage over shops that must depend
almost exclusively on made-work projects, in which work is done and
then repeatedly tom down to be done over again. The institution
plant can offer opportunity for real projects in a reasonably varied
field.
Facilities in the way of shops for trade training were found to differ
widely in the various State institutions. Many of them have been
unable to keep up, in their shops and their equipment and working
materials, with industrial progress of the past 2 decades. An insti
tutional superintendent of many years’ experience commented that
although training schools for delinquents were pioneers in the field of
mdustrial training, it had to be admitted that they have not been
able to keep step with modern changes and that the methods of
training had fallen short of the ideal requirements. He further re
marked that although he recognized the deficiency of the training
program in his own institution, he had been compelled for economic
and other reasons to be tolerant of a system which he recognized as
not meeting industrial conditions of modern times.10 Many other in
stitutional administrators make the same complaint. They have not
been allowed adequate appropriations to keep up with the mechanical
advances as the years have passed. Some institutions make a brave
1» Hickman, J£aj. Hanson B .: Value of Industrial Arts in the Training of the Juvenile Delinquent.
Proceedings of the National Conference of Juvenile Agencies, 1932, p. 74.
H
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fight for adequate support for developments in this field, and some of
them have managed to keep at least some of their shops reasonably
modernized.
The question of personnel in this field is important. It is a common
observation that many institutions operate their trade courses under
instructors who are efficient workmen in their particular trades but
who have no training or talent for teaching, and little or no conception
of what a well-rounded trade course should include. Many of them
are of course inherited from the earlier days when the conception of
trade training was merely that a boy be kept at work on maintenance
or production jobs under the direction of a foreman. Some of the
more outspoken institutional administrators recognize that they are
using as instructors men who would find it difficult, if not impossible,
to hold a job outside in the trade which they are teaching because
they have remained iu institutional life for many years without mak
ing the effort needed to keep abreast of developments in their own
particular lines.11 It is encouraging to note, however, that some of the
more progressive institutions are seeking to obtain for their trade
instructors men who have been thoroughly grounded in the trade
which they are to teach, and who besides have had definite training
for teaching. On the rolls of some institutions one now finds voca
tional instructors who are college graduates specializing in vocational
work and in some particular branch of it, also workmen taking courses
of instruction in a commendable effort to increase their knowledge and
improve their methods.
Most of the State institutions have considerable farm land as a part
of their training resources, and agriculture is emphasized. The extent
to which agricultural operations have kept abreast of modem develop
ments depends partly on the amount of money which the schools have
been able to obtain for the purchase of modern machinery and for
improvements in the treatment of their soil and the development of
their live stock.
A number of State agencies offer services that probably could be
utilized in the trade-training field, as well as in academic lines, to
greater extent than is realized by some institution workers. Among
these are the extension courses of State universities and the State col
leges of agriculture and mechanic arts, State departments of agri
culture, State libraries, and State museums. The publications, slides,
and films prepared by many of these can be obtained free or can be
borrowed. Federal agencies also have services that might be useful
to institutions, such as some of the bureaus in the Departments of
Agriculture, Commerce, Interior, and Labor.
M eeting the problems
There is wide variation among State institutions in the matter of
how a boy is assigned to a trade-training group. In some it is done
merely by having some member of the administrative staff interview
him, find out his personal choice, and— if the needs of the institution
warrant it— place him where he says he would like to be. Unfor
tunately, if the shop or place of his choice already has enough boys to
do the maintenance or production work for which it is responsible,
and if some other shop doing another sort of production or mainte
nance work needs boys, the newcomer must be assigned to this latter
shop in order that the essential work of the institution may be done.
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It is encouraging to note that many institutional administrators are
making every effort to get away from this necessity and to treat .the
needs of the boy as of paramount importance. In institutions with
that kind of attitude, more and more effort is being made to study the
particular individual with special reference to his abilities, any special
aptitudes he may have, and his personal interests. They recognize
that it is important from the therapeutic angle that no boy be assigned
to work which is beyond his capacity. Every boy needs to be placed
in projects in which he can achieve success with a reasonable amount
of effort and application. If a boy is slow, dull, and awkward, it is
all the more important to take care that he succeed in his first tasks
and that his every achievement be given cordial recognition by the
instructor. A growing sense of usefulness can be a potent factor in
bringing about an entire change of social attitude.
In this trade-training field the findings of psychological and psychi
atric clinics are exceedingly useful. By means of various special tests
the clinicians often discover special abilities of which the boy himself
had not been aware, the development of which can be of inestimable
benefit and satisfaction to him. In the absence of the professional
service of the clinic, much can still be done by vocational personnel
in connection with the study of an individual boy in relation to a
choice of placement for him.
Some institutions have made use of what is known as a “ general shop’7
or a “ multiple-experience shop” to explore a boy’s interests and possi
bilities. Such a shop includes small units of several different trades.
In these the new boy has a sampling experience and he is carefully
observed during the experimental period. Such a try-out serves two
purposes. It gives the boy a chance to discover in which one of
several trades he is most interested, and it gives the instructor an
opportunity to observe in which he shows the greatest aptitude.
Observation of many State institutions indicates that they lag con
siderably behind some of the more progressive city school systems in
their vocational-guidance work. Specialists in vocational guidance
seem not yet to have found a place on institutional staffs. Such
specialists should be able to give to these boys, who have found them
selves more or less baffled in their approach to responsible living, a
great deal of information about the occupations the modem world
offers to young people seeking a way of self-support. This would in
clude a discussion of the principal professions, the principal occupa
tions in the commercial world, and the primary trades in the indus
trial field. The boys would learn something about the conditions
under which they would be likely to work if they chose any one of
these occupations. They would leam something about the usual
hours, wages, hazards, and placement opportunities. They would
also leam something about the effect on their social life; that is, they
would be taught to think about the difference between working in an
agricultural occupation and living in rural surroundings, and living the
fife of a skilled mechanic employed in a great factory in an urban envi
ronment. Most of the boys in these State institutions have reached an
age at which they are ready to think about such things. The voca
tional-guidance worker who is skilled in his field can do much to
bring about a thoughtful attitude on the part of many boys toward the
question of what they really want in life. The effect on the boy of
this approach to the question of his trade assignment would undoubt
edly be highly tonic. If he is convinced that the members of the
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staff are sincerely and honestly concerned about his future career,
and that they desire to help him to make it as successful and as happy
as possible, this will inevitably have a beneficial effect upon his own
attitude toward this training period and toward his later fife. On the
other hand, if he feels that his trade assignment is not based on a
genuine desire to help him, but is due to the need to get certain insti
tutional work done or to make him work as a sort of punishment for
his former misdeeds, then the effect may be quite the reverse o f
beneficial.
It would seem that vocational guidance by people particularly
trained for such service might very properly have a place in these
institutions. Such service might appropriately begin with the group
of new boys during their period in the receiving cottage and the first
month at the institution. A second period of close contact between
the vocational-guidance worker and the boys might well come during
the month preceding release. This would be particularly true of the
older boys, who in most cases are going out to job placements.
_ This brings to the fore the question of the institution's need of prac
tical acquaintance with the placement opportunities in the communi
ties to which its boys are to be released. Unfortunately this is a line
of inquiry that has been relatively ignored. Parole officers usually
have a more or less general— but sometimes rather vague— knowledge
of the work opportunities in the communities in the districts in which
they work. Such knowledge is likely to be spotty and incomplete»
It depends to a great extent, of course, on the energy and the vision
of the various parole officers. Usually they are so busy with a mul
tiplicity of duties that they have no time to give to a genuine canvass
of work opportunities in their districts. So far as was observed, no
systematic study in this field was being made. With the develop
ment of an adequate employment service in all the States, much
information could be made available to institutions.
It is advisable that institutions frequently, seriously, and honestly
analyze their own programs in an attempt to discover to what extent
they are equipped to give genuine trade training. In the words of the
institution superintendent to whose remarks previous reference has
been made, “ Trade or vocational training offered by most of our train
ing schools for delinquents has been a misnomer." 12 In his opinion
what has been offered has been to a large extent merely training in
habits of industry and learning to do certain simple processes in par
ticular trades in connection with performing maintenance duties or
meeting production requirements for the institution. However,
a number of the more progressive, better-supported institutions
are gradually developing well-rounded, well-planned trade-training
courses for the principal trades which they are listing. In such
courses the boys are given opportunity to become acquainted with the
tools and the most modern machinery in use in that particular field»
They learn about the wide variety of materials and their physical
properties and relative merits and uses. In some trades they have
mechanical drawing in connection with their shop work as a part of
this study of the trade as a whole. They do actual practice work
appropriate to the particular subject which they are studying in the
general course. In institutions as at present operated there is a
gradation from such well-organized courses, designed to give a boy
u Ibid., p. 70.
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a rather general acquaintance with the whole trade, down to the
shops which are operated primarily for the benefit of the institution
but in which the boys are taught to perform specific work processes.
Apparently in many institutions the trend is toward a genuine empha
sis on the training aspects, even in some of the routine duties that are
performed, and attention is being focused more and more on the
benefits to be derived by the boys rather than on the benefits accruing
to the budget through the economic production of articles for institu
tional consumption through the use of unpaid boy labor. There is
certainly room for a great deal more such interest and emphasis in a
great many State institutions.
A problem that is occupying the attention of the entire educational
personnel at many institutions is that of correlating the academic
work with trade instruction. Different institutions are experiment
ing with different methods of doing this. In some places, particu
larly where a contract system is used in the academic school program,
the individual daily lessons which each boy has are made up so as to
present facts and problems that are directly related to the particular
trade in which he is interested. In other institutions courses known
as “ related subjects” are given, in which boys in certain trades take
academic courses that present subject matter and problems directly
associated with the work they are doing in the vocational course. In
one school that was visited a new scheme was being devised by which
boys taking certain well-organized trade courses did not attend aca
demic school but had courses known as applied mathematics, applied
science, also English and hygiene and social science in the vocational
school. In such courses the tie-up between subject matter in these
courses and in the trade and shop was very close.
As these efforts are still in the experimental stage, it would be un
wise to venture to predict what may prove to be the best solution for
the problem. ^ One thing only stands out: Those who are enthusi
astically working on these trade-course developments are certain that
a close correlation is essential and that out of all the experimentation
will come successful methods of instruction which will accomplish the
desired correlation.
No discussion of the way in which institutions are meeting the voca
tional problems of their boys would be complete without reference to
the place occupied by agriculture in the training program. Most
institutions conduct large farming operations, and the reports of many
State institutions reveal an emphasis on and a pride in farm produc
tion that is almost distressing in that it overshadows the report as to
progress made in guidance of the boys. In many States the majority
of boys sent to State institutions for delinquents do not come from
rural areas. They come from industrial centers. Although no thoroughgoing study has been made which would show, on a large scale,
to what extent boys trained in these institutions make use of the agri
cultural training which they have obtained, the general opinion seems
to be that not very many urban boys turn to rural occupations as
a result of their training, and that, consequently, skill in farm work
which they may have acquired proves of no further use to them on
release. . This does not mean that they have gotten no benefits at all
from their farm work. They may or may not have been greatly aided
physically and mentally by their outdoor work and their contact with
nature. This would be largely dependent on the type of leadership and
direction which was supplied by the staff members under whom they
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performed their various farm duties. If the spirit that pervades the
farm-work groups is such as to give them a sense of usefulness through
making a definite and practical contribution to the institutional com
munity life, then they probably derive some benefit from the experi
ence. It is difficult to determine how much emphasis is given to
making the boys understand how very much the fresh farm products
from the dairy, the vegetable gardens, the berry patches, and the
orchards really contribute to the health and happiness of the whole
school population. It would seem that some effort to supply this as
a compensating motive for boys who are not interested in making a
future career in farm life would be worth while. It could make a valu
able contribution to the building up of desirable social attitudes and of
a sense of responsibility.
In some institutions it was found that a recognition of the unsatis
factory character of the vocational work being done in the traditional
shop and farm organization had resulted in a request for vocational
surveys by persons from other State agencies or other educational
systems. The purpose was to obtain a careful analysis of what was
being done and what needs and opportunities existed in such an
institution, with definite recommendations as to what might be done
to develop a more effective vocational-training organization. Such
surveys, if made by persons properly qualified and possessing imagina
tion coupled with practical sense, should bring to the institution
many suggestions that would make for more effective treatment.
In general, then, it may be said that a trend has been noticed toward
the setting up of planned vocational courses. This is believed to be
highly desirable. Of course, it is recognized that there is a certain
amount of value in the performance of any kind of work under careful
supervision. Habits of industry, reliability, responsibility, and appre
ciation of fine workmanship and satisfaction in a job well done are
all contributory to that reeducation which is one of the institutional
objectives. But there seems to be beyond doubt some special value
in giving boys with good natural endowment a start toward becoming
really skilled workmen. It is admitted that no boy can be turned
into a skilled tradesman in the year or year and a half, or at most
2 years, that he is likely to remain in training. But he can be given
a live interest in some particular line of work and an elementary
knowledge of its materials, tools, and processes so that he can get
work in that line much more easily than if he had no knowledge^ of
it whatever. Moreover, he may become so interested as to receive
a definite objective which will be extremely helpful in his reestablish
ment in community life. In any case, most of the boys, on leaving
the institution, probably will be employed in mass production for
which little or no skill is required. An acquaintance with several
occupations should then be helpful to them when they seek
employment.
12.
P H YSIC A L E D U C A T IO N A N D A T H L E T IC S
General values
A well-organized, properly supervised program of physical education
and athletics has a definite place in institutional treatment. Boys
come to these institutions in all stages of physical development and
in all sorts of physical condition. Some are underdeveloped and
some are overdeveloped for their ages. Many of them have never
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been inside a gymnasium, and many have never had opportunity
to take part in organized play. It is not unusual to find boys who
actually have never taken part in group play of any kind and who do
not know how to play. The program of gymnastic work and general
athletics and sports should contribute notably to the physical developthe boys. The sports programs especially furnish a
healthy emotional outlet for boys who have a great deal of physical
energy and a liking for violent exercise and for games. Many athletic
directors in these institutions and many superintendents feel that
teamwork and competition between teams offer exceptionally fine
opportunities to develop cooperative attitudes and to teach principles
of good sportsmanship which will carry over into later life outside
the institution. They report that many boys to whom the principles
of sportsmanship are quite new nevertheless respond enthusiastically.
Iheu* response of course is dependent largely on the type of leader
ship that is offered and the consequent spirit and morale of the
teams and of the institution as a whole.
Facilities
Most State institutions for delinquents now have some provision
for gymnasmm work and for outdoor athletics. The facilities in the
different States cover a wide range. It is safe to say that, with proper
planning and with the right kind of personnel, every such institution
+i)Vf-S
benefit from the use of a well-equipped gymnasium an
athletic field, and outdoor playgrounds sufficient to permit the free
or organized play of all boys simultaneously.
These activities in an institution of any size at all require supervision
by adequately trained personnel. A high-grade athletic director who
is interested not primarily in developing winning teams but in seeing
that every boy has an opportunity to participate in healthy athletic
activities suited to his physical condition and his desires, is an impor
tant member of the staff.
Physical education
The provision for regular gymnasium classes in which all boys
participate and the character of the work done by such classes both
were found to vary widely in different institutions. In some places
formal calisthenics were a regular part of the program. In others
some formal gymnastic group drill was accompanied by apparatus
work and special instruction in tumbling, boxing, and similar activities.
In the more progressive mstitutions, in which individualization is
emphasized m all phases of the treatment program, this idea per
meates even the gymnasium. The instructors pay particular attention to every individual boy with a view to determining what kind of
activities will benefit him most. It is their desire to take the new,
awkward boy who feels lost and strange in such work and help him
gradually to overcome his difficulties and take his place in the class
work and the group play with distinct satisfaction and pleasure.
In some institutions the physical-education department kept regular
records showing the physical development and growth of each boy.
It was reported that the boys became very much interested in their
physical development and gained an appreciation of what health and
strength could mean to them and what things they needed to do or
to avoid m order to maintain healthy, strong bodies. Usually the
gymnasium is too inadequately staffed and the daily program of boys
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is too full to make possible individual work for correction of specific
physical defects. One director who was much interested in this
problem said he found it impossible to undertake that kind of work
because if it were to be effective he would have to have such boys at
regular hours every day and the institution program could not be so
arranged as to permit this.
Talks on personal hygiene, both to groups and to individuals, were
sometimes made a responsibility of the physical-education department,
though specialized work of this kind does not seem to be so generally
developed as might be desirable.
Sports program
Practically all modern institutions for boys have fairly well organ
ized programs in the different sports at the appropriate seasons.
Many of the larger ones have elaborately organized intramural
competition, especially in such sports as baseball and basketball,
sometimes in football also. Very often there is one team composed
of the best players in the institution, which plays games with outside
organizations.
One of the athletic directors expressed a belief that around team
membership should be built some definite character standards. That
is, he did not believe that athletic prowess alone should enable a boy
to win a place on a team that was to represent the school. He thought
this would have a very bad effect on other boys, since physically
strong and skillful individuals whom the other boys knew to be of
undesirable character might win coveted places on the team. There
fore he had set up certain standards of character and ethics which
team members must meet. This same director was strongly of the
opinion that in the development of an athletic program there was
grave danger that most of the attention would be devoted to the more
successful boys, who really needed help least. His idea of an institu
tional sports program was one in which every boy who desired to do
so might find his appropriate place.
Track events were popular summer activities in most places, and
certain track meets were regularly scheduled, usually of an intra
mural character only.
A few schools had well-constructed swimming pools which could
be used the year round. Others had only outdoor pools or pools with
out facilities for warming the water, which consequently could be used
only during the warm season. Swimming is popular with most boys,
and it would seem that a pool in which all might have a chance to
learn to swim and might swim regularly would be a valuable adjunct
in any institution for training boys.
Military training
Military training was given in two of the institutions included in
this study. It is also a regular part of the training program in a num
ber of other State institutions for delinquents. There is much dis
agreement among institution authorities and among others interested
in correctional work as to its value. The trend seems to be away from
the rigidity and regimentation which military training implies. This
is a rather natural accompaniment of the growth of interest in indi
vidualized as opposed to mass treatment. There seems to be a very
legitimate doubt as to how much benefit from their institutional
military training the boys will carry over into community life that is
free from military rules and regulations.
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O T H E R R E C R E A TIO N A L A N D E D U C A T IO N A L A C TIV ITIES
General values
Recognition of the therapeutic values in diversified recreational
activities was noted in a number of institutions. The boy was seen
in relation to all his needs, and the part that so-called recreational
activities could play in his wholesome and healthy emotional and
ethical growth and development was clearly apparent to thoughtful
staff members.
Boys with special musical or artistic abilities of which they may not
have been conscious, but the thwarting of which may have had a
definite effect on their cnaracter, were said to have responded amaz
ingly to opportunities for musical or artistic expression that won their
attention. Through some of these activities boys were introduced to
an utterly new appreciation of sound, form, color, and rhythm. They
were given a new sense of values and new standards as to what things
might be worth working for in life. When their interest was thor
oughly aroused in some particular line in which they desired intensely
to become proficient, the question of their use of free time was largely
solved and dangers inherent in an excess of energy and the absence of
a wholesome objective were obviated.
Musical training and activities
Music was brought to the boys hr most institutions through two or
more channels. The radio provided an opportunity to bring them
good music as well as to keep them in touch with popular airs. Reg
ulation of the radio differed in different places, being centrally con
trolled in some institutions and left entirely to cottage officers in
others. Its contribution to the boys’ development obviously depends
on the way in which interests and tastes are unobtrusively but skill
fully cultivated through the kind of programs to which the boys were
encouraged to listen.
One of the other principal channels through which music comes to
boys in an institution is the maintenance of their own bands and
orchestras. Of course the number of boys that can participate in
these two groups or that have the talent and the desire to do so is
limited. Some institutions have, in addition to the band and orches
tra work, individual instruction for boys with talent in voice, piano,
or other musical instrument. Some also have glee clubs or choruses,
and in many of them group singing takes place at various assemblies
and is popular.
Dramatics
Dramatics and pageantry have a place in institutional programs.
In some this work is more or less occasional, and no particular emphasis
is given to it. In others special personnel devote full time to creating
opportunities for needed self-expression for boys who have a talent
for dramatics or some interest in dramatic work. One such staff mem
ber was enthusiastic about the therapeutic values of this particular
line of activity. Practically all the boys under his direction had an
opportunity during the school year to take part in a “ show” if they
wished, doing anything from taking a leading or a minor part to help
ing build and plan the scenery or make the costumes. His aim was
not to produce a finished theatrical number but to give a needed
emotional outlet to the boys who participated.
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Motion pictures
Few State institutions were entirely without apparatus for showing
motion pictures. Periodic showing of feature and short-subject films
was usually a part of the recreation program. Some schools were
handicapped by not yet having funds for the purchase of equipment
for showing talking pictures. It is increasingly difficult to get silent
pictures that have any popular appeal. Responsibility for selection
of the films was usually delegated to some staff member, who presum
ably obtained as much information as possible about the available
films and chose those most likely to interest the boys and least likely
to contain objectionable subject matter or scenes. This form of enter
tainment was reported to be very popular with the boys. Usually
the entire population of the institution attended the motion-picture
show, except those who were denied the privilege as a disciplinary
measure.
Reading
In some of these five institutions, and in many other vState institu
tions that have been visited, greater efforts to develop better library
service might be worth while. It has been pointed out that in both
academic and vocational work it is highly desirable that a sufficient
number of good up-to-date reference books be available. At this
point, however, attention is directed especially toward the opportun
ities for developing an interest in reading as an enjoyable free-time
activity, through the provision of books and magazines of suitable
character. It was observed that very few institutions were able to
affoid the services of a well-trained librarian who could devote full
time to building up library service and stimulating library use. Since
funds for the purchase of books are almost invariably quite limited,
it is vitally important that the money be made to go as far as possible
in obtaining the kind of books that will be constantly in demand.
When the library has been well stocked, it is necessary that a simple
but effective system for circulating the volumes and the periodicals
be devised and maintained. Books may look well on shelves, but
they serve their true purpose only when in circulation.
In institution fife there is opportunity to create an interest in
reading which, once awakened, may grow into a habit that will be of
great benefit throughout the boy’s life. Many of the boys who come
to these institutions are found to have had little or no interest in
reading as a satisfying, pleasing experience. Many of them know
little or nothing of the possibilities for intellectual and emotional
satisfaction to be derived from reading. Responsibility for definite
attention to this kind of service should be placed on some member or
members of the staff. If it cannot be assumed by a full-time trained
librarian, then some other staff member should be delegated to carry
it as a part-time duty. The best results probably will be obtained if
an effort is made to enlist the aid of other staff members, especially
teachers, trade instructors, and cottage personnel. Teachers have an
opportunity to open a new world to their pupils by revealing how
they can enrich their school study through supplementary reading.
Both teachers and cottage officers can do much for individual boys
through studying their interests and discovering for or with them
avenues of exploration which may arouse their curiosity in such a way
as to bring a completely new form of recreation into their fives. Indi
vidualized guidance in the matter of reading may lay the foundation
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for future personal development of considerable significance. Acquaint
ance with fiction of wholesome character can give great satisfaction
to the boy who is unable to bring into his own fife the adventure that
he craves. Outside the field of fiction there is a wealth of reading
matter for the boy who may find some hobby to claim his eager
interest and to keep both mind and body active during some of his
free time. The library-extension services in such States as have them
can give a great deal of help to institution libraries and librarians.
Boy Scout work
In three of these institutions Boy Scout work was well developed,
each institution having a number of troops with very active programs.
One of the remaining institutions had only one troop, and the other
had none. In those institutions in which there was an extensive Boy
Scout program, staff members expressed a belief in the very consider
able benefits to individual boys from their participation in Scout
training. The appeal is to the younger boys, as is true outside of
institutions.
The Scout organization within the institution provided a great deal
of activity for a boy’s free time. In many cottages, especially during
winter months, the Boy Scouts spent many of their evening hours
studying and practicing for Scout tests. The Scout activities offer a
channel through which boys may lose some of their feeling of being
set apart and cut off from the outside world. These institutional
troops were accepted as part of the national Boy Scout organization.
Those in some of the institutions participated in various events with
outside troops. District Scout officers visited the institutions and
took part in their councils, so that the boys got a definite sense of
relationship and of belonging to the great boy group that constitutes
the entire movement.
This very sense of belonging is one of the things that requires very
tactful and delicate handling when a boy is ready to leave the insti
tution. If he leaves it at an age when he is still keenly interested in
Scout work, then it becomes desirable, if possible, to have him affiliated
with a Scout troop in the community to which he goes. In some cases
this constituted a serious problem when Scout work in institutions
was first begun. It still presents many difficulties in connection with
certain cases. A parole officer who is making the plan for such a boy
when he is to be released investigates the opportunities for Scout
affiliation in the community to which the boy is going, and if he can
find a troop in which the boy will be accepted wholeheartedly the
problem is solved. Unfortunately, social attitudes being what they
are, there is often reluctance on the part of a Scout troop to accept
a boy with an institutional commitment behind him. The boys
themselves may not object, but the scoutmaster may know that
parents will, and that even if they outwardly accept him, situations
will arise in the troop which will make the boy unhappy. In some
ways it would seem that such an experience following upon the happi
ness which he had found in Scout work at the institution might tend
to create a sense of disillusionment and a bitterness that would be
highly destructive to the boy’s morale and to his consequent social
adjustment.
If the Boy Scout work within the institution has the enthusiastic
leadership of men of integrity of character and warm human under76870— 35------ 18
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
standing, and if the transition from institution troop to community
troop can be made without any disturbing incidents, participation in
the program certainly will be of very great benefit to these boys.
Other organizations or clubs
Some schools have developed units of other boys’ organizations,
such as Sea Scouts, Rangers, and similar organizations. Sonm have
very special clubs peculiar to their own institution and not affiliated
with any outside groups. For most boys of these ages there is a
natural satisfaction in this club life. The tendency of boys to form
ilgangs” everywhere is evidence of this common social craving, par
ticularly during the adolescent period. Any grouping of boys who
already have, or in whom there can be developed, mutual interests
in specific activities toward wholesome objectives, is undoubtedly a
useful part of the treatment program. These group loyalties supply
something that satisfies one of the boys’ emotional needs during this
period of development.
H obbies and handcrafts
During the months when outdoor play is relatively limited, there
is need for indoor activity of diverse kinds. Some institutions have
sought to meet the boys’ needs in this respect through the develop
ment of interest in many different kinds of hobbies and a certain
amount of handcraft work. Cottage personnel supply direction and,
stimulation in these fields. Much help can be given to them in their
efforts to develop this type of activity by some one staff member who
either is already thoroughly familiar with the field or who makes it
his business tq become acquainted with its many possibilities and with
successful enterprises of this kind in other institutions or in other types
of educational or recreational organizations. In such work much
eager, restless energy can be directed into channels that not only will
render it harmless but will definitely contribute to the building up of
certain strengths in each boy’s personality. Overabundance of such
natural energy, when it does not find permissible outlets, is likely to
result in broken rules and regulations and lowered morale; this inten
sifies in the individual boy the antisocial rebellious attitude which
institutional treatment is presumably trying to help him conquer.
Outings
Some of the more progressive institutions have been developing
more and more opportunities for outings away from the routine insti
tutional life for the boys who are suitable for such privileges. In
some cases these have taken the form of Scout camps to which the
various Scout troops go for a summer outing. Such attempts were
not limited in all cases to Boy Scout members but were open to cottage
groups and other unit organizations within the institution. Sometimes
all-day hikes or other types of excursion formed a part of the institu
tional program. It is believed that recreational activities of this kind
that tend to break down the boy’s shut-in feeling, occasioned by com
plete restriction to the institutional community, are valuable. Sooner
or later he is going to be expected to resume his place in the community
as a responsible individual. Therefore any activity that gives him
some responsibility for his conduct, that takes him away from the
institutional routine, and that permits occasionally even a limited
amount of self-direction should contribute to his final adjustment.
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Supervision and leadership in the recreational field
In many communities there is growing recognition of the contri
bution that is made to community life, particularly to the normal
development of its children and young people, by community pro
vision for supervision and leadership in connection with the use of
free time. A similar appreciation is noted in some institutions. It
is beginning to be recognized that what a boy does during his non
school and nonwork time is of vital importance to the growth of his
personality. Consequently there is a growing tendency to provide
friendly guidance and leadership in this field instead of leaving all
recreation more or less unplanned, haphazard, and without any
particular objective.
In this connection it should be noted that there is a real problem
involved in the matter of recreational supervision and planning.
Some thoughtful executives feel that there is a tendency toward too
much planning, too much supervision, too much standardization.
They believe that there is danger in not leaving enough freedom for
individual preferences or original ideas and initiative. They believe
that compelling all children to participate in specific games or activi
ties may be just as harmful to certain individuals as would be complete
failure to participate in any play.
The ideal institutional program would probably center in some one
person, preferably a trained recreation worker, responsible for the
development of a diversified program of recreational activity. Until
it is possible to employ a trained person for this work better results
probably can be obtained in many institutions by delegating respon
sibility for the development of leisure-time activities to some one
staff member, or perhaps to a staff committee. The best program
will be one that will not compel participation of individual boys but
will offer to them opportunities which will enlist their interest and
make eager and voluntary participation universal. There should
be ample opportunity for choice in leisure-time pursuits if the boys
are to gain experience that will influence their selection of wholesome
interests after they have returned to community life.
Such a program presupposes the giving of considerable individual
attention to all boys, especially to those who obviously have had no
opportunity to discover or satisfy their particular recreational interests
or needs. Such a program would also maintain a nice balance between
forms of recreation that are almost purely passive and those that
involve active participation. The object would be to get every boy
into some activity in which he could achieve enough success to give
him that sense of accomplishment and to win him that social approval
that contribute to wholesome growth and development.
The inevitable increase of leisure time through the shortening of
work hours in the industrial and commercial world makes this part
of the training program in institutions for delinquent boys of much
greater relative importance than it has been in the past. Always it
has been in this free time, when the boy was not in school or at work,
that he was most likely to drift into activities that got him into
difficulty. Therefore, help in making a wise choice as to the way in
which he would spend that free time was always important. Presentday developments in relation to employment and working hours
merely make such training of relatively greater significance. Insti
tutions that are attempting to keep abreast of the times and to face
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squarely the problems their boys are to meet on release will give moreand more attention to this problem of building up within each boy
certain habits and interests that will safeguard his use of free time
when he returns to his own community.
14. RELIGIOUS INSTRUCTION
In all five State institutions especially studied, definite provision was
made for holding religious services and for giving a certain amount of
religious instruction to all the boys. This is also true in all other
State institutions for delinquents that have been visited by represen
tatives of the Children’s Bureau. Religious instruction is generally
held to be a necessary part of the reeducational process.
This usually means that an institution employs full-time or parttime chaplains for their Catholic and Protestant boys. Obviously
it is not possible to provide chaplains for each of the Protestant
denominations. Therefore, the Protestant services were for the most
part undenominational. Some special arrangements are often made
so that Jewish boys may receive instruction from members of their
own faith and may observe their prescribed fasts and feasts.
Sunday services for both Catholic and Protestant boys were almost
always a part of the institutional program. These usually included
both Sunday school and church services. Some were supplemented
by special young people’s meetings, in which case young people’^
societies from adjacent communities sometimes participated.
In some institutions, particularly where full-time chaplains were
employed, religious instruction included courses in Bible study at
certain hours during the week, either in connection with the regular
school program or wholly independent of it. In some institutions
chaplains undertook a great deal of individual work with the boys,
especially with the newcomers. These efforts seemed to be directed
toward the creation of a genuine friendly relationship between the
boy and the chaplain, in the expectation that the boy would turn to
him for advice and for social as well as spiritual guidance.
So far ds could be discovered, there has not been any clear-cut
analysis of the place that religious workers should occupy in an insti
tutional program. Neither was there observed any indication that
the positions have been filled by persons who have had any special
training for work of this description. Successful workers seem more
or less to have worked out their own programs independent of training
for the job. A careful study of the work of chaplains in such institu
tions as these and of the range of opportunities for service might
result in some suggestions that would be highly beneficial. In addi
tion to setting forth a clear analysis of what chaplains in the institu
tion are doing, or could do, such a study might seek to determine
whether or not special courses of training for such services should be
offered in theological seminaries, and, if offered, of what they should
consist.
A wish for something of this kind was voiced by a reformatory
chaplain in these words:
I think that this work should properly begin with our seminarians * * *.
Of course if we desire to become preachers, at the end of our college or university
career there comes the three years of seminary work, and I have often wished
since I got out into the work that another year might be added to that, particu
larly to give us day after day regular clinics in how to do this kind of work. They
send us out full of ideas, or with a head full of knowledge, but so often they fail
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•to tell us how to apply it. We come up against situations and troublesome things,
and we do not know because we have never been up against such a thing before.13
a _^J10tliei; reformatory chaplain has made the following statement:
Our service to them must be more than a gesture to satisfy our sense
•of decency and to make them think we have something they have not.
We cannot create hunger in them for what we have unless what we
have satisfies us. Some definite, constructive program must be under
taken which will kindle hope and ambition in human hearts.” 14 This
chaplain was voicing his recognition of the fact that in these boys,
particularly those who are sent to institutions during the adolescent
period, a real hunger exists that is not a physical hunger and that has
in it elements beyond those ordinarily characterized as mental.
A modem psychologist pays tribute to this need in these words:
It is sometimes implied in discussions of adolescence that the modern youth
has no religious problems, but those with a wide acquaintance with boys and girls
will scarcely agree. It is true that many of the old religious problems no longer
have a meaning for the average adolescent, but he is just as much under the neces
sity of coming to terms with life as he ever was, and that, after all, is the essence of
religion. He is not so much concerned with heaven and hell as with his place in
the universe; the meaning and purpose of life, whence we all came, and whither
we are bound are still questions of paramount importance to the adolescent boy
even though he may not phrase them in this manner. The religious attitudes of
devotion to a person or a cause, though they may not so often express themselves
through church activities, are just as frequent as they ever were; and the yearning
^ .h ig h e r things— the longing for something only vaguely sensed, for experiences
which lie outside his grasp— is probably present in every adolescent at some time
or other.
We are living in an extroverted society, and even in the churches the religious
training that we give our youths today is more apt to put the emphasis upon the
extroverted side. Guilds, leagues, and societies, activities of all sorts, fill up the
program until the inner needs are often crowded quite out of sight. But it is
just these inner needs that are very strong at this period. The load of guilt,
conscious or not, that practically every boy carries; the need for reconciliation,
himself right with life, which he feels in the way of unrest and dissatisfaction with himself, the longing for sympathy and understanding, for contact
with a power greater than himself that is “ mighty to save” — these are the things
tor which the older religious experiences offered an outlet. The necessity for
coming to some sort of terms with these inner attitudes is just as urgent as it ever
was, modern youth may try to drown the recognition of them by more and more
activities, by gay parties, by noisy talk, or by an attitude of cynicism; all too
often he grows into maturity with these inner needs still unrecognized, with the
feeling that m some way or other life is cheating him, that he has missed some
experience that was his due. In the noise and confusion of modern life in its
-emphasis upon more and ever more activity, are we not in danger of robbing
youth of some of its most vital experiences? In our scientific zeal and our em
phasis upon the factual side of life, are we not in danger of forgetting that the
•emotional life of adolescence is its most important feature and that it needs other
outlets than baseball games, jazz, and the movies? The boy himself is apt to be
impatient with religious forms and ceremonies, with set rules of conduct and
theories of life. He knows instinctively that religion means something more
than this.15
'
Aii institutional program that neglects to take account of these
needs can hardly be considered to be be completely fulfilling its obli
gations. Religious work is believed by many persons to be one of
the ways in which the unhappy, discontented delinquent may be
helped toward the establishment of such ideals of personal conduct
as will enable him to avoid further social conflict and to achieve a
Y>alue of Ethical and Religious Training in the Process of the Rehabilitation of
the Juvenile Delinquent. Proceedings of the National Conference of Juvenile Agencies, 1931, p. 53.
•tv,»
9 ’ E"
of ^ ellF10US Instruction in Stabilization of the Delinquent. Proceedings of
the National Conference of Juvenile Agencies, 1932, p. 128.
^
8
u Richm ond, Winifred V .: The Adolescent B oy, pp. 20&-208. Farrar & Rinehart, N ew York, 1933.
-thl
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mode of life that will bring him an enriched experience and a measure*
of content. Through religious instruction, many sincere workers
believe, boys can be given a sense of spiritual values and an appre
ciation of certain ethical principles that will be of inestimable value
to them. Insofar as the object of religious instruction is this sound
building of inner strengths in relation to responsible social living and
is not primarily the stimulation of an ecstatic emotional experience,
almost certain to be temporary in character, it undoubtedly makes
a considerable contribution to the reeducational process.
Very rarely in institutions has there been found a systematic
approach, through the efforts of the institution chaplains, to theproblem of the boy’s religious life after release. It would seem that
if a point is made of creating in the boy an interest in religious rituals
or affiliations and a dependence on them, then it is quite necessary
that steps be taken to make sure he will have the benefit of similar
aids in the community to which he goes. Some institutions have a
formal requirement that boys attend church while on parole and that
they send in reports signed by their pastors testifying to their attend
ance. But any amount of external conformance to regulations of
that kind will do little to help the boy with the real problems of
everyday life. Parole officers sometimes try to see that an effective
relation is created between a pastor or some church lay worker and
the boy. The parole officer, however, has such a multiplicity o f
other duties that it is impossible for him to devote a great deal of
time and attention to this particular matter. It is quite likely that
a well-qualified chaplain who has known the boy well during his insti
tutional stay could do more toward perfecting a helpful church
affiliation by making the right kind of contact with the community
pastor and the family. This has been attempted in some places and
is said to bring very good results. Often, it is said, the community
pastor has little conception of the returned boy’s problems and needs.
The institution chaplain may give real help in interpreting the need
and making sure that the church connection will be a warmly human,
helpful one.
15.
C R E D IT S Y S T E M S AN D D ISC IP L IN A R Y M E A S U R E S
Credit systems
The whole subject of credit systems seems to be one on which there
is much difference of opinion. In many State institutions that have
been visited by representatives of the Children’s Bureau at one time
or another, no two exactly similar credit systems have been found.
In many institutions no credit system is in operation. In the five
particularly considered in this study only one had a credit system in
the complete sense of that term. Three others had certain systems
of grading the boys in their different activities in such a way as to
indicate progress toward adjustment, but there was no fixed system
for awarding credits and no set credit goal to be achieved. The fifth
institution operated under a system that more nearly approached a
penal program. The terminology used referred to time to be served
and instead of credits awarded or taken away boys were given “ addi
tional days” or “ days off.”
#
. . .
There are certainly some grave problems involved in devising a
satisfactory credit system. The objective of institutional treatment
is, as has been repeatedly stated, to prepare a boy for self-direction on
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return to community life. It is not an easy matter to set up a measur
ing rod in terms of credits which will really reveal the progress a boy
is making toward strengthening those personal qualifications essential
to successful adjustment in his community. On the other hand, there
is surely some connection between his ability to conduct himself
acceptably in the institutional group life and his ability to live with
out conflict in the more difficult social situations into which he will be
plunged in his life after release. Therefore, within limits, it is proper
to consider credits awarded for response to different phases of insti
tutional treatment as something of a measure of progress toward
social adjustment. Some observers, however, feel that in the opera
tion of a credit system the boy’s attention may have a tendency to
focus on the acquisition of credits rather than on the satisfactions
inherent in building up good habits and achieving certain goals of
activity. These persons believe that some of the very smart but
“ bad” boys can and do set themselves to work to earn the necessary
credits for release in a minimum time, but that the whole process is
superficial and works no inner changes which will continue to operate
after release is won. Likewise they believe that it is unduly hard for
some of the duller boys to comply with all rules and regulations and
so achieve the credit goal within a short period, although they may
actually be making greater progress toward successful adjustment than
boys of the other type.
In the credit system which has been developed in New Jersey many
of these difficulties seem to have been successfully met through a
great flexibility in the system. (See p. 118.) There the clinic fixed
the credit goal individually for the boys, so that the difference be
tween the brighter and the less well endowed boys was recognized and
the requirement in credits to be earned was modified accordingly.
This setting of a credit goal on an individual basis seems a highly
desirable procedure when a credit system is used. Otherwise there is
grave danger of developing so mechanized a system that it is incapable
of providing the measure for which it is designed.
Another point that is raised, not only with respect to credit systems
but with respect to all grading, is the subjective element involved.
There is no escape from this personal equation. Certainly no purely
objective measurement of the qualities that determine the probability
of social adjustment has been devised. Thoughtful institution work
ers point out that it is almost impossible, even with the closest super
vision and the most serious attempts at leadership, to make sure that
all persons doing the grading have approximately the same standards
for judgment. Behavior which in one cottage would be rated high
might be rated several points lower in another group on the same
campus. Yet, so far as adjustment outside the institution is con
cerned, both examples would mean the same. There is the further
difficulty of making sure that all staff members maintain as objective
a point of view as possible and that they do not permit their own
emotional reactions toward any boys to color their grading either
favorably or adversely. To some extent these problems can be met
by insistence on a high type of personnel throughout and by frequent
discussion of these problems, designed to keep the individual staff
member alert in regard to his own prejudices for or against individuals,
so that he may guard against them in giving grades or awarding
credits.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
Probably one of the principal advantages in the use of the credit
system is that it gives the boys something tangible at which to aim.
If through constant individual and group discussion the boys can be
kept conscious of the fact that a credit is merely a symbol for their own
development in a desirable or an undesirable direction and is not an
end in itself, nor to be sought with the sole purpose of obtaining re
lease, then probably such a system could constitute a genuine aid.
But a purely mechanical credit system would seem to have great
disadvantages and to be an obstacle in the path of attaining insti
tutional objectives.
Disciplinary measures
The general policy with respect to the maintenance of discipline was
usually fixed by the superintendent of the institution and approved by
his superior officers or a managing board. Responsibility for the
specific application of such disciplinary measures as were permitted
by the general policy was usually vested, in some one staff member,
who might delegate to other members of the staff some of his respon
sibilities, particularly in connection with lesser infractions.
In the five institutions studied, considerable power for dealing with
the breaking of minor rules and regulations, or for dealmg with
mischievous or troublesome but not vicious behavior, was left to
cottage officers, teachers, instructors, and others to whom boys were
detailed for various purposes. The responsibility for dealing with
more serious cases was vested in some one member of the staff. In
two of the institutions this duty fell to the lot of the supervisor of
cottage life and cottage personnel. In a third the superintendent
kept it largely in his own hands. In the fourth it rested on the assist
ant superintendent, and in the fifth it was delegated to a staff officer
known as disciplinarian, or court officer. The latter, as the title
indicates, held “ court” every day for boys reported for formal disci
pline. In some institutions the clinical personnel frequently served
m an advisory capacity, particularly in relation to certain types of
misconduct.
#
.
At this place a word must be said about a point that came up
frequently in discussions with institutional personnel; that is, the evils
inherent in the use of boy monitors or cadet officers in maintaining
order and discipline. Without exception, thoughtful institution
workers expressed dissatisfaction with the monitor and cadet-officer
system. They believe that it is practically impossible to operate
such a system without abuses, sometimes of very grave character.
However, even the most progressive schools with relatively large
staffs found it very difficult to abolish monitors entirely. In some of
the institutions which were very poorly staffed, it was said to be
absolutely necessary to use boys as aids to the overworked staff
members. It was also said to be an almost irresistible temptation,
especially in connection with cottage management, for officers to
delegate authority to boys whom they considered worthy of it, in
order that the officers themselves might have some respite from their
eternal vigilance. Nevertheless the monitor and cadet-officer system
is believed to deserve unqualified condemnation. Even if serious
abuses can be kept to a minimum, this system always makes many
boys feel that officers have favorites and that there is no chance for
fair play. Such attitudes destroy trust and confidence in officers who
may, as a matter of fact, be trying very hard to help every one of the
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boys. That trust and confidence is one of the principal foundation
stones upon which service to the maladjusted boy must be built.
Observations in many State institutions for delinquents indicate
that there is great variation in the manner of rating different types of
offenses as to seriousness. In some institutions an attempt to escape
is regarded as a very grave offense. In others it is regarded as a
natural incident, and its seriousness is rated wholly on the basis of
the boy’s reason for making the attempt. With recently admitted
homesick boys, escape was considered to be a very different matter
from the same offense committed by boys obviously motivated by a
desire to escape the irksome work or control of the institution. In
the latter case it was the rebellious attitude that was considered in
need of treatment— not its outward symptom, the running away.
An institutional superintendent has declared that the child in an
institution should be given an environment as nearly as possible like
that of a normal home and a good community; that there should be
no walls or barriers, no locked doors, no night watchmen to prevent
escapes. His attitude toward these control measures is clearly set
forth in the following remarks:
All these things are fatal to the best interest of the child. There will be
escapes and frequently in considerable numbers. Homesickness is a powerful
incentive. In the first few days or weeks of the child in the institution, when
all is _new and strange around him, when he is subjected to a course of routine
that is regular and systematic, when he eats and sleeps and works and goes to
school exactly on the minute, when his mother and father no longer greet him in
the morning— do you wonder that he grows homesick and runs away? In my
judgment, for the benefit of the child, I think it is infinitely better that the, doors
be open and the way made clear for him to run away rather than forcibly detain
him. If the matters are anticipated properly and the cases handled sympatheti
cally, many that are tempted to go will not go. Those who have refrained from
going will build up within themselves the feeling that they have won, and will
have a conscious victory over their weaker natures. Those who go will often
soon return themselves, or can easily be picked up, and they are much easier t o
handle afterwards than if they had been forcibly detained in the first place. In
the course of a few weeks, if institution life is made interesting and attractive,
the child will soon get acquainted and adjusted, and the temptation to run away
will largely disappear. However, if information comes to him that some member
of the family is sick or in trouble, and the rules of the institution are too rigid
about visiting home, the child will probably run away again. If the discipline
of the institution is too severe, the child will frequently run away after having
gotten into some minor difficulty. However, with proper spirit in the adminis
tration of discipline, the number of these will not be great. Those unduly
emotional, suffering under a fancied or real indignity at the hand of other children
or adults, may run away while under great stress. Of course the feeble-minded
and the defective run away from time to time, but with tolerant, wise, and careful
supervision, the number of these should not be disturbing.16
Other behavior rated as objectionable and deserving formal dis
ciplinary action included such acts as sex offenses, stealing, open
insubordination, and, in many places, smoking. There was consider
able variation in attitude toward the last offense. At some institu
tions the boys were given to understand that smoking had to be
forbidden, even for the older boys who were already accustomed to
the use of tobacco, because of the fire hazards involved. In others
smoking in itself was regarded as “ bad” behavior, calling for the
imposition of a penalty if detected.
When institutional workers assemble to discuss vexatious problems,
this question whether or not smoking should be permitted often arises.
n Bastin, H . V .: C ity and C ounty Versus State Institutions for Dependent, Defective, and Delinquent
Children. Proceedings of the National Conference on Juvenile Agencies, 1930, p. 147.
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
In every such gathering will usually be found advocates for both poli
cies. Some contend that the older boys, very many of whom have
used tobacco regularly before commitment, should be allowed to con
tinue its use within reasonable limits. They believe that indulgence
in clandestine smoking, from which admittedly no institution is free,
has a far more harmful effect on a boy’s character than the temperate
use of tobacco could possibly have on his body. Others are convinced
that tobacco so seriously retards physical growth and development
and so lowers physical and mental efficiency that to sanction its use
is to betray their charges’ welfare. Unlike the other group, they seem
to feel no grave apprehension as to the effect on a boy’s character of
the practice of deceit involved in clandestine smoking, or as to the
danger involved in his cultivation of the habit of “ getting away with”
an act adjudged an offense within the social unit in which he is living.17
With this great difference of opinion, and as long as no authoritative
data are available on the relative advantages or dangers in permissive
or prohibitive policies, the question will continue to be determined on
the basis of the personal opinions of the administrators currently in
control.
;
Disciplinary measures observed covered a rather wide range. Cot
tage officers, teachers, and other group supervisors were usually
permitted to impose for punitive purposes certain deprivations of
privilege, such as requiring a boy to stay out of games on the play
grounds or in the cottage living room for a while. In many institu
tions these officers were also permitted to place a boy “ on line” for
a limited period. All the superintendents stated that no officers were
ermitted to require fixed postures involving physical strain while
oys were on line. The boys merely had to stand in a designated
place on the side lines while the other boys worked or played.
When an officer felt that he could not control a boy, the minor
disciplinary measures used so far having proved ineffective, or when
he thought the offense committed was too serious for such punishment
as he was permitted to administer, he reported the boy to the staff
officer charged with responsibility for dealing with problems of major
discipline. This officer depended on certain disciplinary measures to
bring about the control which was deemed necessary. All such officers
reported using deprivation of privileges to a considerable extent.
That meant withdrawing the privilege of attending motion-picture
shows and entertainments of all kinds, including basketball, baseball,
or other games, and forbidding participation in any school activity
which was classed as a social privilege. All the officers stated that
they did not use withholding of food or curtailment of food as a dis
ciplinary measure, with the possible exception that some cottage
matron might take away a boy’s dessert for a certain period, though
even that was frowned upon. All declared that limitation of meals
to bread and water was never permitted.
In some institutions misconduct brought in its wake the addition
of a specified amount of time to be served. The records of one insti
tution contained many notations of numbers of days added to the
periods that boys had to remain at the institution.
At only one of the institutions visited was corporal punishment per
mitted. Its use was said to be safeguarded by specific regulations.
In none of the institutions were individual officers permitted to strike
E
17
gee discussion, Proceedings of the National Conference of Juvenile Agencies, 1932, p. 46.
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boys or use physical force against them. Whether or not this regula
tion was scrupulously observed by all officers could not be determined
by a visitor from outside. The institutions which used no corporal
punishment at all were emphatic in their belief that it was not only un
necessary but that it had a distinctly brutalizing and harmful effect
and that it had no place in a modern program of social treatment.
Corporal punishment has been found to be still in use in a number
of other State institutions for delinquent boys visited by representa
tives of the Children’s Bureau.
Many institutions use as their most severe disciplinary measure re
moval to a special cottage group, known by some such term as “ seg
regation unit.” In some institutions the segregation cottage was not
noticeably different from the regular cottages, but much less freedom
was enjoyed by the boys thus segregated from their usual cottage
units, as very much closer supervision was exercised and there were
usually more locked doors. In other institutions the segregation
nottage was much less attractive than the regular residence units and
the life in it was not only much more restricted but the boys from that
unit were required to do the more difficult and unpleasant manual
labor for the institution.
Some institutions had within the segregation unit or elsewhere
segregation cells for the confinement of boys in isolation from all
their companions. These cells have the full flavor of prison atmos
phere. Many people are firmly convinced that this penal treatment
exemplified by confinement in isolated prisonlike cells has no place
whatever in an institution for juvenile delinquents and that its effect
on the boy who is subjected to it can be nothing but destructive. This
does not necessarily mean that it may not sometimes be desirable or
necessary to remove a boy for a little while from companionship with
other boys. Such segregation, however, need not be in a prison cell
or a cagelike place. A boy can be restricted to a comfortable bedroom
with probably much better effect, provided great care is taken to make
sure that he understands the reason for thus segregating him, and also
the purpose of this quiet period all alone as designed to give him op
portunity to do some real thinking about himself in relation to the
other boys and the institution. Some staff member who knows how
to set boys to thinking in this way should talk with him at fairly fre
quent intervals. The sole purpose of such segregation should be to
bring about a change in the boy’s attitude. As soon as that is accom
plished, segregation should be terminated.
Occasionally it is necessary to isolate a boy who is in an abnormal
mental state, but such cases are subjects for the medical director, not
the disciplinary officer.
In general it seems possible to say that a definite tendency has been
noted in the direction of abandoning the idea of punishment and of
developing measures that seek to motivate desirable conduct through
some controlling factor other than fear. Fear is generally regarded
as anything but an admirable trait. One of the most admired qual
ities is the direct opposite of fear, namely, courage. In some ways it
seems a tribute to youth that it can so seldom be completely cowed.
Fear of punishment may keep a boy temporarily from repeating his
offense, But it may in addition create within him a driving impulse
to get even eventually with that society which sanctioned his hurt or
his public humiliation. This certainly is no way in which to aid a boy
to avoid further social conflict.
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Back of the idea of punishment lies the revenge motive. Anger,
hate, and revenge call forth like responses. There might be some
excuse for so-called punishment if it could always be administered in
such a way as completely to convince the boy that there was no per
sonal emotional drive against him on the part of the person who was
bringing about his punishment, but that the person was honestly inter
ested in the boy’s future welfare and considered it dependent on his
not repeating the offense for which he was being punished. But rare
indeed is the instance in which the victim of punitive action could be
thus convinced. As a matter of fact it may safely be asserted that
back of every punishment lies an emotional response to the break
ing of sacred rules, an affront to some officer’s dignity, or some like
situation.
The newer philosophy underlying disciplinary work in the more
progressive institutions is that the pleasures and satisfactions to be
derived from social living must be earned through some contribution
of the individual to the welfare of the group and through his avoidance
of conduct that may disturb or hinder the progress of the group or
injure any of its members, also that social privileges are sacrificed by
the individual who follows his own impulses and desires without con
sideration for his associates. Built on this foundation, disciplinary
measures become positive in their effect. In order for them to have
the best possible results it is essential that the boy who is being dis
ciplined understand this philosophy and realize why he must undergo
certain more or less unpleasant consequences for something he had done
or failed to do. Such a philosophy renders corporal punishment
obsolete. It comes to its best fruitage in an institutional program
that is rich in privileges and social satisfactions, where there is much
to be earned or sacrificed. It seems far more reasonable to expect
that the effect of this type of discipline will carry over into later life
in a normal community than that of any amount of punishment
inflicted at the institutions.
The newer approach to discipline requires that every case be con
sidered individually and that attention be focused on the boy and on
whatever drove him to the specific act, rather than on the offense itself»
In this the psychologist and the psychiatrist can give aid of inestimable
value. There are many troublesome types of behavior for which boys
have been punished consistently and repeatedly but without satis
factory results. Research in behavior problems has shown how little
effect punishment is ever likely to have on some of these young
offenders, such as sex delinquents of certain types or boys suffering
from enuresis. The psychiatrist may find surprising reasons under
lying the specific misbehavior in many disciplinable cases. If that
which lies behind the boy’s behavior, the reason why he acted as he
did at that particular time, can be determined, either through the
help and advice of a clinic or through careful inquiry by other staff
members who possess sympathy and insight, then some intelligent
treatment of a disciplinary character may be devised and applied.
16. IN S T IT U T IO N R E C O R D S
A great variety of record forms were found at the different institu
tions, but comments on records will be limited chiefly to forms for
recording information obtained relating to the individual boy and tohis progress while under care and to his adjustment while on parole»
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No special attention was given to those institutional forms which had
to do with administrative processes. A careful and intensive study
of records with a view to making certain suggestions as to the most
practical types probably would be welcomed by many institutional
administrators. However, that would be a study in itself. It is
proposed here merely to refer to the general plan of recording data
concerning boys under treatment and to reproduce certain sample
forms which may be of interest to other workers in this field. These
forms are reproduced in appendix C, page 302 (so far as is me
chanically possible on pages the size of this report), not because they
are considered ideal but because they show how some institutions are
attempting to build up case records and how through the use of certain
forms they are seeking to present information effectively for utilization
in determining what treatment the boy shall have while in the insti
tution and what is likely to be the most successful placement on his
release.
Somewhere in each institution, in addition to the card file which
fists all boys committed, there was usually a case folder for each boy.
The various institutions put widely different types of material in this
case folder. In some institutions there was usually not much more in
this folder than the commitment papers, perhaps a grade card or two,
a miscellaneous lot of discipline record slips, letters to and from the
institution while the boy was there and after his parole, and some
few reports from his parole officer. Others kept a fairly complete
summary of the boy’s case, including preinstitutionál history, history
of progress in his various assignments while in the institution, records
of all the various examinations given him while there, reports on the
preparóle investigations, on the parole placement, and on the super
visory activities after parole. The forms used in the New Jersey and
New York institutions for obtaining the social history of the boy
prior to commitment and for obtaining a report preparatory to parole
are reproduced in appendix C, pages 302-312. In a boy’s case folder
at Michigan, was found a form which is reproduced in appen
dix C , page 313. This was used to record the observations made by the
officer in charge of the receiving cottage. At that school, which did
not have clinical facilities to assist in determining assignments, great
emphasis was placed on observation of the boy’s responses during the
month he was in the receiving cottage, and this was the form used
for recording these observations.
In some of the institutions each case folder contained a summary
of the principal findings of the various examinations taken by each
boy during his first few weeks. This included a summary of the
medical-examination report, the psychological and psychiatric reports,
if these services were available, the school principal’s interview, and
the observations of cottage personnel under whose charge the boy
had been. The detailed records of these examinations by various
specialists were usually filed in the different departments. Pages 315316 of appendix C reproduce the form used for the psychometric
report in the clinic of the New York institution studied, which contains
spaces for recording a considerable variety of tests.
At the California institution were found two rather interesting
forms, which are reproduced in appendix C, pages 317 and 318. One
is a report to be made by the cottage supervisor to the research depart
ment in cases in which a transfer is recommended: the cottage super
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visor checks the items on this form that describe the principal attitudes
and characteristics of the boy. The other form is a report to be made
every month by each boy’s counselor. If carefully prepared on the
basis of close observation of the boys by counselors of good judgment,
such monthly reports should give a good picture of the boy’s progress
or failure to progress in certain ways.
School records and progress in vocational-training courses are
recorded in various ways at the different institutions. The school
record card at the New Jersey school is reproduced on page 319 and
the trade-shop rating card in use in New York on page 320 of appen
dix C. Similar cards contained the boys’ scholastic, house, and be
havior records. The latter two are reproduced on pages 321-324 of
appendix C, each followed by the instructions for persons who were
to keep these records. In addition to the specific directions telling
how to fill in each space, these instructions urged great care in makings
judgments and arriving at the ratings, as the cards were expected to
be used freely by the assignment and parole committees. Staff mem
bers were warned that they must be ready to appear before the com
mittee at any time to explain the ratings given. At this institution
these cards were confidential between the officer and the administra
tion, not to be handled by the boys nor to be inspected by them.
Each officer was expected to make his own estimate of the boy without
being influenced by other officers; and the ratings were to be the
result of serious, honest, and fair consideration by each officer.
At the Ohio institution a report slip was placed in the boy’s folder each
time he was disciplined. Each cottage-family officer made a weekly
report to the disciplinarian, on which he listed the boys who had been
placed on line, giving the date when they were placed on line, the date
when they were taken off line, and the offenses for which they had
been thus disciplined. The disciplinarian made a daily report of the
“ cases in court” and furnished a fist of the boys “ receiving corporal
punishment” that day. This report included the “ specific nature o f
the offense” and the times the boy had been in court the last 30 days.
The conclusion reached after visits to many State institutions for
delinquents is that there is room for much improvement in devising
and keeping a case record on each boy that will bring together within
one folder, in as brief form as possible, all the essential information
relating to his history before commitment, his progress while at the
institution, and his adjustment while on parole. Supplementary data
might be kept in the various departments giving the contacts of those
departments with the boys in considerable detail. In individualized
treatment, records play an important part, for in a well-built case*
record each boy’s problems stand out clearly, and the success or failure
of institutional treatment to meet some of those problems should
become apparent if his institutional career is adequately and honestly
recorded.
This brings up the question as to the scope and uses of institutional
statistics based upon individual case records. The proper kind of
statistics compiled from adequate case records should provide thebasis for administrative analysis of such things as the following:
1.
Intake— It would be useful for an institutional administrator to
know something about the following points on the basis of evidence;
gathered from each year’s admissions.
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(а) The amount of information concerning committed boys made
available to the institution at the time of admission; information of
such character as to be helpful in determining types of treatment to be
given during their institutional stay.
(б) Attempts at adjustment or treatment applied in each case in the
community before resorting to commitment.
(c) The types of adjustment problems presented by a year’s admis
sions to the school.
The statistical basis for such analytical compilations would probbably take the form of an individual card for each new admission.
This card would contain certain statistical items relating to family
history, the boy himself, his age, physical and mental condition, school
achievement, behavior problems leading to commitment, types of
treatment already tried (probation, foster-home placement, or care in
other institution).
2. Institutional treatment — Certain data on the treatment to which
the boy was subjected at the institution would be most useful in study
ing the work of the institution in relation to individualization of
treatment, with particular reference to social adjustment, physical
and mental health, and academic and vocational education. The sta
tistical basis for this analysis would be in the form of a card filled out
for each boy at the time of his first release. This card would show
such facts as his length of stay; the results of physical examination at
the school; defects discovered, if any; corrective work done; acute ill
nesses or injuries; findings of psychological and psychiatric examina
tions and program recommendations; educational assignment and
progress, both academic and vocational; assignments to maintenance
work outside the bona fide trade-training courses; social adjustment
during institutional fife (indicating how the boy fitted into cottage
and class groups, what recreational activities he participated in, and
so forth); behavior while at the institution, including the character
of misbehavior for which he was disciplined and the type of discipline
administered; preparole-investigation findings as to home conditions;
to whom he was paroled; and what plans had been made for schooling,
employment, and the use of free time.
3. History from first release to final discharge.— This material would
enable an institution to study the results of the treatment that had
been accorded each boy. Its statistical basis would be a card for each
individual filled out at the time of final discharge from the institution’s
care or supervision.
This card would include such items as the reason for discharge; the
length of time since first parole or release; the amount of supervision
exercised during the parole period (number of written reports required
and received, number of times the boy’s home was visited, and number
of times the boy was seen); the number of times the boy was returned
to the institution with the reasons for each return; the total time spent
m the institution since first parole and the time spent outside; school
progress since his first release; employment record between release and
discharge; the number and types of new offenses committed during
the period, and convictions or commitments to other institutions;
where he was living and with whom at the time of discharge; his eco
nomic status; his home and neighborhood conditions; and where and
with whom he spent his leisure time.
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17.
PAR O LE A N D D IS C H A R G E
Parole
Commitment to institutions for juvenile delinquents is usually for
the period of minority or until some other specific age, not for a definite
number of days, months, or years. All five of the institutions studied
had some provision for release of boys on certain conditions. Such
release was known as parole in four and as placement in the fifth.
Usually the superintendent has the power to recommend or to grant
parole, subject to the approval of some local board or State depart
ment or agency. In one of the institutions included in this study the
power to parole was vested in the local board of managers. In prac
tice, however, the board depended on the superintendent and the
institutional staff to make recommendations for their consideration.
The methods of determining fitness for release were found to vary
greatly. In the Ohio institution release was rather automatic in
that it seemed to be wholly dependent on “ serving” a fixed period
at the institution, this period being shortened or lengthened by days
off for good conduct or days added for misconduct. In New Jersey
the credit system with its credit goal determined the time when a boy
was eligible for release. This was not so automatic a procedure as it
sounds because the classification committee set an individual credit
goal for each boy on the basis of very careful study of the boy and his
problems. In another institution the grading system took the place
of the credit goal in singling out boys for consideration for release,
boys being eligible for consideration when they had made six consecu
tive “ B ’s. ” In the California institution the secretary kept constant
watch of the progress records of the boys and sent to the placement
committee each month a fist of those whose grades indicated that
they had made a fairly good adjustment in the institution. That
committee then reviewed their cases thoroughly and passed upon
their readiness for placement. In New York the assignment com
mittee reviewed each boy’s case at the end of 6 months and on the
basis of progress toward adjustment made by that time set a probable
date for parole. On that date the parole committee reviewed the
case carefully and decided whether or not sufficient progress had been
made to warrant release.
In three of the institutions the institution itself had parole or place
ment officers. In one all parole work was done by a central State
parole office, and in another the parole work was done through a
system of county welfare agents, locally appointed but doing their
work under the general direction of supervisors from the State
welfare department.
#
.
.
The standards of personnel engaged in parole service varied widely.
There was also considerable difference in the size of the case loads
of parole officers in the four States having parole officers, ranging from
114 in one (California) to 287 in another (Ohio). All loads were
much heavier than any approved maximum case load standard.
The amount of work undertaken in preparation for parole was in
some instances almost negligible and in others fairly definite and
extensive. One institution depended almost wholly on a report
requested from the original committing court as to whether or not
the boy should be returned to his own home. In the institution
which had no parole, reliance had to be placed on whatever report
could be obtained from the county agent in the boy’s home county.
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Neither of these methods seemed to be producing reports that were
adequate or that would be genuinely helpful in making a wise decision.
In the other States attempts were made to obtain a considerable
amount of information on conditions in the boy’s h'ome. These
institutions sought immediately after the boy’s admission to obtain
information about his home and the community influences that had
surrounded him. These data were used not only to arrive at a better
understanding of the boy and his attitude but also to guide in con
sidering the problems that would have to be faced when he was released.
One institution had a director of preparóle activities whose function
was not only to watch the boy’s progress in the institution, but to
make an effort to have some work done in the boy’s own home and
community in preparation for his return.
In three of the institutions a specific treatment plan was made in
preparation for a boy’s release. A placement or parole committee
went over the summary of the boy’s history before commitment, the
record of his treatment while under the institution’s care and his
responses to it, and the descriptive report outlining the conditions
which would surround him in the home and the community to which
he was to go if released. The committee considered these and made
recommendations with respect to such things as home placement,
school adjustment, employment, and social and recreational activities.
It was not easy to get, on so brief a visit and without extensive
field work, an adequate picture of the amount and the character of
the help and the supervision given to boys who had been released and
of the degree of completeness with which treatment plans made at the
institution were carried out. The impression gained from the conversa
tions with persons in charge of parole service and from reading records
was that in some institutions this was one of the weakest points in the
whole treatment program. In other institutions a great effort clearly
was being made to raise the standards of personnel and to do as much
intensive case work of high quality as could be done under the load
which the officers were required to carry. In some States it seemed
that the contact with boys on parole was so slight that very little help
was being extended and there was almost no likelihood that the first
steps toward further difficulty would be known in time to help the boy
avoid such conduct as would make it necessary to return h im for viola
tion of his parole or to have him committed to some other correctional
institution. With the amount and character of the supervision vary
ing so greatly, it is certain that the number of boys returned for viola
tion of parole is not in any sense comparable as between institutions.
That is, a low number of returns—instead of indicating success on the
part of the parolees— may mean merely that their difficulties were not
known to their parole officers, whereas a high rate of returns might
mean that parole officers in close touch with their charges were
advising return to the institution for further treatment when first
symptoms of failure to adjust began to be evident.
In connection with this brief résumé of the parole regulations in
effect in these five institutions, it is probably appropriate to comment
that the general impression obtained from reading the reports prepared
by field representatives of the Children’s Bureau who have visited
other similar State institutions is that the weakest spot in institutional
treatment of delinquent boys appears in connection with their release
for return to community fife. Parole services are entirely lacking in
76870— 35—— 19
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some States. In such States the boys are simply turned out after a
period of training, with no community preparation for their reception
and no special aid to them when they must again face the very same
conditions that had brought about their former conflict. In other
States the number of parole officers provided is extremely inadequate,
the qualification standards for parole officer are low or practically non
existent, and their work is often done without proper supervision
and leadership.
Certain standards and procedures of parole work are essential,
whether the work is to be done by parole officers on the staff of the
institution and directed by a leader who is responsible to the super
intendent, or whether it is to be done by parole officers working as
a State unit and under a State director of parole not responsible to
the institution superintendent. The personnel should be chosen
entirely on the basis of qualifications in education, experience, and
personal characteristics. Appointments and dismissals should be
entirely free from political influence. Persons who have a good
educational background with training and experience in social case
work are highly desirable. The parole officer needs to have a thorough
understanding of the social resources likely to be found in the com
munities in which he is to serve. He must know what kinds of
services the various agencies may be expected to offer on behalf of the
boys whom he will place in their communities. His parolees should
have, through the contacts he makes, the benefit of every available
social service which can be secured and of which they stand in need
when they return to community fife. A parole unit, even if composed
of men with a measure of training and experience, will undoubtedly
function more effectively if directed by a trained and experienced
person who can give full time to supervision of the work, to consul
tation with individual officers on particular problems, to planning
for continual growth and improvement in the amount and character
of service rendered, and to assisting in interpreting parole work to
other social agencies and to the general public.
Another point to be made is that the parole service can function
best if it is brought into contact with the boy shortly after his ad
mission to the institution and if it remains in contact with him and
his problems throughout the institutional period. This early ac
quaintance with the case is probably arranged most easily when the
parole officers are members of the institution staff with headquarters
on the campus. If the parole service is given by a central parole
office for the State, there is no reason why procedures cannot be
adopted which will bring about this introduction of the parole officer
to his future case. New Jersey has been developing methods designed
to effect this close working relation between the institution and the
independent State parole office.
Parole work is in reality community case work. The boy has come
to the institution because something in his home or his community
has done something to him or failed to do something for him, as a
result of which he has come into conflict with social standards and
laws. It is most unreasonable and absurd to expect this young and
inexperienced boy, even after good response to training in the pro
tected life in the institution, to return to an uncorrected home or
community condition and to succeed in resisting the destructive
influences there. Yet that is exactly what many State institutions
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are expecting. They accept boys for treatment, but they make little
it any effort to make sure that corrective treatment is being applied
at the same time to the b o y ’s home and community. This is a phase
of the treatment program that must be developed if the results of
institutional treatment are not to be rapidly nullified in a regrettable
number of mdividual cases. If parole officers could devote more time
to securing the cooperation of social agencies in carrying on this cor
rective work in home and community while the boy is in the insti
tution, there would be far less need for intensive supervision when he
returns, and much of the watch-dog character of present parole work
would be eliminated.
Many experienced parole workers have expressed doubt as to the
desirability of trying to develop to any great extent the use of boardor foster-home care for parolees. In some cases such placement
worked very happily; but boys who had lived in homes of their own
to the age at which boys were usually committed had developed an
affection and a loyalty for that home, no matter how poor it might be
according to ordinary community standards, and there was usually
an unbreakable bond of affection between the boy and some member or
members of his family. If, because nothing had been accomplished
toward improving the character of the home during his stay at the
institution, the boy was placed elsewhere, he might stay in the
foster home a while, but almost invariably the temptation to run
away and to return to his own home eventually outweighed the advice
and admonitions of his parole adviser. This does not mean that
ioster-home care is never to be considered. It does mean that it
should be used with nice discrimination both as to the types of cases
for which it is used and the care taken to fit the personalities of the
boys to those of the people in the homes in which they are to be
placed. Above all it means that more attention must be given to
correcting home and community conditions from which boys have
had to be removed.
m e n the parole authority decides that a boy’s institutional adiustment and his progress m training warrant his return to community
hie, a highly crucial point in that boy’s career has been reached. Too
much care cannot be taken in effecting his return. Institutions that
are usmg the clime or committee method of preparing a plan for
adjustment on parole believe it to be by far the best approach to the
problem. Its success is dependent on a great many factors. Such
a committee, or clinic, must have at its command a very careful
summary of accurate information upon which to base its decisions
and recommendations. It must know as much as possible about the
ooy himself. It should have a thorough knowledge of the home to
which he wishes to return—not only its physical attributes and surroundmgs but the persons who live there, and their attitudes toward
the boy and his toward them. The committee should know exactly
what educational opportunities are available, whether they are suited
to the boy s abilities and interests, and whether it is going to be easy
difficult, or almost impossible to effect an educational adjustment in a
iremdly school atmosphere, devoid of distrust or antagonism. If the
boy is to work, the committee needs to know what employment
opportunities are available, and what the hours, wages, and working
conditions and hazards will be. Last, but by no means least, it should
knowjwhat connections can be made in order to provide satisfactory
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FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
activities and associations during the boy’s free time. How, where,
and with whom he spends his free time will have an important bearing
on his entire social adjustment.
It is imperative that the meetings of this clinic or committee ^be
attended by the parole officers who will be responsible for carrying
out any treatment plans that may be devised. The parole officer
needs to hear the discussions in order that he may understand why
certain recommendations have been made, and how important it is
that they be carried out. The committee, in turn, needs the prac
tical point of view of the parole officer, and his opinion as to the
feasibility of their plans and the necessity of modifying them because
of unchangeable conditions that must be faced.
In the last analysis the degree of success attending placement
depends to a very considerable extent on the skill of the parole officer.
Some cases, to be sure, tax that skill but slightly. Others tax it to
the utmost. No treatment plan, however carefully and expertlyarrived at, works automatically. Success or failure is largely condi
tioned by the personality and the skill of the parole officer, his capac
ity for influencing boys, and his ability to interpret their problems
and needs, and to win the wholehearted interest and cooperation of
parents, teachers, employers, and fellow-workers in health, recreation,
and welfare agencies, both public and private. Regrettably, many
of these officers have little sympathy and no genuine liking for boys
whom they consider “ bad.” The successful parole officer will have
such sympathy and liking so broad, so deep, and so articulate as to be
infectious.
Discharge
In one of the institutions studied discharge was automatic when the
boy reached his seventeenth or eighteenth birthday, depending on the
age specified in the court commitment. In the others commitment
was for the period of minority, but the authorities granting parole
also had power to give a final discharge short of the twenty-first birth
day in three of these four States. In one of them advantage was taken
of this regulation in a rather automatic procedure by means of which
boys who remained on parole one year without violation and without
being returned to the institution were automatically recommended for
discharge. A new commitment was thereafter required for their
return. In another of the four institutions a boy was usually released
or discharged on recommendation of his placement officer after about
2 years without violation or return. In the other two institutions,
although active supervision might be very greatly relaxed or entirely
discontinued, boys remained under legal control of the institutions
until they were automatically discharged by attaining" their majority.
The only exceptions were in cases in which they were committed to
other correctional institutions before they were 21 years of age, or, in
one institution, if they married or enlisted in the Army or the Navy.
18. C O N C L U D IN G S T A T E M E N T
No attempt is made in this report to suggest a complete set of mini
mum standards for institutions for delinquent boys. It would be
very difficult to agree on minimum standards that would be appli
cable in all the States. A standard reasonable to expect in one might
be so far beyond early attainment in another as to discourage effort,
whereas in still another it might represent an absurdly low level. Far
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RECAPITULATION AND COMMENTS
287
more important than the achievement of fixed minimum standards
are clear recognition of the fundamental objectives of such institu
tions and maintenance of an open mind as to the means by which
those objectives are to be achieved. The best standards are flexible
ones, which continually absorb into themselves new goals set by the
constantly changing concepts of what institutional treatment should
be, as experience shows certain methods to be ineffective and others
to hold promise of greater usefulness.
Fixed standards may well be regarded with distrust even though
they be labeled minimum. It might be possible to set fairly satis
factory standards for the institutional plant and its equipment; but
the most perfect plant fails disastrously in redirecting ^boys’ lives
unless manned by exactly the right kind of personnel. No doubt an
agreement could be reached as to the training and experience believed
to be essential, or at least highly desirable, as preparation for per
forming different types of institutional work; and the development of
standards of this sort here as in other fields of social work is highly
desirable. It might even be possible to set up certain general require
ments as to character and personality traits. But as yet scientific
method has produced no tests by which the presence or absence of
certain personal capacities may be determined. Anyone with a wide
acquaintance with delinquent boys and with persons who work among
them knows that individuals differ enormously in their capacity for
winning the liking, loyalty, respect, and confidence of such boys and
consequently differ in their ability to influence individual boys in
directions considered desirable. This capacity is one of those for
which no measure has yet been found.
In other words, an institution with a plant rated poor may do an
excellent job by virtue of the quality of its personnel. On the other
hand, an institution with an excellent plant may largely fail in its
objectives because of the poor quality of its human relationships.
That institution approaches the ideal which manages to combine
excellence of plant and equipment with a preponderance of personnel
richly endowed with this capacity to influence boys.
Given a good plant and high-grade personnel, that institution will
probably travel farthest along the road to success which utilizes to the
fullest extent such materials and methods as educators possessed of
vision and courage and mental hygienists endowed with insight and
practical wisdom are devising and recommending as promising a more
effective approach to the problems of maladjustment in children and
youth. All too little is known as yet about the mental and emotional
life of children and the motivation of conduct in the individual. One
thing seems to have emerged clearly out of the study and research of
the past decade, in relation to conduct problems. That is the great
variety of mental and emotional experiences and attitudes which may
lie behind almost identical behavior incidents, such as instances of
minor theft. Treatment, if it is to be genuinely corrective, obviously
must be directed toward the removal or realignment of these impelling
forces. Since these differ from case to case, treatment must differ in
similar fashion. This is one of the things that has given such impetus
to the trend toward individualization of treatment in work with juve
nile delinquents and that has occasioned the growing mistrust of the
efficacy of mass treatment, of repressive measures, and of “ punishment
to fit the offense.”
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This newer approach to the problem tends to bring about a multi
tude of changes within the institutional program and to reveal the
necessity for much closer integration of the institution’s activities
with those of the communities whose boys it serves. Learning to
live together is a continuous process. All attempts to guide, help, or
direct that process need to be correlated if conflict is to be avoided.
The time is ripe for experimentation along the line of bringing the
institution into closer continuous working relation with local agen
cies— the juvenile court, the police, the health centers, the guidance
clinics, the schools, and all recreational and child and family welfare
organizations. This integration would mean more intelligent service
for the individual and it would help to expose those basic causes of
maladjustment which are making criminals of some children and
unhappy, inefficient adults of many more.
Isolation, either geographical or social, but especially the latter, is
one of the severest handicaps from which an institution may suffer.
A boy may become adjusted to institution life very satisfactorily, but
that would be no guarantee that he would be able to make adjustment
to community life with a similar degree of success. His ability to
meet the problems of social living outside the institution would depend
largely upon two things: First, whether the institution had in fact
helped him to meet daily life as he found it, making for himself those
choices that are essential for harmony in group life; and, second,
whether the return to the community was effected easily and without
severe handicap in the form of unfriendly or antagonistic attitudes on
the part of the community toward the boy and the institution, or on
tho part of the boy toward the institution and the community. This
latter requirement cannot be fulfilled if an institution releases boys
whose institutional experience has failed to eradicate bitterness
aroused by treatment prior to commitment, or whose institutional
treatment has inspired in them deep-seated feelings of resentment and
hostility. Nor can it be fulfilled if the institution has failed to inter
pret its work to the communities from which its boys came and^ to
take its place in close working relation to all other agencies functioning
in the interest of children and young persons.
In part 2 of this report, which will attempt to analyze the problems
of boys after they were released from these five State institutions, it
is hoped that some additional light may be thrown on the subject of
services the institution should perform.
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Appendix A.— SAM PLE M E N U S 1
B O Y S ’ M E N U F O R T H E W E E K E N D E D SE P T E M B E R 28, 1931
W H I T T IE R S T A T E S C H O O L, W H I T T IE R , C A L IF .
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Veal stew with vegetables
Mashed potatoes
Beet salad
Doughnuts and jam
Milk
Split-pea soup
Buttered carrots
Cabbage salad
Fresh fruit
Bread and butter
Sugar cookies, milk
Stewed fruit
Rolled oats
Milk and sugar
Fried bacon
Bread and
butter,
cocoa
Red Mexican beans
Chili, with meat
Vegetable salad
Boiled custard
Milk
Rice and lamb with
onions
Boiled cabbage
Vegetable salad
Fresh fruit
Currant cake, milk
Stewed fruit
Hominy grits, milk
and sugar
Bread and butter
Boiled egg
Coffee cake, cocoa
Macaroni and cheese
Combination salad
Bread and butter
Short cake
Milk
Wieners, potato salad
Buttered beets
Sliced tomatoes
Fresh fruit
Gingerbread, b u t t e r ,
milk
Stewed fruit
Hot cakes, sirup
Bread and butter
Fried bacon
Sweet rolls, cocoa
Baked beans
Cabbage salad
Rusks
Milk
Baked hash'
Summer squash
Sliced cucumbers
Fresh fruit
Vanilla cake, milk
Potato chowder
Vegetable salad
Sugar cookies
Milk
Spaghetti with bacon
and tomatoes
Creamed onions
Carrot and cabbage
salad
Fresh fruit
Lemon cake, butter,
milk
Stewed fruit
French toast, sirup
Bread and butter
Boiled egg
Rolls, cocoa
Lima beans
Combination salad
Rice pudding
Milk
Codfish cakes
Buttered carrots
Coleslaw
Fresh fruit
Gingerbread, milk
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Milk and sugar
Bread and butter
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Vegetable soup
Lettuce salad
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i Furnished b y 4 of the 5 institutions included in the study. There was no uniform menu for all colonies
in the N ew York State Agricultural and Industrial School; supplies were issued uniformly and each colony
matron was permitted to make such use of them as she thought best. See p. 148.
76870— 35------ 19
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289
290
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
B O Y S ’ M E N U FO R T H E W E E K E N D E D M A R C H 27, 1932
B O Y S ’ V O C A T IO N A L S C H O O L , L A N S IN G , M IC H .
D ay
Breakfast
Dinner
Supper
Corn flakes, milk
Muffins, bread and
butter
Boiled eggs
Coffee, sugar
Baked ham, brown
gravy
Mashed potatoes
Creamed peas
Bread and butter
Apple pie
Coffee, ice cream
Bread and butter
Cottage cheese
Fruited gelatine
Chocolate milk
Cookies, apples
Cream of wheat
Bread and butter
Milk, cocoa, sugar
Steamed bologna
Steamed potatoes
Lima beans
Bread and butter
Bread pudding
Macaroni and cheese
Cherry sauce
Bread and butter
Cocoa, coffee cake
t>>
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Shredded wheat
Stewed prunes
Bread and butter
Milk, coffee, sugar
Beef stew
Browned potatoes
Wax beans
Bread and butter
Chocolate pudding
Vegetable soup, crackers
Plum sauce
Bread and butter
Tea, cookies, apples
>>
c3
Oatmeal and milk
Bread and butter
Cocoa, sugar
Beef hash, potatoes
Spinach
Bread and butter
Coffee, pudding
Spanish rice
Strawberry sauce
Bread and butter
Cheese
Cocoa, cookies, apples
Bran flakes
Bread and butter
Cocoa, milk, sugar
Spanish stew
Steamed potatoes
Creamed peas
Bread and butter
Cocoanut pudding
Chili con carne
Crackers
Blackberry sauce
Bread and butter
Tea, cookies, apples
>>
oS
2
Corn-meal gruel
Stewed apricots
Bread and butter
Milk, cocoa, sugar
Fried haddock
Baked potatoes
Tomatoes
Bread and butter
Coffee, rice pudding
Italian spaghetti
Tomato sauce
Bread and butter
Cocoa, cookies, apples
c5
Puffed wheat, milk
Bread and butter
Coffee, sugar
Frankfurters
Fried potatoes
Creamed carrots
Bread and butter
Tapioca pudding
Pork and beans
Peach sauce
Bread and butter
Cocoa, apples
>>
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Federal Reserve Bank of St. Louis
291
APPENDIX A.-— SAMPLE MENÜS
B O Y S ’ M E N U FO R T H E W E E K E N D E D M A R C H 6, 1932
N E W J E R S E Y S T A T E H O M E F O R B O Y S , J A M E S B U R G , N .J.
------:............... j
1 -
1T
Day
Breakfast
Dinner
ö
Shredded wheat, milk,
sugar
Bread, butter
Cocoa, milk
Frankfurters
Baked beans with pork
Bread, butter, catsup
Fruit gelatine, milk
Cheese, potato salad
Dressing
Bread and butter
Milk, sugar cake
Stewed prunes
Steamed rice,
sugar
Milk
Creamed beef
Steamed potatoes
Buttered string beans
Bread, milk
Vegetable s o u p w ith
stock
Peanut butter, bread
Milk, apples
Apple butter
Oatmeal, milk, sugar
Bread, cocoa
Beef stew with potatoes, onions, carrots,
peas, beans, celery,
tomatoes, turnips
Bread, milk, jelly
Sliced bologna
Steamed potatoes
Bread
and
butter,
molasses
Cookies, milk
Stewed raisins
Farina, milk, sugar
Bread, cocoa
Boiled
Sweet
rots
Salad
Bread,
Baked macaroni, cheese
Tomatoes
Bread, fruit jelly
Milk, apples
S3
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eggs
potatoes,
Supper
car-
with pineapple
butter, milk
Grape jam
Corn-meal mush, milk,
sugar
Bread, milk
Sausage meat, onions
Gravy, mashed potatoes
Bread, milk
Split-pea
soup
with
stock
Peanut butter, bread
Stewed raisins
Milk
Apple sauce
Boiled
rice,
sugar
Bread, cocoa
Codfish, mashed potatoes
Stewed tomatoes
Bread, milk
Apple pie
Boiled eggs
Sweet potatoes
Bread and butter
Milk, apples
Browned pork stew
with potatoes and
onions
String beans
Bread, milk
Sliced bologna
Pickled
beets
onions
Bread and butter
Milk, apples
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milk,
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Oatmeal, milk, sugar
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with
292
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
B O Y S ’ M E N U FO R T H E W E E K E N D E D M A R C H 26, 1932
B O Y S ’ IN D U S T R I A L S C H O O L , L A N C A S T E R , OH IO
Supper
Dinner
Day
Breakfast
>>
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rd
Bran flakes, sugar
Milk, bread, apple
butter
Coffee substitute
Pot-roast ham
Potatoes and corn
Pickles, bread
Apple pie, milk
Stewed kidney beans
Sliced bologna
Bread, butter
Apples, milk
Rolled oats, sugar
Milk, bread
Apple sauce
Coffee substitute
Boiled pork and kraut
Chocolate pudding
Bread, butter
Milk
Macaroni and tomatoes
Jacket potatoes
Bread, butter
Apples, tea
Corn flakes, sugar
Milk, bread
Butter, sirup
Coffee substitute
Pot-roast beef
onions
Creamed rice
Bread
Apples, milk
and
Creamed dried peas
Tomato relish
Bread, butter
Apples, cookies, tea
Corn-meal mush, sugar
Milk, bread
Apple sauce
Coffee substitute
Vegetable soup, crackers
Raw kraut
Bread, butter
Peach pie, milk
H ot wieners
Jacket potatoes
Catsup, bread
Apples, cookies, tea
Bran flakes, sugar
Milk, bread
Apple sauce
Coffee substitute
Stewed navy beans and
pork
Bread, butter, pickles
Apples, cookies, tea
Baked hash
Buttered beets
Bread
Apples, cookies, tea
Rolled oats, sugar
Milk, bread
Apple butter
Coffee substitute
Boiled pork and kraut
Buttered potatoes
Bread
Apples, cookies, tea
Creamed dried corn
Tomato relish
Bread, butter
Buns, tea
Corn flakes, sugar
Milk, bread
Apple sauce
Coffee substitute
Potato soup, crackers
Bread, pickled beets
Apples, cookies, tea
Cold sliced beef
Creamed rice
Bread, catsup
Apples, cookies, tea
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Federal Reserve Bank of St. Louis
Appendix B.— OUTLINE OF TRADE COURSE, SHOP
IN STR UCTO R ’ S REPORT, AND SAM PLE LESSONS
O U TLIN E OF CO URSE IN A U T O M O B IL E M E C H A N IC S , N E W JERSEY
ST A T E H O M E FO R B O Y S 1
I.
W
a s h in g
and
G
r e a s in g
A. Automobiles.
B. Tractors.
C. Farm implements.
II.
A
u t o m o b il e
R
e p a ir
A. Front axle and steering gear.
1. Straightening axle.
2. Straightening knuckle arm.
3. Replacing bolt and bushings.
4. Adjusting steering gear.
5. Overhauling radius rod (if
Ford)
B. Engine work:
1. Grinding and adjusting valves.
2. Reseating and refacing valves.
3. Replacing valve-lifter guides.
4. Adjusting main bearings.
5. Adjusting c o n n e c t in g -r o d
bearings.
6. Fitting new connecting-rod
bearings.
7. Fitting new main bearings.
8. Fitting new piston rings.
9. Fitting new wrist pins and
bushings.
10. Replacing cam-shaft bushing.
11. Scraping carbon.
12. Cutting and fitting gaskets.
13. Replacing manifold gaskets.
14. Scraping main engine bearings.
15. Timing engine.
16. Silent chain care.
17. Removing cylinder head.
18. Replacing cylinder head.
19. Shellacking cylinder head to
prevent compression leaks.
20. Fitting new pistons.
C. Clutch transmission and universals:
1. Removing transmission bands.
2. Relining transmission bands.
3. Replacing gear and bearing.
4. Adjusting clutch on all cars.
5. Relining a disk or plate clutch.
6. Installing new clutch springs.
7. Installing new clutch bearings.
8. Repairing a spinning clutch.
9. Repairing a grabbing clutch.
10. Repairing a slipping clutch.
11. Refacing disk clutches and
installing new cork insert.
II. A u t o m o b i l e R e p a i r — Con.
D. Rear axle and brakes:
1. Installing new gears in the
differential.
2. Installing new ring gear and
pinion.
3. Installing new bearings in
rear-axle housing.
4. Installing new key in drive
pinion.
5. Replacing broken axle.
6. Overhauling split axle houseing.
7. Pulling rear wheels.
8. Adjusting rear-axle level and
pinion gears.
9. Removing universal from car.
10. Disassembling rear axle.
11. Inspecting and reassembling.
12. Adj usting external brake bands.
* 13. Adjusting internal expanding
brakes.
14. Removing grease and oil from
brakes.
15. Relining brakes.
16. Repairing squeaking brakes.
E. Oiling system:
1. Cleaning valve stems, guides,
and piston rings.
2. General instruction for drain
ing, flushing, and refilling
engine crank case.
3. Repairing and inspecting piling
system.
F. Cooling system:
1. Caring for radiator hose.
2. Removing radiator.
3. Repairing radiator with liquid
compound.
4. Overhauling water pump.S
5. Packing water pump.
6. Replacing or repairing fan
belt.
G. Fuel system:
1. Adjusting carburetor.
2. Installing carburetor.
3. Installing vacuum tank.
4. Overhauling vacuum tank.
5. Overhauling all carburetors.
1 See Educational Program; plan of organization and description of activities (N ew Jersey State Horn
for Boys, 1930), p. 67. In regard to the methods of instruction see chap. IV of this report, p. 110.
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293
294
FIVE STATE INSTITUTIONS FOR D ELIN QU EN T BOYS
II. A u t o m o b i l e R e p a i r —Con.
II. A u t o m o b i l e R e p a i r —Con.
I. Generators and starting motors—
H. Ignition:
Continued.
1. Testing coils.
2. Repairing all ignition systems.
6. Fitting brushes and sanding
3. Cleaning spark plugs.
commutator.
4. Repairing distributor.
J.
W
iring
and
lighting:
5. Repairing magneto.
1. Replacing fuse.
6. Repairing magneto switch.
2. Adjusting and cleaning lamps.
I. Generators and starting motors:
3. Replacing light bulbs.
1. Cleaning commutator and
4. Replacing and cleaning light
brushes on motor or genera
tor.
ing switch.
2. Adjusting generator charge.
5. Repairing old wire troubles.
3. Adjusting Wagner starting
6. Splicing lighting cable.
motor.
7. Attaching wireto lamp sockets.
4. Adjusting Buick Delco-motor
8. Installing and wiring ammeter.
generator.
9. Test for locating lighting
5. Adjusting Remy Oldsmobile
troubles.
system.
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SHOP INSTRUCTOR’S REPORT ON CONDUCT AND PROGRESS OF
BOYS ENROLLED IN TRADE-TRAINING COURSES, NEW YORK STATE
AGRICULTURAL AND INDUSTRIAL SCHOOL2
B
o y ’s
nam e
Instructor
____________________________ T
p r e p a r in g
rade—
E
l e c t r ic
r e p o r t _________________ D a t e
Shop
______________
E L E C T R I C I A N ’S T R A D E - T R A I N I N G R E P O R T
N um
ber of Rating
hours
I.
C a r e of s h o p e q u i p m e n t
Care o f tools_______________ ________
T o learn the principles of the lever
and their application to the use of
tools and tightening wire________
Proper use of materials____________
Safety precautions_________________
M aking soldering and tapeing joints.
Splicing wire from size 18 to 500,000
cm ______________________________
Sleeve twisting solid wire f r o m size
18 to no. 0_______________________
Sweating sleeves on large and small
cables____________________________
Sweating on lugs and connectors___
Installing solderless type connectors.
Knowledge of wire sizes and capaci
ties____________________ _____ ___
II. S h o p p r e p a r a t o r y w o r k
W ire one bell controlled from three
points___________________________
Series and parallel battery connec
tions____________________________
Installing bell transformer_________
W ire two bells connected from three
points______________ ______ _____
W ire a return call bell system..........
W ire a combination bell and buzzer
controlled from two points_______
W ire and install a four-drop elec
trical reset annunciator__________
Use of D .C . voltm eter_____________
Use of D .C . ammeter______________
Wire and test a group of lights con
trolled b y a field rheostat used as
a dimmer using cleat receptacles..
M ake a study of conductors..............
M ake a study of insulating mate
rials_____________________________
Problems related to the combina
tion of resistances________________
Heating effects of current in a con
ductor___________________________
Use of hand books_________________
Circular mil calculation____________
Resistance per mil foot_____..............
D rop along a conductor......................
Estimating wire sizes for different
efficiency________________________
Transformation of electrical energy
to heat____________ ____ _________
Power in wptts and kilowatts..........
Use of voltmeter A .C ..........................
Use of ammeter with current trans
form er. _________________________
Calculating cost of power, light, and
heat_____________________________
Action and use of fuses and circuit
breakers_________________________
N um
ber o f Rating
hours
■
III.
H o u s e w i r i n g u s i n g flexible cable
o n s h o p practice h o u s e
1. W ire two lights in cellar with
pilot light in kitchen on single
pole flush switch_________________
2. W ire lights in upper and lower
halls controlled b y two three-ways
and one four-way________________
3. W ire one light in closet using a
door switch___________ ______ ____
4. W ire one light in entrance con
trolled b y single pole switch un
der three-gang plate_____________
5. Wire outlet in living room con
trolled b y three-point electrolier
switch___________________________
6. W ire two side lights at medicine
chest both controlled b y two threeways......................................... ..........
7. Install 12 base plugs with special
attention to not overloading cir
cuits...............................................
8. Wire store window with direct
and indirect lighting_____________
9. Assemble and wire a five-letter
sign with connections to a 50-point
flasher making seven com bina
tions_____________________________
10. Change switches and wiring of
entire house to a master switch
control in bedroom ._____ _______
11. Estimating wiring job s.......... .
12. Install a four-drop annunciator
with buttons at front door, bed
room, living room and a floor
switch_________________________ _
IV .
S h o p jo bs
Small jobs in metal moulding............
Install a combination open and
closed circuit burglar alarm with
an annunciator in the shop on the
26 windows, one sliding door and
two swinging doors with relay on
closed circuit for constant ringing.
Intall a two-wire service for a twofamily flat with grounded sec
ondary, connecting watt-hour
meters and testing_______________
Install a three-wire single-phase
service with grounded neutral___
Install both open and closed R .R .
crossing signal including bells and
lamps___________________________
V.
Co n d u i t wiring
Cutting conduit___________________
Set up and cut threads on a thread
ing machine_____________________
2 For discussion of the method of work and use of this form see chapter V of this report, p. 160.
295
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296
FIVE STATE INSTITUTIONS FOR DELIN QU EN T BOYS
[Shop instructor’s report—Reverse]
N um
ber of Rating
hours
N um
ber of Rating
hours
V.
C o n d u i t w i r i n g —Continued
VII.
Telephony-Continued
Knowledge
Knowledge
Knowledge
Knowledge
of line circuits________
of cord circuits_________
of operators’ circuits----and care of battery and
Cutting running threads and their
Construction of aerial and underLength and degree of bends allowed.
T yp e of materials used in conduits,
Construction of telephone-pole line,
including drops (see pole-line con-
Types of conduit fittings and their
T ypes of boxes: Outlet, junction and
distribution, large and small and
their application to light and
power wiring____________________
Pulling in wires and cables, rigid
V I I I . P o w e r - l i n e co nstruction
Wiring types of fixtures for differ-
Framing poles for power and tele-
T ypes of grounds and w h y and
what they are used for----------------Install a three-wire three-phase
Installing attachments........................
Install a three-wire three-phase servM eter connections of a three-wire
M eter connections of a two-wire
M eter reading and inspection of
Pullinglines_______________________
Installing and connecting transInstalling and connecting lightning
Installing and connecting primary
Installing a n d ' connecting discon-
Study of effects of water, heat, and
Safety precautions while working in
IX.
Mo to r work
Building small motors to learn funProper precautions while working
with live wires (always use test
Proper care of cuts and punctures of
V I . S t o c k - r o o m a n d office w o r k
Building an A .C . fractional horse
power m otor from unfinished
Study electrical and mechanical
principles involved in motor
H ow to set up and turn armature in
Build a 5-amp. battery charger tube
Knowledge of tools, equipment, and
Build a bell-ringing transformer.......
Build a 1 K . V. A. distribution transStudy and make A .C . transformer
Study and make A .C . m otor con-
VII.
Install b y underwriter code a 15horsepower A .C . motor and auto
Telephony
N ew construction and maintenance
on a 120-station com m on battery
Install b y underwriter code a 15horsepower A .C . m otor using a
compensator_____________________
Study’the action of a repulsion start
Obtain output of small motors b y
Tests for continuity shorts, grounds,
tests for crosses with other teleClearing trouble in domestic and
Clearing trouble on pole-line conKnowledge
of
com m on
battery
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Inspection and oil of motors from
1-4 H .P . to 50 H .P . on plant_____
Connect and run test on three dis
tinct types of D .C . motors and
Read loads and other characteristics
of A .C . and D .C . motors b y use of
A P P E N D IX B .— TRADE COURSE, INSTRUCTOR’S REPORT, LESSONS
297
SAMPLE LESSONS, NEW YORK STATE AGRICULTURAL AND
INDUSTRIAL SCHOOL 3
A P P L IE D M A T H E M A T IC S —E LE C TR IC A L S H O P
Lesson __
Instructor.
OHM’S LAW
I.
O bjective
II.
III.
.—To learn how to find the ohms in a circuit by using Ohm’s Law.
In tro d u cto ry in fo rm a tio n
Ohm’s Law.
.—Refer to the information you have written up on
.—The resistance of a conductor is found by dividing
the potential difference between the terminals of the conductor by the
current flowing through the conductor—
R u le 8 o f O h m ’s L a w
O hms
Volts
Amps.
For example: If it takes 5 volts to force 0.4 amps, through a telegraph
sounder, what is the resistance of the sounder?
IV. 1. A wet cell (bichromate) has a potential difference of 2 volts across its
terminal on open circuit. When the terminals are shortened 8 amperes
flow through the short-circuiting wire, what is the internal resistance
of the cell?
2. An electric heater is operating on 110 volts. If 10 amperes are passing
through the coils when hot, what is the hot resistance of the heater?
3. An electromagnet used for lifting purposes uses 7 amperes at 100 volts.
Find the resistance of the magnet coil.
4. A 220-volt motor is using 2.75 amperes. What is the apparent resistance
of the motor?
5. A rheostat with all its coils in operation is connected into a 120-volt circuit.
What is the combined hot resistance of the coils if the current in the
coils is 2 amperes?
Copy the above rule for resistance in Ohm’s Law data.
s For discussion of the trade training in which lessons of the type shown were used see chap. V of this
report, p. 160.
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298
FIVE STATE INSTITUTIONS FOB D ELIN QU EN T BOYS
A PPLIE D S C IE N C E -E L E C T R IC A L S H O P
Information sheet
Lesson___
I.
—To study kinds of currents.
(а) Mechanical method, mechanical energy such as power given off
from a steam engine or water wheel connected to an electric
generator is then converted into electrical energy. As an example
we may give the electric generator in which the machine is
ordinarily energized by steam power or water power.
(б) Chemical method. Fixed chemical energy is converted in electrical
energy; as an example, we have the battery cell in which certain
chemical reactions occur, changing the unavailable chemical
energy of the materials into available electrical energy.
C o n tin u o u s current. —A continuous current is one in which the direction
is constant and in which the amount of the flow does not vary. If the
external resistance is sufficiently large, a storage battery will give a
continuous current for some time.
P u ls a tin g current. —A pulsating current is one in which the current is
constant in direction, but in which the current strength rises and falls.
(Strictly speaking.) A direct-current generator delivers a pulsating
current.
D irect cu rrent. —A direct current is one in which the direction of current is
constant, but in which the current strength rises and falls slightly.
In speaking of a direct current we generally mean a current delivered
by a direct-current generator. A direct current is really a pulsating
current whose flow varies so little that we have the equivalent of a
continuous current.
A lter n a tin g current. —An alternating current is one in which the flow
reverses its direction at fixed intervals. During the period between
reversals it increases from zero to maximum, then diminishes from
maximum to zero. An alternating current is readily transformed and
can be transmitted to distant points more cheaply than a direct current.
O scilla tory current. —An oscillatory current is one in which the current
reverses in direction a great many times a second, but in which the
current diminishes from maximum until all flow stops. The discharge
of a condensor is oscillatory. The frequency of an oscillatory current
is sometimes almost inconceivably high, often running into millions of
complete oscillations per second.
In terru p ted currents. —An interrupted current is one in which the current
is made and broken at fixed intervals. The sign flasher employs such
a current.
O bjectives.
1.
2.
3.
4.
5.
6.
II.
............. instructor.
—Copy and memorize the above statements as they will be
asked for on examination.
A s s ig n m e n t .
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Federal Reserve Bank of St. Louis
A PP EN D IX B .— TRADE COURSE, INSTRUCTOR’S REPORT, LESSONS
299
MECHANICAL DRAWING—ELECTRICAL DRAWING SYMBOLS
PLATE 41A—36 B
I.
II.
—
1. To lay out and draw the plate of electrical symbols below, and to learn
how to recognize their meanings.
T h e p rob lem
—
1. Divide the working space of your plate into 20 equal squares, using the
dividers.
2. Be sure to use guide lines when doing the lettering connected with each
symbol.
S u g g estio n s f o r p rocedu re
GENERAL INFORMATION
, E l e c t r i c a l e n g i n e e r i n g : It is the job of the electrical engineer to apply all
his knowledge to practical use. For example, he designs and supervises the build
ing of hydroelectric pow;er plants, he designs electrical machines, he plans and
supervises the construction of transmission lines, he designs electrical devices,
such as switches, transformers, and the like, he supervises the installation of elec
trical equipment, and so on. ^Like other engineers, he must be able to express his
designs by means of mechanical drawings.
Electrical engineering is one of the most interesting of the technical professions.
Because of this fact, it is becoming a field in which there is a great deal of compe
tition. Young men are rushing into the work in large numbers. This of course
means that only the most capable students can hope for success. Before entering
upon a course of training, a young man should assure himself that he has a real
interest in science and mechanics and that he has more than ordinary ability- in
mathematics.
'
S o u r c e f o r f u r t h e r s t u d y : Wade: Everyday Electricity.
Jones: Essentials of Applied Electricity.
7
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Federal Reserve Bank of St. Louis
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Federal Reserve Bank of St. Louis
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SYM BOLS, page 2
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APPENDIX B.— TRADE COURSE, INSTRUCTOR’S REPORT, LESSONS 3 0 1
M O T O R IN F O R M A T IO N (IN D U C T IO N T Y P E )
CARE
Instructor
To insure the best operation, make a systematic inspection at least once a week.
Give the following points special attention:
C le a n in g — Treat a motor as you would any other high-grade apparatus.
Dirt,
dust, and oil should not be allowed to accumulate in the motor. Compressed
air or a hand bellows should be used frequently to blow all dirt and dust out of the
motor. Any oil which may overflow from the bearings should be wiped from the
motor. A little attention in this regard will result in continued satisfactory oper
ating results and enable the motor to give the best service for many years.
B e a r in g s .— Prevent excessive heating and wear of all bearings by proper lubri
cation, belt tension, and alinement. Where the air gap has become close on one
side, replace the bearings. Wear of the bearings will cause a closing up of the air
gap on one side and may allow the rotor iron to strike the stator iron, resulting in
trouble.
O il w ells .— Before starting the motor, wash out the bearings with kerosene or
gasoline to remove any dirt or cinders which may have accumulated after motor
has left the factory; then replace the drainage plugs, after dipping them in a mix
ture of red lead and shellac to prevent leakage. Tighten plugs securely. Fill the
oil wells through the oil holes at the top with a good grade of light mineral oil (not
heavy cylinder oil, animal fat, or vegetable oil). Fill bearing with enough oil to
cause oil to appear at the overflow at the side of the bearing. To avoid incorrect
oil level, never oil the motor when running. Do not use oil so thin that it splatters
or is thrown off of the oil ring. Refill the oil wells at regular intervals, the fre
quency depending upon local conditions, such as severity or continuity of service,
cleanliness, etc. If the oil rings rattle, it is a sure indication that there is not suffi
cient oil in the wells.
H e a tin g .— Do not depend on the hand to determine the temperature of the
motor. Use a thermometer. If there is any doubt about a safe operating tem
perature, take the temperature of the windings and confer with the nearest office
of the company. Give complete details.
OPERATION
Certain precautions are necessary before starting the motor for the first time.
(1) See that the voltage on the name plate corresponds with the line voltage.
(2) Make sure that the oil plugs are tight and that the oil wells are filled
with a good grade of light mineral oil to the top of the overflows at the
side of bearings.
(3) Remove all external load if possible and turn the rotor by hand to see that
it rotates freely.
(4) Before putting the motor in service it is desirable to run it without load
for a short time to determine that there is no unusual heating in bear
ings or windings.
Sta rtin g .— When motor is started without a compensator, simply close the line
switch. This method applies to type AA and AAH motors.
When starting with hand-operated compensators, move the compensator switch
lever to the starting position, and when the motor comes up to speed (in about 5
to 20 seconds) throw the lever quickly to the running position.
S to p p in g .— Motors without compensators can be stopped simply by opening the
starting switch. Motors with hand-operated compensators should be stopped by
pressing the no-voltage release lever down and the compensator lever will return
to “ off” position.
SUPPLIES
When ordering parts, give description and state quantity of parte desired,
together with the name plate rating and serial number of motor. This serial
number is stamped both on the name plate and end of shaft of the motor. Addi
tional copies of this instruction care or further information will be furnished on
application to the company’s nearest office.
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Federal Reserve Bank of St. Louis
Appendix C.— SAM PLE RECORD F O R M S
[Original size of each form approximately 8 b y 11 inches]
PREINSTITUTIONAL INVESTIGATIONS
NEW JERSEY STATE HOME FOR BOYS, JAMESBURG
Investigated by
Sent t o _____________
D a t e ________
NAM E
D u e ________
Age
No.
Place
Nat’l.
Rec’ d
Offense
County
em bers
of
f a m il y
Age
Address
Religion
Col.
Born
M
Rec’d __
Judge
Nat’l.
Occupation
Subject:
Father:
Mother:
Guardian :
Siblings:
School last attended
Church
Address
Name and address of pastor
W ORK R E C O R D
Occupation
S p e c ia l
Employer
Principal
Religious denomination
Age began
Address
Duration
Reason
Wages
Reason left
rem ark s:
Investigators must follow instructions furnished by central office and make
report on reverse side of this sheet, using additional sheets of same size if necessary.
Please type report on upper part of reverse side of this sheet, under heading
“ Report.”
302
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Federal Reserve Bank of St. Louis
APPENDIX C.— SAMPLE RECORD FORMS
303
PREINSTITUTIONAL INVESTIGATIONS, page 2
In making preinstitutional investigations, investigator will use the following
outline as given below. Investigations to be signed and dated by the investigator.
P revious
court record
Character of offenses
Date
Judgment
Sentence
Official
Family
Home
Place
account of present offense
account of present offense
conditions
and
environment
(physical)
Family relationships: Financial status of the family: type of training and
supervision; religious and moral training, etc.
R eligion; Church attendance prior to commitment; offender’s and familv’B
attitude toward religious duties.
Subject’ s character: Habits; reputation; companions; church attendance;
cause for delinquencies; health record.
Education: Name and address of school last attended; age started school;
age left; reason; highest grade reached; grades repeated; conduct; mental age:
etc.
’
Occupational
outlets:
What are occupational outlets in home district?
Special remarks: Are home conditions and family relationships such that this
subject would have a reasonable chance of succeeding if paroled home?
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304
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
PR E PARO LE R EP O R T
N E W JE R S E Y S T A T E H O M E F O R B O Y S , JA M E S B U R G
_____________
f .................
Principal informations*_________ __________ _
( _________ ___ ____ ____
Investigated b y _____________ ____________ _
Full n a m e______ _____ _____ ____
County committed from
Date requested____
Date d u e ___
Birth place _ _ _ _ _
R ec’d __________
_
D a t e __ ______ __
No. _ _ _ _ _
ome
in v e s t ig a t io n
---
Years in New Jersey ______
___
Age
C o lo r ______________
_
______
Charge
Number of times on parole
H
________ __
Date received _
Date of b ir th _____________How verified--------------------------N a t .______________
_ _
Address _____
__._______ __
______ __
Religion _ _ _______ __ ______ __
__
made b y ____________________
Date
D o you recommend that this subject be paroled to home? —
To placement?
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Federal Reserve Bank of St. Louis
__ __ -----------
APPENDIX C.— SAMPLE RECORD FORMS
305
[Preparóle report—Reverse]
I n s t it u t io n a l R
ecord
op
S u b je c t __
Trade knowledge------ Months....... Good....... Fair.......
Industrial training_____________________________
Poor
School accomplishment_________________________
Type of school to attend if paroled____________________________
Kind of work wanted if paroled_____________________________
Working papers needed________________________
Special information desired_______________ j ______
Scout training______________________
Height------------------------- Weight........ ....... ...................... ......
Special physical defects__________________
If subject is paroled are parents able and willing to pay for railroad fare?
Supply clothes?______________________________
Explain_____ _________________
Will some one call for subject if paroled?______ Who?_____________
Name and address of pastor______________________
Type of work secured.............................. Wages______
Name and address of employer_____________________
Hours_____
Name of sponsor or person interested______________________
Describe school facilities________________________
Is there a Scout troop nearby______
Name_________
Give amount of family’s weekly income
N
ote:
All comments should be put on this report and not on communications^
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Federal Reserve Bank of St. Louis
306
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
NEW JERSEY DEPARTMENT INSTITUTIONS AND AGENCIES
D IV ISIO N O F P A R O L E
In making preparóle investigations investigator will use the following outline
as given below. Investigations to be signed and dated by the investigator.
H
ome
N
e ig h b o r h o o d
Fam
C
il y
o n d it io n
:
:
:
T
ype
P
lan s for
of
S u p e r v is io n :
S p e c ia l R
W
ard
:
em arks:
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Federal Reserve Bank of St. Louis
307
APPENDIX C.— SAMPLE RECORD FORMS
PRELIMINARY INVESTIGATION AND CASE HISTORY
STATE AGRICULTURAL AND INDUSTRIAL SCHOOL, INDUSTRY, NEW YORK
______________ _ Superintendent
Assistant Superintendent, Director of Parole
Date of birth
Color
Race N ativity of— Religion of— Scout or
club
F.
Address
Name
Lives with
Address
Name—with alias if any
age
M.
B
F. M .
I.Q .
Church attendance or
Sunday school
B.
Occupa In- E d u c a tio n tion
com e
last grade
Insanity, defective,
crimes, epilepsy, alcohol
ism, T .B ., etc.
F ............
M ..........
Siblings
T yp e of
dwelling
N um ber rooms
N o. in house
hold
Present case
Complaint
Complainant
N o. lodgers
M o. rent
Sanitary condition of
home
Disposition
Date heard
P R E V IO U S C O U R T R E C O R D
Date
Complaint
Judge
Disposition and remarks
A G E N C IE S IN T E R E S T E D IN F A M I L Y
Name of agency
Dates helped
Nature of assistance and to
whom
A ttitude of family and of child to
the aid
S P E C IA L A G E N C Y N O T E S which might be helpful to our clinic.
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Federal Reserve Bank of St. Louis
308
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
[Preliminary investigation and case history— Reverse]
SCHOOL RECORD
Public or p riv a te______ C it y ______ Previous sch ools--------- Present grade
________
Grades repeated________
Effects of nonprom otion----------------------Special interests______________________ Special dislikes---------------------------------Please note any special behavior problems and what you have found successful
in solving them; e.g., re cooperation, interest, attention, initiative, leadership,
participation in class and play, persistence (any outstanding features and those
only).
N a m e o f P r i n c i p a l _________________________
A b s e n c e s last 12 months----------------
Please answer (on the following pages) the following questions in the order
given, writing the corresponding number before each answer. Be concise but
give fully any essential details. Omit numbers where there is nothing outstanding
which would help our clinic.
1. Institutional record. Name and location of. Why sent. Record there.
Dates.
2. Clinical (psychiatric) record. When and by whom made. Nature and
contents of.
3. Why or why not the boy should be paroled to his own home.
4. Why or why not the boy should be paroled to same neighborhood.
5. What disposition should be made of boy on parole?
6. What changes should be made before parole and who will care for this?
7. Special interests of boy; e.g., mechanical, drawing, athletics. Explain fully.
8. Associates: age and sex of, large or small groups, caliber of, reputation of,
influence on boy.
9. Leadership and initiative of boy— in what respect; retains friends?
10. How controlled at home. Types of punishment used. Parents strict, lax,
repressive, interfere with each other, punishment certain? What punishment
.appeals to boy?
11. Medical history of boy, such as T.B., meningitis convulsions, other diseases
leaving permanent results.
12. Stealing— how long, nature and amount of theft, reaction when caught,
what is done with articles stolen, why he steals?
13. Lying— protective, for sympathy, reactions when found out.
14. Sex habits.
15. Truancy, from home or school, frequency of, how long, reactions when
caught?
16. Temper displays, nature of, how manifested and why, reactions afterward?
17. Sleep habits, such as night terrors, grinding of teeth in sleep?
18. Peculiar habits such as biting nails, which might be indicative of mental
disturbances.
19. E mployment R eco rd : Mention previous employers, kind of employment,
wages received, reasons for leaving.
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Federal Reserve Bank of St. Louis
APPENDIX C.— SAMPLE RECORD FORMS
309
STATE AGRICULTURAL AND INDUSTRIAL SCHOOL, INDUSTRY, N. Y.
___ ____________________, Superintendent Parole Department
_______ i _______________, Assistant Superintendent, Director of Parole
AGENT’ S HOM E INVESTIGATION— PRELIMINARY
Boy’s n a m e _________________________
Date of b ir t h ________________________
Home address_______________________
Date of adm ission___________________
Why com m itted_____________________
What assistance did you receive from
the court during this investigation?
1. Information concerning parents. Report separately for father and mother
including each of the following points in each case: real or step-relation, address,
relationship with each other, own or rent property, number of rooms, rent paid,
condition of home, weekly income, number in home, reasons for or against recom
mending home of father or mother. In case home of parents unfit and holds no
promise of improvement report also similar information regarding relatives who
might care for boy.
2. What are the present prospects for the boy’s employment when paroled?
3. What prospects has he of joining the scouts, the “ Y ” , the K. of C., or some
other club?
4. What type of home reconstruction is advisable and possible?
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Federal Reserve Bank of St. Louis
310
FIVE STATE INSTITUTIONS FOE DELINQUENT BOYS
STATE AGRICULTURAL AND INDUSTRIAL SCHOOL, INDUSTRY, N. Y.
........ ................................. . Superintendent, P a r o l e D e p a r t m e n t
_______________________ , Assistant Superintendent, Director of Parole
AGENT’ S HOM E INVESTIGATION PENDING PAROLE
B oy’s n a m e _____
Date of b ir t h ___
Home address___
Date of admission
Why committed _
Date for parole consideration
To attend school?___________
Trade h e r e _________________
Religion?____________________
S c o u t_______________ ,______
1. Will the judge forward his recommendations on time?
2. What assistance did you receive from the court during this investigation?
3.
Information concerning parents. Report separately for father and mother
including each of the following points in each case: Real or step-relation, address,
relationship with each other, own or rent property, number of rooms, rent paid,
condition of home, weekly income, number in home, reasons for or against recom
mending home of father or mother. This report should be a comparison or a
contrast with report sent when boy was committed, including any changes in
residence or of home conditions.
[Agent’s hom e investigation—Reverse]
4.
In case home of either parent is unsatisfactory, report here the same informa
tion concerning any relative satisfactory to judge and you who can and will care
for the boy free. 5. If boy is under 16 and cannot be recommended for a return
to home or relatives, what arrangements will the judge and you make for his case
at expense of his city or county? This must be done and this question answered
accordingly. The type of home may await your reception of the summary.
6. What prospects has the boy of employment, especially in trade studied here?
7. What prospects has he of joining the Scouts, the Y .M .C .A ., the K. of C., or
some other club?
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Federal Reserve Bank of St. Louis
APPENDIX C.— SAMPLE RECORD FORMS
[state
seal ]
S tate
of
311
N e w Y ork
STATE AGRICULTURAL AND INDUSTRIAL SCHOOL, INDUSTRY, NEW YORK
——______ _____________, Superintendent
____ __________ _______ , Assistant Superintendent, Director of Parole
SUMMARY AND FINAL REPORT
N a m e_______________________________
Date of b ir t h ________________ _______
A dm itted ___________________________
N ote .—T hese summaries are most strictly con
fidential. T h ey are for the guidance of our field
agents, judges and b y those social agents al re ad y
f a m i l i a r with the family and social background of the
b oy. T hey are also open to school superintendents.
T h ey are not intended consequently to includeja
complete social history of the boys. Clinic, school,
and shop records are attached.
Committed fr o m _____________County
Religion______________________________
R a c e ________________________________
R e latives — W ith A ddress
Father
Mother
Other relatives who might care for boy
L is t o f a gencies interested —
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Federal Reserve Bank of St. Louis
and
C omments
312
FIVE STATE INSTITUTIONS FOR pELINQUENT BOYS
[Summary and Final Report, Page 2]
COLONY REPORT
MEDICAL REPORT
r e c o m m e n d a t io n s
a s g a t h e r e d f r o m c a s e h is t o r y , ju d g e ’ s r e p o r t , s u p e r v is o r ’ s
report, a n d c l i n i c ’s report
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Federal Reserve Bank of St. Louis
APPENDIX C.— SAMPLE RECORD FORMS
313
R E P O R T OF R E C E IV IN G -C O T T A G E OFFICER
BOYS’ VOCATIONAL SCHOOL, LANSING, MICHIGAN
N u m ber______
C i t y ---- ---------I nform ation
re
_______________________________
(Last name)
B o r n -----------------------I n ------------(Date)
(State)
E ntered____________
(First name)
O f ________
(County)
Parentage___________
(Race)
General appearance:
Family history as related by the boy:
Previous personal habits as stated by the boy:
Likes to read
Habitual delinquencies as acknowledged by the boy:
Spent his evenings until
Associated with a gang known as
Has been in a detention h o m e ------------ times for reasons ascribed herein leading
to present commitment:
Has been before a judge
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Federal Reserve Bank of St. Louis
times.
314
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
REPORT OF RECEIVING-COTTAGE OFFICER—Reverse
DEGREES OF RESPONSE TO T R A IN IN G TH E F IRST M ONTH
T o rules of conduct:
_____ _______________________________________
T o methods of correction:
_______________________________________
T o rules of courtesy:
_____________________________________
T o request to study:
v
•-_____________________________________
His personal appearance bespeaks:
___________________________
His attitude toward officials of the school invites:
_________________
___________________________ —------------------ -------- y--His attitude toward other members of the group invites:_______________________
His ability to retain corrective instruction is:____________________________
In applying this instruction, he is:
His mental status as compared with other members of this group appears to be:
He performs the tasks assigned to him:
____________________ ____
Other prominent characteristics are:
His previous musical training consists of:__________________________
His musical desires incline toward:___________'_____________________
His vocational experience includes:________________________________
His choice of a vocation would be:
______________________ _____
The reason advanced for this choice is:____________________________
Possible hindrances to assignment of his choice:____________________
Physical condition:
_____________________________________
Enuresis:
Height
Stage of genital development:
Age
Weight ’
Grade
Comprehension
Former associates in misdemeanor, now inmates of this school are:
Conduct mark for the month thus far is:_________________________ _
Other exceptional conditions or behavior not covered by the above:
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Federal Reserve Bank of St. Louis
■
A P P E N D IX
C —
SAM PLE
RECORD
FORM S
315
PSYCHOMETRIC REPORT
N EW YO R E STATE AGRICULTURAL AND INDUSTRIAL SCHOOL
Ind.:
School:
D a t e __________ ________ _
Racial extraction_____________
Language spoken in home_____
Language spoken in s c h o o l____
N a m e ______________________________
N a tiv ity ------------- Nativity parents
Former school placement____________
School_______________________________
Physical disabilities_________________
Chronological age:
Mental age (a b str.)________
T .Q ._________
Mental age (perform .)____;____ I . Q .________ _
Mental age (com p os.)......... ..
I.Q. (com posj
Psychological profile
I.Q .
Abstract
Language
intelligence abilities
Nonlan.
test
forteu s
maze
Healy
P .C . II
Form
board
M echanics
aptitude
E ducai
tional
150...
140...
130—
120—
110__
00__
90—
80—
70—
6 0 ...
50__
4 0 ...
3 0 ...
TESTS INCLUDED
D ate
Date
Examiner
Examiner
76870- 35-
-21
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Federal Reserve Bank of St. Louis
Test (language)
M .A.
I.Q.
%%»
Test (nonlanguage)
M.A..
I.Q..
% ile
M.A..
HQ-
% fle
Test (special abilities)
316
FIVE STATE INSTITUTIONS FOR DELINQUENT BOYS
PSYC H O M E TRIC R EPO R T, page 2
Ind.:
School:
Name
EDUCATIONAL TESTS
Date
Examiner
Test (form)
E.A.
E.Q.
Reading
Spelling
Language usage
Literature
History and civics
Geography
Physiology and hygiene
Arithmetic reasoning
Arithmetic computation
FORMER TESTS
Date
Examiner
Clinic
Test
SUMMARY. OF PSY CHOMKTRIC STUDY
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Federal Reserve Bank of St. Louis
M ,A *
Or. Equiv.
A P P E N D IX
C . ------S A M P L E
RECORD
317
FORM S
REPORT FOR RESEARCH DEPARTMENT
W H ITH E R STATE SCHOOL
D a t e _________
N a m e ___________ _______
------- ------------------------------ A g e ------------- Date boy rec'd
Transfer recom m ended________________
PZease
underline item s after ea ch h ead in g M a t describe the b o y .
other item s a fter the w ord “ R e m a r k s .”
Average conduct rating:
1
C onduct tow ard s u p er v iso r:
fu
&
t
’S S H S Z
2
3
4
E x p l a in or add
H
5
Willing, obedient, friendly, easily handled resDectful
S S S S
disobedient,
R em a rks:
Friendly, good mixer, leader, kind, is a good influence
qUarrelS° me’ shy’ seclusive- bull~
v <cruel, incites othefs to do wrong!
A ttitu d e tow ard other b o y s :
R ? m a lk * d ly ’
Friendly, they look up to him, seek his compjMiionskij), he is p o p u la rth e y are indifferent to him, avoid him, tease him
consider him queer or goofv, impose on him.
’
A ttitu d e o f other bo ys tow ard h im :
R em arks:
Cheerful, calm, frank, intelligent, has initiative, takes responsibility
W
f 1®’ mdustrlous, honest, melancholy, excitable, worries, deceptive^
dull, stupid, lazy, cannot be trusted, lies, steals, immoral, cowardly, cries is a
P e ™ ° u a¥ y :
n o t f c a T t e C nneriSm »ngUage’ 8WeSr8’ h“
.
temPOT outbreaks, daydreams, has
R em arks:
R e m a r k s ^ e&n’
dirty’ neat’ ,mtid-v > wets bed> masturbates, other habits:
T a k es p a rt i n s p o r ts :
R e a d s : Not
R em arks:
Not at all, very little, average, much, excessively.
at all, very little, excessively.
H a s he p la n n ed to ru n a w a y ?
R em a rks:
Yes
No
D o y o u th in k he is lik e ly to tr y to r u n a w a y ?
Yes •
H i s school s p ir it i s : Excellent, good, fair, inferior, poor.
tcs .*
No
W h a t do y o u con sid er h is w orst tra it ?
W h a t do y o u con sid er h is best tra it ?
M e n t i o n desirable f r ie n d s h ip s a n d c o m p a n io n s h ip s :
M e n t i o n undesirable a ssocia tio n s or c o m p a n io n s h ip s :
O ther co m m en ts: ^ (Please
note here any further information which may be o f use
in understanding the boy. Use back of page if necessary.)
(Signed)
Cottage su p ervisor
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Federal Reserve Bank of St. Louis
318
F IV E
STATE
IN S T IT U T IO N S
FOR
D E L IN Q U E N T
BOYS
COUNSELOR’S REPORT
WHITTIER STATE SCHOOL
Name of boy ___________________________
Counselor
- Date
C o tta g e ________________________________- T r a d e ---------------------------------List contacts with boy:
D a te
C on feren ce sought
B y boy
C h ie f p rob lem d iscu ssed
B y cou n selor
Physical condition:
(Please underline)
Good
Fair
Poor
W hy
Has boy been in hospital? N o Y e s H o w l o n g ! ---- : Does he complain of ailments? N o Y e s Y f h a V l ........
Does he feel inferior physically? N o Y e s W h y ? _ —
Does he need glasses replaced, orthopedic shoes, etc.:
Social adjustment:
To boys in cottage:
‘
To,supervisor: . P o o r
Recommend transfer:
To tradesman: P o o r
Recommend transfer:
To teachers:
Poor
(underline)
F a ir
No
P oor
F a ir
G ood
G ood
Y es
W h y l ----------------
F a ir
G ood
No
Y es
W h yl
F a ir
G ood
Recreation:
Do you c o n s id e r
h is' r e c r e a t io n a l a c t iv it ie s a d e q u a t e ?
D o e s t h e b o y c o n s id e r t h e m s o ?
Y es
No
R e c o m m e n d a tio n s :
Y es
No
Family relationship:
How often does boy h ^ e visits? f —
D<tionsy aThOme?
------Any significant changes at home, such as
divorce, death, births, marriage, change of address, etc.* -
In your opinion is the boy making progress h e r e ? ---------------w w ?
Is he failing to profit by the school program? . . . ----------- w “ yr - - - - - - - Suggestions and remarks as to possible ways to improve boy’s adjustment:
(Please fill out and return to research office)
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
.7
SCHOOL RECORD CARD
Entered
Session
STATE HOM E FOR BOYS, JAMESBURG, N.J.
N o . ----------- N a m e ______
A g e ----------- Date of birth
Address_______
M .A . for grade.
M .A . for grade.
Stanford achievement test scores
Reading
Arithmetic
Language usage
Nature stu dy and science
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
25
26
........
........
........
........ —
........
32
—
33
34
35
36
—
37
38
39
49
41
42
42
44
45
46
47
48
—
........ ........
—
—
..
—
—
-
........
........
........
W orking
31
—
Actual days in
30
Date begin
29
Date finished
Weeks in school________
24
FORM S
____ _
28
23
........
........ ........
27
22
RECORD
W eek......... .............
C onduct.........................
E ffort...........................
English___________________
Geography.........................
History........................
Spelling..........................
Arithm etic................... .........
21
____
—
Weeks in school__________
20
........
.............
Grade
19
SAM PLE
W eek......... .........
1
2
3
C onduct.................... ...........
E ffort.....................................
English___________________
Geography.............................
........ ........
History......... ........................
Spelling..................... ...........
Arithm etic............................. ........ ........ ........
Dictation
H istory and literature
C —
Grade
A P P E N D IX
D ate
Cottage_________
------ M . A . (verbal)................. M . A . (nonverbal)............
Nationality...
—. — ..— . — . Outside grade---------- — Public__ ________ Parochial..__
........——-....... Educational age..................................... *........... J____ j)ate
------.............. Educational age......................................^.................. Date
00
h -i
CO
R A T IN G
320
TRADE SH O P
CARD
STATE AGRICULTURAL AND INDUSTRIAL SCHOOL, INDUSTRY, N.Y.
A g e .............
Date
Date of birth
Shop a.m ., p.m ., or a.d.
School a.m. or p.m .
C olony placement
F IV E
N am e.
........
STATE
Shop
4
3
2
M onth
1
Average
Difficult to
handle
Application: Consider his application
to his work day in and day out.
V ery energetic
Average
Lazy
Neatness and accuracy of work: Con
sider his ability to maintain a high
standard.
Very high
quality
Average
Careless
Reliability: Promptness and regularity.
Can he be trusted to carry through
whatever he starts? Is he honest and
trustworthy?
V ery reliable
Initiative: Consider his success in going
ahead w ith his work without being
told every detail.
Exceptional
Average
Needs repeated
instruction
Aptitude: Consider the ease with
which he is able to learn new methods
and interpret directions.
Extremely
intelligent
Average
Dull
D E L IN Q U E N T
H ighly
cooperative
FOR
Cooperation: Willingness to work with
others in a helpful way. T o be a good
member of the team.
IN S T IT U T IO N S
5
Average V ery unreliable
BOYS
One card is retained
Three cards are to be marked for each b oy at tne ena oi eacn m oniu.
th Th«se cards follow the b oy from one shop to another in case of transfer, w
b y the instructor. A ll cards are returned to the instructor for his marks at tbe
•
+jj« s^0p instructor transfers his shop cards to the new instructor, A t
instructors
a boy is transferred the last instructor will m a rk th eb oy
m S th
T h u sa b oy receives tw o sets of marks from tw odiflerent mstrn
“ u w ^ S k S t h e S f c r S comments such as will help in determining the progress of the b oy.
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
N E W Y O R K STA TE AG R IC U LTU R AL A N D IN D U ST R IA L SC H O O L
HOUSE RECORD
-------- --------------- -------------N a m e --------------------------------Previous w o rk ......................
Departments assigned
D ate of b ir t h ___________________________________
Date of adm ission
...
N ation ality....................................
Tentative d a t e ....................................................... ................................... Paroled . . .
2
3
4
Num
ber è
Year M onth anc W ork assignments hours
day
and transfers
of v
disci
plinë
.......... ..................... ....................................
......
5
6
W h y disci
plined
.......... .....................
Initia C oop
tive
eration
10
..........
—
..........
....
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......... —
:::::::
.............
..
.
.... .............
14
16
Follow
Prog
ing
ress instruc
tion
16
17
Colonies
Officer’s signature
-------- -----
............. .............
.......................................
------ . . . .
..............
- - - - -
------ ------ — -----------------
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—
- .......... ..
.... .... ....
....
....
—
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—
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__ ______ ___
—
............. ............. ................. ................. _________
—
...
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.— —
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.................................. ........ ......... - ............ ............. ................
https://fraser.stlouisfed.org
Federal Reserve Bank of St. Louis
13
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_
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12
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11
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9
Neat
Con
@FedFRASER