i i| lil I i llfli|lli!l|!|'|iji^i|ili|iH^ liiiiiiMii hi iiiiiiiiHti limit tli li Inn i> III 11 iiii? M' ' ' CHILD WELFARE WORK IN PENNSYLVANIA A CO-OPERATIVE STUDY OF CHILD-HELPING AGENCIES AND INSTITUTIONS DIRECTED BY WILLIAM H. SLINGERLAND, PH.D. SPECIAL AGENT DEPARTAVENT OF CHILD-HELPING RUSSELL SAGE FOUNDATION In Co-operation With THE OFFICERS AND A COMMITTEE OF THE PENNSYLVANIA STATE CONFERENCE OF CHARITIES NEW YORK DEPARTMENT OF CHILD-HELPING RUSSELL SAGE FOUNDATION MCMXV *^:ii Copyright, 1915, by The Russell Sage Foundation THE RUMFORD PRESS CONCORD, N. H. PREFACE THIS volume contains the report of a co-operative study, with various inferences drawn from the facts presented in the statistics, and a number of suggestions for the improve- ment of existing conditions. The scope of the study included all organized welfare work in the state of Pennsylvania in behalf of dependent, delinquent, and defective children. The Introduction by Dr. Hastings H. Hart is a resum6 of child-helping methods and conditions with some remarkable sta- tistics comparing Pennsylvania with several other states. One chapter of the book is given to general comments and recommen- dations. Three are devoted to matters of state-wide significance — state supervision of children's institutions, care and segregation of the feeble-minded, and some revised and recent statutes. The final chapter discusses the relations of social and religious forces in betterment work. Attention is called to recommendations in regard to the following: 1. Program in Reference to Mental Defectives (pages 15 and 274) 2. Girard College (pages 16 and 250) 3. Subsidizing Private Institutions (page 21) 4. State Supervision of Children's Institutions (pages 27 and 256) 5. A State Program (pages 31 and 295) 6. A Children's Code (pages 32 and 252) 7. Agency and Institutional Records (pages 239 and 301) 8. Systematic Study and Investigation (page 240) 9. Placing-out Work (page 247) 10. Misguided Benevolence (page 249) 1 1. A Children's Department (page 263) 12. Mothers' Assistance Matters (page 276) The book is intended also to be a manual of reference. It contains a very complete list of Pennsylvania's child-caring in- stitutions, and many important details in regard to each of them. To facilitate its use as a ready reference volume, two carefully pre- pared indexes are placed at its close. One is an alphabetical list of the 343 agencies and institutions studied, with locations; the other, a general index covering the text and tables. iii PREFACE On account of limitations of space, especially in the tables, short titles have been used for some of the institutions instead of the longer legal titles. The name used is generally that by which the institution is popularly known in the community where it is located. In some instances the popular title is the one the officials desire to have universally accepted. Limitations of space also compelled the condensation of textural descriptions of many of the institutions. Readers on this account should give closer attention to the statistical tables, which are arranged to give the maximum of information in the minimum of space, and in systematic form. The statistics and descriptions, except a few comparative tables in the Introduction, are confined necessarily to Pennsyl- vania organizations and institutions. The definitions, suggestions, recommendations, and discussions, wherever they occur, and especially several entire chapters, touch a wider range of subjects which are of perennial interest. The writer gratefully acknowledges his indebtedness to many welfare workers for counsel and material. Especial men- tion should be made of the committee of the Pennsylvania State Conference of Charities and Correction, included in that group of social workers, mainly Philadelphians, known through the study as "our Pennsylvania associates." To name these associates personally might seem invidious; however, the officers of two or- ganizations, the Children's Aid Society of Pennsylvania and the Seybert Institution for Poor Boys and Girls, deserve thanks and commendation for their generous contributions to the expense of the field work. It has been impossible to entirely separate economic, social, and religious matters in treating themes where all are so closely involved. Yet the discussion of most of the more general and philosophic relations of social work has been confined to a single chapter — that on Transition and Progress. The book as a whole is intended to be a sympathetic diagnosis of the situation, a some- what detailed analysis of present needs, and a manual of friendly suggestions as to future action. William H. Slingerland. TABLE OF CONTENTS Preface List of Illustrations Special Tables in Text Index to Statistical Tables Glossary of Abbreviations xvii IV. Almshouses and Poorhouses .... V. Detention Homes of Juvenile Courts . VI. State and County Homes for Dependents . VII. Homes and Training Schools for Delinquents VI 11. Homes and Training Schools for Defectives IX. Institutions for Crippled Children X. Summary for Miscellaneous Institutions for Children PAGE ill vii xiii xiv Part One INTRODUCTORY Introduction. By Hastings H. Hart, LL.D., Director Department of Child-Helping 3 I. Inception and Scope of the Study 35 II. Kinds and Numbers of Institutions 44 III. The Statistical Tables 48 Part Two MISCELLANEOUS INSTITUTIONS FOR CHILDREN 55 66 71 80 95 105 114 Part Three THE CHILD-CARING AGENCIES XL General Child-caring Agencies 123 XII. County Children's Aid Societies of Eastern Pennsylvania 132 XIII. County Children's Aid Societies of Western Pennsylvania 138 XIV. Humane Societies for Children 145 XV. Special Child-caring Agencies 151 XVI. Summary for Child-caring Agencies 157 V table of contents Part Four PRIVATE INSTITUTIONS FOR DEPENDENTS XVII. Private Institutions for Dependents 165 XVIII. Nonsectarian Orphanages and Homes — Cottage Type . 169 XIX. General Church Orphanages and Homes— Cottage Type 178 XX. Nonsectarian Orphanages and Homes — Congregate Type 186 XXI. Catholic Orphanages and Homes — Congregate Type . 198 XXII. General Church Orphanages and Homes — Congregate Type 206 XXIII. Institutions for Combined Care of Adults and Children . 214 XXIV. Summary for Private Institutions for Dependents . . 222 XXV. Summary General for Agencies and Institutions . . 230 Part Five GENERAL AND LEGISLATIVE MATTERS XXVI. General Suggestions and Recommendations . . . 239 XXVII. State Supervision of Children's Institutions . . . 256 XXVIII. Care and Segregation of the Feeble-minded . . . 266 XXIX. Law of 19 1 3 for Mothers' Assistance 276 XXX. Some Revised and Recent Statutes 283 XXXI. Transition and Progress 293 Appendix 299 Alphabetical List OF Agencies AND Institutions . . . . 313 Index 327 LIST OF ILLUSTRATIONS (Arranged alphabetically according to location of institution) Allentown Good Shepherd Home page The Home 216 The Family 216 Friendly Visitors 217 A Marasmic Child 217 Chambersburg Franklin County Children's Aid Society Children's Home 139 Custer City Beacon Light Mission or McKean County Children's Home 279 Darling Glen Mills Schools — Girls' Department (Sleighton Farm) The Buildings 82 On the Porch 82 in the Kitchen 82 In the Field 83 Harvest Products 83 Feeding the Fowls 83 Downington Downington Industrial and Agricultural School Pennsylvania Hall — Boys' Dormitory . . . .189 Carpenter Shop 189 Germantown Jewish Foster Home and Orphan Asylum The Home on Church Lane 207 Boys' Baseball Team 207 Girls' Baseball Team 207 Greenville St. Paul's Orphans' Home Porch of Main Building, and Family 244 Dairy Herd at St. Paul's 244 Hershey Hershey Industrial School View of the School 170 Manual Training Shop 170 vii LIST OF ILLUSTRATIONS I dlewood St. Paul's Orphan Asylum page Main Building 198 The Gardeners 198 Hospital Building Sleeping Porch 199 A Few of the Little Folks 199 Indiana Children's Aid Society of Western Pennsylvania Girls' Industrial School 138 Lancaster Thaddeus Stevens Industrial School Main Building 171 Cottages for Housing Students 171 Mars St. John's Lutheran Home View of Buildings 227 Meadville Meadville Children's Aid Society Home 278 Odd Fellows' Home of Western Pennsylvania .... 260 Millersville Mennonnite Children's Home Main Building 226 Morganza Pennsylvania Training School Industrial Training for Boys 88 Under the Trees 88 Oakdale Boys' Industrial Home of Western Pennsylvania The Home and Its Environs 188 The Family Group 188 Philadelphia Baptist Orphanage A Typical Cottage Orphanage . . Frontispiece A Typical Cottage 178 A Family of Boys 178 A Family of Girls 178 Bethesda Children's Christian Home Main Building 260 On the Playground 260 Charities Building Headquarters of Our Pennsylvania Associates . . .125 viii LIST OF ILLUSTRATIONS Children's Aid Society of Pennsylvania page A Sample Foster Home 124 A Happy Adopted Boy 124 Life Saved by Boarding Out 124 Friends' Home for Children Main Building 227 Gonzaga Memorial Home 46 Home of the Merciful Saviour for Crippled Children Building and Playground 106 House of Detention Building at Arch and Twenty-second Streets ... 66 Roof G\mnasium and Physical Training Class ... 66 The School Room 67 The Kitchen 67 House of the Holy Child A Negro Orphanage 226 House of St. Michael and All Angels The Nursery 106 Methodist Episcopal Orphanage Main Building and One Cottage 179 General Dining Room 179 Philadelphia Home for Infants The Tots' Dormitory 261 The Tots at Play 261 Presbyterian Orphanage of Pennsylvania Two of the Cottages 245 An Orphan Boy 243 An Orphan Girl 245 St. Joseph's House for Homeless Boys The Plant on Pine Street 252 A Congregate Dining Room 252 St. Vincent's Orphan Asylum (Tacony) The Orphanage 253 A Group of Girls 253 Twenty of the Boys 253 Salvation Army Rescue Home Children's Home and Hospital 24 The Bed Line 24 At Play in the Nursery 24 Shelter for Colored Orphans Infirmary and Main Building 23 ix LIST OF ILLUSTRATIONS PAGE On the Playground 25 Kindergarten Girls 25 Widener Memorial School Entrance 107 Front View 107 Rear View 107 Pittsburgh A Great Congregate Asylum Childhood En Masse 10 The March to Supper ii A Typical Institution Class Room 11 Holy Family Polish Orphan Asylum The Lawn Dressers 47 Twenty Little Tots 47 Home for Colored Children 189 Polk Western Pennsylvania Institution for Feeble-Minded General View of Institution 96 Boys' Cottage and Cottage Family 9^ Manual Work School Room 96 Redington William T. Carter Junior Republic The Boys' Cottage 89 Carter Republic Citizens 89 Rochester Passavant Memorial Home for Epileptics View of the Home 97 The Field Workers 97 Women and Girls at the Home 97 Rosemont Home of the Good Shepherd 227 Scotland Soldiers' Orphans' Industrial School Main Buildings 72 Farm Cottage and Driveway 72 View of the Lake 72 Scranton St. Joseph's Foundling Home A Typical Congregate Building 46 Babies' Dormitory 46 X LIST OF ILLUSTRATIONS Topton Lutheran Orphans' Home p^ce Chief Building 206 Play and Profit 206 Girls' Lavatory 206 Warren Warren County Children's Aid Society Summer Camp j,g Williamsburg Blair County Industrial Training Home • • . • 73 Woodville Allegheny County Home (Almshouse) The Building and Its Playground 56 Ward for Men— and Little Boys 56 Playmates at Woodville 5y Caretakers and Children cy SPECIAL TABLES IN TEXT PAGE A. Institutions for dependent, delinquent, and defective children 4 B. Relative size of institutions for dependent children ... 5 C. Comparison of work and resources of institutions for dependent, delinquent, and defective children in eastern and western sections of Pennsylvania 7 D. Comparison of institutions for dependent, delinquent, and de- fective children in four states, 1912 14 E. Work of child-caring agencies in Pennsylvania . . . . 19 F. Subsidies to institutions for dependent children in four states, 1912 22 G. Public and private agencies and institutions by nature of work 47 H. Institutions for dependents by type and management . . 168 I. Property values of 175 institutions for dependents . . . 223 J. Maintenance expense: Amount and per cent derived from pub- lic funds for 175 institutions for dependents .... 224 K. Capacity and children in care for 175 institutions for de- pendents 225 L. Per capitas for current expense and permanent investment for 175 institutions for dependents 225 M. Salaries of employes and children per employe for 175 institu- tions for dependents . 226 N. Feeble-minded persons in Pennsylvania institutions, 19 1 3 271 O. Work under Mothers' Assistance Act in Allegheny County and Philadelphia County during 1914 282 INDEX TO STATISTICAL TABLES GENERAL TABLES Chapters Relating to These Tables Immediately Precede Them (Footnotes will be found at the close of each table. For list of abbre- viations used in tables see page xvii.) Number Sections Page of table Table Groups of agencies or institutions of insti- in set of or of first tutions tables section of set Miscellaneous Institutions for Children Almshouses and poorhouses . 80=* Detention homes of juvenile courts State and county homes for de- pendents Homes and training schools for delinquents Homes and training schools for defectives Institutions for crippled children . 7, Summary for miscellaneous insti- tutions for children ... 35 I 60 ; 9 2 69 5 4 76 11 4 9' 4 4 lOI 6 4 no 117 Child-caring Agencies General child-caring agencies County children's aid societies of Eastern Pennsylvania County children's aid societies of Western Pennsylvania Humane societies for children Special child-caring agencies . 7 5 3 129 9 f 3 135 23 3 142 9 3 I 148 156 13. Summary for child-caring agencies xiv 46 159 INDEX TO STATISTICAL TABLES Private Institutions for Dependents 14. Nonsectarian orphanages and homes — Cottage type .... 15. General church orphanages and homes — Cottage type. 16. Nonsectarian orphanages and homes — Congregate type . 17. Cathohc orphanages and homes — Congregate type .... 18. General church orphanages and homes — Congregate type . 19. Institutions for combined care of adults and children . 20. Summary for private institutions for dependents .... 21. General summary for all agencies and institutions .... 24 1 4 174 19 1 4 182 53 4 190 27 1 4 202 30 f 4 209 22 4 218 175 3 227 256 3 234 ^Not included in summaries; if included, the grand total of agencies and institutions would be 343. GLOSSARY OF ABBREVIATIONS Accom. .Accommodation Exp. Expenses Admin. Administration Admiss. Admission F Female Affil. Affiliation Fam. Family Agen. Agency or agencies Agt. .Agent or agents Gen. General Agrl. Agricultural Amer. American Illeg. Illegitimate Appl. Applicants or application Indust. Industrial Assoc. Association or associated Inf. Infancy Asy. Asylum Inst. Institution or institution; Interdenom . Interdenominational Bd. Board Inves. Investigation Benefic. Beneficiaries Benev. Benevolent Luth. Lutheran Bldg. Building Bur. Bureau M Male Mem. Memorial C. A. S. Children's Aid Society Meth. Methodist Cath. Catholic Mgr. Manager or managers Char. Charity or charities Misc. Miscellaneous Chdn. Children Miss. Mission or missionary Co. County Mos. Months Col'd Colored Com. Committee Neg. Neglected Congr. Congregate No. Number Cott. Cottage Nonsec. Nonsectarian Def. Defective Off. Officer or officers Del. Delinquent Dep. Dependent Pa. Pennsylvania Dept. Department Perm. Permanent Deten. Detention Phila. Philadelphia Dir. Director or directors Pres. President Disch. Discharge Presby. Presbyterian Prob. Probation E. East or eastern Prot. Protestant Epil. Epileptic Prot 'y Protectory Episc. Episcopal Evan. Evangelical Recep. Reception Excel. Excellent Rec'd Received GLOSSARY OF ABBREVIATIONS Ref. Referred Sup. Superior Rel. Relative or relatives Supvn. Supervision Relig. Religious Supt. Superintendent Res. Resident Restr'n Restriction Temp. Temporary Ret. Returned Tp. Township Rom. Roman Tr. Trans. Trustees Transferred Sch. School Sec. Section Vol. Voluntary, volunteer or Seer. Secretary volunteers Sep. Separate So. South W. West or western Soc. Society S. P. C. C. Society for the Prevention Yr. Year of Cruelty to Children Yrs. Years PART ONE INTRODUCTORY In the last analysis our social program is based upon experience with individuals. It may or may not be our own experience. . . . That experience may suggest new ideas; it may corroborate or confirm ideas which have their origin elsewhere; it may demonstrate that certain ideas are erroneous or impracticable; or finally, it may supply us with abundant illus- trations with which to reinforce the arguments in behalf of particular meas- ures. — Edward T. Devine. What we need in this country is not more evidence of luxury and extravagance, but a knowledge of our own fundamental needs, and a dis- position to meet them. The Titanic did not need a swimming tank, it needed life-boats and a better life-saving service. And our Ship of State needs to be so equipped that its first regard shall be for the life and well- being of all the people, and so organized and sensitive that it shall reach its friendly protective care to the least and most humble child in the most obscure part of this great land. — Sherman C. Kingsley. Statistics tell only part of a truth, just as a photograph does. It tells the black and white truth, but does not tell the color truth. And we cannot get all of the facts in any partial way — not all in tabulated sheets, not all in a photograph. — Albion Fellows Bacon. Statistical and scientific study and tabulation have gone further in dealing with delinquent and defective than with dependent children. . . . Perhaps by a statistical study of results we could learn what children, if any, need the regimen of institutional care; what children, if any, thrive under the training of a family home; what children, if any, and what circumstances, lend themselves to successful free placing; what children, if any, and what circumstances, require a boarding home. Statistical information, inter- preted by philosophy, is needed to give convincing evidence on these important questions. — C. C. Carstens. It is a magnificent thing to be hitched up to a job which can never be finished; magnificent, because it means that our opportunity is endless, that we shall never come to the end of its interesting possibilities. ... If we take the infinite for what it is, it is inspiring, first, last, and all the time. It is only when we make the pardonable, but illogical, efi"ort to finish up and bound that which is in its very nature endless and unmeasurable, that we fall into disaster. — Richard C. Cabot. INTRODUCTION By Hastings H. Hart, LL.D. Director Department of Child-Helping of the Russell Sage Foundation PENNSYLVANIA is far in advance of any other state of the Union in the magnitude and generosity of her investments for dependent, delinquent, and defective children. In the study here exhibited Dr. Slingerland has recorded no less than 210 institutions and 53 societies organized for child welfare work. The state of New York comes next with about 188 institutions and child welfare societies. Comparison of Eight States We have made as full a list as possible of the corresponding institutions and societies for the states of New York, California, iMaryland, New Hampshire, Massachusetts, Ohio, and the District of Columbia, which show the largest relative amount of institu- tional provision for children, with the results shown in Table A. Pennsylvania's Liberality It will be seen from the statements in Table A that the state of Pennsylvania has invested in institutions for dependent, delin- quent, and defective children, about $76,000,000,* an amount equal to about ^10 for every man, woman, and child in the common- wealth. This study includes 210 institutions, but more than half of this great investment is in two institutions: Girard College ($34,000,000), and the Widener Memorial School for Crippled Children ($5,132,000); but even omitting these two institutions, Pennsylvania's investment for these classes of children amounts to $36,747,000, which is $479,400 for each 100,000 inhabitants, a ratio *This does not include Carson College for Girls or Ellis College for Girls, with assets of about $9,000,000, because they are not yet in operation. CHILD WELFARE WORK IN PENNSYLVANIA exceeded only in the states of New York and Maryland and the District of Columbia. TABLE A.— INSTITUTIONS FOR DEPENDENT, DELINQUENT, AND DEFECTIVE CHILDREN" Amounts invested in children's institutions Pennsylvania District of Columbia New York Maryland California New Hampshire Ohio Massachusetts 175,879,100 $989,900 2,280,000 689,000 56,745,000 622,600 6,644,000 512,900 10,614,300 446,400 1,650,000 383,200 12,780,000 268,100 8,290,000 246,300 Pennsylvania, omitting Girard College and Widener Memorial School $36,747,100 $479,400 District of Col New York California Massachusetts Pennsylvania Maryland Ohio New Hampshire Current expenses of children's institutions $379,000 $114,500 8,027,000 88,100 1,699,256 71,470 2,021,000 60,000 4,183,000 54.600 671,000 SI. 800 2,008,000 42,100 181,000 42,000 New York District of Columbia California Maryland Ohio New Hampshire Pennsylvania Massachusetts Children in institutions 4.; 15.570 I.37S 21,859" 7.935 a The figures are given for both public and private institutions. They cover the nearest year to 1912 obtainable, ranging from 1910 to 1913- *> The statements are approximate for the District of Columbia, New York, Ohio, and New Hampshire; the figures for institutions not listed by the United States Census or state reports being partly estimated. = This number differs slightly from that in the general tables (2l,74S) because it includes certain institutions for delinquents not listed there. INTRODUCTION We have considered omitting Girard College and the Widener Memorial School from the tables because they derange the com- parisons for all of the institutions included in the study; it did not seem fair, however, to exclude them because they are an essential factor in the child-helping work of the state. It seemed best, therefore, to make the comparative tables in two ways, showing first the statistics, including these two institutions; and second the statistics, leaving them out of account. This splendid array of establishments for the benefit of the needy children of the state is a noble monument to the generosity of her citizens; not only the millionaires who of their abundance have laid great foundations to promote the welfare of thousands of children, but also the multitudes of good people who have united to combine small gifts for the establishment of modest homes for children in all parts of the state. The child-helping work in Pennsylvania is quite as remarkable for its small insti- stitutions as for its great ones, as may be seen by the comparison (see Table B) with the size of similar institutions in New York, which shows that the orphanages and children's homes of Penn- sylvania are, on the average, a little more than one-third as large as those in New York. TABLE B.— RELATIVE SIZE OF INSTITUTIONS FOR DEPENDENT CHILDREN* Children per institution New York Pennsylvania Average number of children per institution New York Pennsylv More than i.ooo 7 2 1.677 1,319 500 and less than i.ooo 14 I 682 575 250 and less than 500 18 100 and less than 250 44 29 150 160 50 and less than 100 35 39 62 68 Less than so 31 76 31 25 » Private institutions only. t' Not including 22 institutions for combined care of adults and children, and one institu- tion for which the number of children is not available. The smaller institutions of Pennsylvania give opportunity for homelike conditions and, while some of them lack the necessary 5 CHILD WELFARE WORK IN PENNSYLVANIA equipment to do efficient work, many of them serve only as tem- porary receiving homes until the children can be distributed into the more favorable environment of selected family homes. On the whole, the smaller Pennsylvania unit is much to be preferred. It is a significant fact that the ratio of all children in institutions in Pennsylvania per 100,000 inhabitants (285) is only a little more than half that of the state of New York (531). The ratio of de- pendent children in institutions in Pennsylvania (203) is less than half that in New York (409). Institutions of Eastern and Western Pennsylvania The state of Pennsylvania is divided by the Allegheny Mountains into two sections which differ both in the amount and quality of their work for children. The eastern section has the two great endowed institutions, Girard College and the Widener Memorial School; but, even without these two institutions, the eastern section has more liberal provision for children and more efficient work than the western section. The line between the eastern and western sections is not clearly defined, but we have counted the following 27 counties in the western section: Allegheny, Armstrong, Beaver, Butler, Cam- bria, Cameron, Center, Clarion, Clearfield, Clinton, Crawford, Elk, Erie, Fayette, Forest, Greene, Indiana, Jefferson, Lawrence, McKean, Mercer, Potter, Somerset, Venango, Warren, Washing- ton, and Westmoreland. The remaining 40 counties are included in the "eastern section," which, according to the census of 1910, had 4,736,596 inhabitants, while the western section had 2,928,515. Table C and the statements which follow exhibit the work and the expenditures in behalf of dependent, delinquent, and defective children in the two sections of the state, and indicate the disadvantages under which the institutions of the western section labor for lack of sufficient financial resources. The foregoing statement reveals the fact that while the capi- tal invested in institutions for children in the eastern section of Pennsylvania, in proportion to the population, is over four times as much as in the western section, the average number of children in 6 INTRODUCTION TABLE C— COMPARISON OF WORK AND RESOURCES OF INSTITUTIONS FOR DEPENDENT. DELINQUENT. AND DEFECTIVE CHILDREN IN EASTERN AND WESTERN SECTIONS OF PENNSYLVANIA" Eastern section, 40 counties All institutions Omitting Girard and Widener Western section, Entire population, census of 1910 Number of institutions for children Average number of children in care Average number of children per institution Children placed in family homes Capital invested Current expense Current expense per child Public funds received Public funds per child FiGtTRES PER 100,000 Inhabitants Number of institutions Average number of children in care Children placed in family homes Capital invested Current expense Public funds received 4.736,596 4.736,596 2,928,51s 132 130 78 14.340 12,750 7,410 109 98 95 1,281 1,281 741 S66,233.6oo J27, 101,600 $9,645,500 2.970,400 2.286.500 1,212,900 207 179 164 806,800 806,800 629,710 56 63 8S 2.8 2.7 2 303 269 253 27 27 25 $1,398,300 $572,200 $329,400 62,700 48,300 41.400 17.030 17,030 21,500 Including public and private institutions. care for each 100,000 people is only one-fifth greater, being 303 in the eastern section against 253 in the western section. The current expenses are larger in the eastern section, in proportion to the population and also in proportion to the number of children cared for. This would be expected, in view of the larger resources of the eastern section. The current expense account is $62,700 for each 100,000 people in the east, as against $41,400 in the west. The expense per child is $207 in the east, as against $164 in the west. If we eliminate the great institutions, Girard College and the Widener Memorial School, the differences are reduced, but the balance is still largely in favor of the eastern section, except in the amount of public funds received, which is $21,500 for each 100,000 people in the western section as against $17,030 in the eastern section. It is not safe to jump at conclusions from these comparisons. The larger expenditure in the east mayor may not represent extrav- agance; the smaller expenditure in the west may or may not represent wise economy on the one hand or niggardliness on the 7 CHILD WELFARE WORK IN PENNSYLVANIA Other. The larger expenditure of public funds in the western sec- tion may represent discrimination on the part of the legislature in favor of the west, or it may be simply a due recognition of the fact that the private resources of the west are less than those of the east. State and County Homes There are in Pennsylvania five state and county homes for dependent children containing about 620 children. Of these homes two are located in Eastern Pennsylvania and three in Western Pennsylvania. The investment in these five homes for land, buildings, and so on, is ^3 1 5,000, and their current expenses amount to about $150,000 annually. There is rather a surprising difference between the showing made by these homes in the two sections of the state as indicated by the following statement by ratios: Amounts per 100,000 inhabitants Eastern section Western section Average number of children in care Children placed in family homes Capital invested Current expense 10.6 0.5 $4,032 2,647 4.1 1.6 ^4.234 848 It will be observed that while the amount of capital invested per 100,000 inhabitants is less in the east than in the west, the expense per 100,000 inhabitants is three times as great in the east. The expense per child is about 20 per cent greater (I249 per child in the east as against $207 in the west). Private Cottage Institutions for Dependent Children There are 43 private cottage institutions for dependent chil- dren included in the study. Thirteen of these institutions were founded before 1890, six between 1890 and 1900, and 24 from 1900 to 19 1 3. The following is a summary of their statistics, reduced to ratios: INTRODUCTION Amounts per 100,000 inhabitants* Eastern section Western section Average number of children in care Children placed in family homes Capital invested Current expense Public funds received 27 $210,100 8,120 629 16 2.9 $21,800 3,100 508 * Including private institutions only. This statement reveals the fact that the eastern section has ten times as much money, per 100,000 inhabitants, invested in cottage institutions which represent the most modern equipment and methods, as the western section, while the current expense is less than three times as great. The excess in investments in the eastern institutions is largely due to endowments. The difference in the relative expenditures for current expense is largely due to superior equipment and more efficient administration. In some of the western institutions the entire expenditure for salaries is not more than would be adequate to secure the services of one competent employe. Private Congregate Institutions for Dependent Children The study includes 1 10 private institutions of the congregate type for dependent children, of which 25 have been organized within the last 1 5 years. The following is a summary of the statis- tics of these institutions, reduced to ratios: Amounts per 100,000 inhabitants' Eastern section, 40 counties All institutions Omitting Girard and Widener Western section, 27 counties Average number of children in care Children placed in family homes Capital invested Current expense Public funds received •75 144 '35 '4-6 14.6 7-3 §943,200 $225,400 §177,800 31,500 19,300 16,300 2,647 2,647 2,888 * Including private institutions only. CHILD WELFARE WORK IN PENNSYLVANIA The investment per 100,000 inhabitants in private congregate institutions in the western section is only 19 per cent of that in the eastern section, but the annual expenditure for current expense in the west is 52 per cent of that in the east, while the number of children cared for is 77 per cent. In other words, with an invest- ment only one-fifth as large in proportion to the population, and a current expense fund only one-half as large, the west is taking care of three-fourths as many children in proportion to the population as the east. As a result we find that the annual expenditure per child is $180 in the east and only ^120 in the west. The per capita expense in the east is not excessive in these times, and the expenditure in the west is too little to enable the institutions to do justice to their children, either as to physical care or as to educa- tion. This is all the more true in those institutions which show a current expense of less than |ioo per capita. Cottage and Congregate Institutions Combined The total investment in private institutions for dependent children, not including 22 institutions for the combined care of adults and children, is ^54,627,200 in the eastern section as against $5,845,400 in the western section, which is almost ten times as much. Girard College has $34,000,000 of the eastern investment of $54,627,200, leaving only $20,627,200 for the remaining 98 insti- tutions; but omitting Girard College we still have an investment of $435,500 for each 100,000 of the population in the east as against $199,600 in the west. Institutions for Delinquent Children We have listed in Pennsylvania eleven homes and training schools for delinquent children, of which seven are located in the eastern section and four in the western section. The average population of the eleven institutions was about 2,650. The amount invested was about $4,000,000, and the annual expenditure about $546,000. The current expense per child was $188 in the eastern section and $254 in the western. The comparative differences between the institutional work for delinquents in the eastern and western sections is indicated by the following statement: 10 u « r^^ O -:q ^1 u 8 INTRODUCTION Amounts per 100,000 inhabitants' Eastern section Western section Average number of children in care 40 25 Children placed in family homes . ^-9 3-2 Capital invested $49,300 $57,100 Current expense 7.565 6,407 » Including public and private institutions. It is interesting to note that the number of dehnquent chil- dren per 100,000 inhabitants in care in the two sections is 8 to 5 in favor of the eastern section; but that the relative amount of capital invested is one-seventh greater in the west than in the east. It is interesting also to observe that while the expense per inhabit- ant is less in the west because of the smaller relative number, the cost per child is 35 per cent greater in the west than in the east. It would appear that it might be profitable to study the possibility of standardizing this work in the two sections of the state. The difference is partly due to the fact that one of the western institu- tions is new and is in process of development, while another has been undergoing gradual reconstruction. Detention Homes of Juvenile Courts Although the law contemplates a detention home for the care of children awaiting the action of the juvenile court in every county, there were only nine such detention homes in Pennsylvania in 19 1 2, of which four were in the eastern section and five in the western section. Only three have buildings of their own, located at Philadelphia, Norristown, and Erie. Only two, those in Pitts- burgh and Philadelphia, contained as many as 10 children at the close of the year. The total number of children cared for during the year was 4,65 1 . No ratios are given for the detention homes for the reason that only four of them handled any considerable number of children. Dr. Slingerland has called attention to the necessity for pro- viding detention homes throughout the state. In cases where the II CHILD WELFARE WORK IN PENNSYLVANIA number of children is not sufficient to justify the county in main- taining a pubHc institution for that purpose, it is entirely practic- able to arrange with some responsible citizen to receive and care for any such children in a private home at a suitable per diem rate. This method has been in successful operation even for so large a city as Boston. Institutions for Feeble-Minded Children The state of Pennsylvania has four institutions for feeble- minded and epileptic children, two in the eastern part of the state and two in the western part. Two of these are public institutions, maintained and administered by the state; two are private insti- tutions, conducted by private boards of trustees. One of the latter derives 74 per cent of its maintenance from public funds, and the other, 43 per cent. These four institutions had a total population in 191 3 of 3,1 14 inmates. The amount invested is about ^3,861,000 and the annual expense about ^682,000. The current expense per child was $238 in the eastern section and $202 in the western. The following is a statement of the work for feeble-minded children, reduced to ratios: Amounts per 100,000 inhabitants' Eastern section Western section Average number of children in care Capital invested Current expense 31 $52,200 7.430 . 56 $47,500 11,276 » Including public and private institutions. Institutions for Crippled Children Pennsylvania has six institutions for crippled children, four in the eastern section and two in the western, with a united capac- ity of 295. The total investment is ^5,753,000, of which $5, 132,000 is that of the Widener Memorial School in Philadelphia. The current expense amounts to about 1 164,000 per year. 12 INTRODUCTION The Widener Memorial School stands in a class by itself. Omitting the Widener Memorial School, the following is a state- ment of the work for crippled children, reduced to ratios: Amounts per 100,000 inhabitants" Eastern Western section section Average number of children in care 2.1 2.5 Capital invested ^,300 $6,100 Current expense 661 873 " Including private institutions only. Dependent, Delinquent, and Defective Children* Table D presents a comparison of children's institutions in four states, as nearly as can be ascertained from the reports of the United States Bureau of the Census, the state boards of charities, and the institutions themselves. It will be seen that there were reported in the state of New York dependent, delinquent, feeble-minded, and crippled children in institutions to the number of 48,400; in California 8,860; in Maryland 4,389; and in Pennsylvania 21,859. The total number of children reported in institutions out of each 100,000 inhabitants was as follows: New York 531, California 372, Maryland 339, and Pennsylvania 285. The average current expense for each child was as follows: New York $166, California $192, Maryland $13'^, and Pennsyl- vania $191. The amount of current expense in children's institutions for each 100,000 inhabitants was as follows: New York |i88,075, Cali- fornia $71,470, Maryland $51,840, and Pennsylvania $54,580. Dependent Children in Institutions. The number of dependent children in institutions for each 100,000 inhabitants; in the states named is approximately as follows: New York 409, Cali- fornia 290, Maryland 170, Pennsylvania 203; the expense of caring for dependent children in institutions for each 100,000 inhabitants: * See Table D, page 14. 13 CHILD WELFARE WORK IN PENNSYLVANIA TABLE D.— COMPARISON OF INSTITUTIONS FOR DEPENDENT, DELINQUENT AND DEFECTIVE CHILDREN IN FOUR STATES. 1912* New York California Maryland Pennsylvania NxMBER OF Inhabitants 9,113.600 2,377.500 1.295.300 7,665,100 Average Number of Children Reported in Institutions Number Delinquent Feeble-minded Crippled 37.267 6,146 3.802 1.18S 6,89s 1,029 936 i!78o 'It 15,576 2,900'' 3. 114 269 Total 48,400 8,860 4.389 21,859'' Number per 100,000 Dependent Delinquent Feeble-minded Crippled inhabitants 408.9 67.4 41-7 13.0 289.7 43.3 39.4 169.6 137.4 25-4 6.4 203.2 37.8 40.6 3-5 Total 531 -I 372.4 338.8 285.2 Expense of Care of Institutions Amount Dependent Delinquent Feeble-minded Crippled Children in JS.685,700 1.333.900 733.600 273.800 Sl,092,9ll 426,563 179.782 $326,998 248,890 57.007 38.594 $2,747,177 590,036 682,119 163,920 Total $8,027,000 $1,699,256 $671,489 $4,183,252 Amount per child Dependent Delinquent Feeble-minded Crippled $153 217 193 231 I159 41S 192 $149 140 173 465 $176 203 219 609 Total S166 5192 $153 $191 Amount per 100,000 Dependent Delinquent Feeble-minded Crippled inhabitants «62,38o 14,640 8,050 3.00s S4S.970 17.940 7,560 $25,245 19. 215 4.401 2.979 $35,840 7.700 8,900 2,140 Total 588,075 571.470 $51,840 $54,580 » Including public and private institutions. b Including several institutions for delinquents not listed in the main Pennsylvania tables and omitting the detention homes. This affects slightly the figures respecting delinquents throughout this table. 14 INTRODUCTION New York $62,380, California $45,970, Maryland $25,245, Penn- sylvania $35,840; the expense per child in institutions for depend- ent children: New York $153, California $159, Maryland $149, and Pennsylvania $176. Delinquent Children in Institutions. The number of delinquent children in institutions for each 100,000 inhabitants, in the states named, is approximately as follows: New York 67, California 43, Maryland 137, Pennsylvania 38. The expense of caring for delinquent children in reformatories for each 100,000 inhabitants is: New York $14,640, California $17,940, Maryland $19,215, Pennsylvania $7,700. The expense per child in institu- tions for delinquent children is: New York $217, California $415, Maryland $140, Pennsylvania S203. Feeble-minded Children in Institutions. The number of feeble-minded in institutions for each 100,000 inhabitants, in the states named, is approximately as follows: New York 42, California 39, Maryland 25, Pennsylvania 41. The expense for caring for feeble-minded children in institutions for each 100,000 inhabitants is: New York $8,050, California $7,560, Maryland $4,401, Pennsylvania $8,900. The expense per child in institu- tions is: New York $193, California $192, Maryland $173, Penn- sylvania $219. In 191 1 a commission was created in Pennsylvania "to take into consideration the number and status of the feeble-minded and epileptic persons." This commission found 1,146 feeble- minded persons in insane hospitals and 2,627 in almshouses, county-care hospitals, reformatories, and prisons, most of whom are maintained at a much higher cost than would be necessary in custodial institutions. A large part of them are feeble-minded women of child-bearing age who can not be sufficiently protected where they now are. Two hundred and four of them are in reform- atories and prisons where they interfere seriously with the legit- imate work of the institution. The commission estimated that there were at least 20,000 feeble-minded persons in immediate need of institutional care and they recommended a large increase in the institutional provision — especially for women of the child- bearing age. The legislature of 1913 responded by appropriating $200,000 3 15 CHILD WELFARE WORK IN PENNSYLVANIA to assist the city of Philadelphia in building for 500 imbeciles and morons at Byberry. They also appropriated $40,000 for prelimi- nary work upon a state "Village for Feeble-Minded Women." Crippled Children in Institutions. The number of crippled children in institutions for each 100,000 inhabitants, in the states named, is approximately as follows: In New York 13, in California none, in Maryland 6.4, in Pennsylvania 3.5. The expense for caring for crippled children for each 100,000 inhabi- tants is: New York $3,005, California none, Maryland $2,979, Pennsylvania $2,140. The expense per child in institutions is: New York $231, California none, Maryland $465, Pennsylvania $609. Girard College The greatest institution for dependent children in Pennsyl- vania is Girard College, for orphan boys. It has probably the largest endowment of any educational institution in America. The college was founded in 1831 and was opened in 1848. The value of the original bequest amounted to about $6,000,000, most of which consisted of lands. Mr. Girard decreed that these lands should not be sold, but be rented or leased. The discovery of valua- ble coal deposits produced a large income whereby the assets have rapidly increased. The value of lands, buildings, and endowments have been, approximately, as follows: 1831, $6,000,000; 1892, $15,000,000; 1902, $24,000,000; 1912, $34,000,000, of which $5,000,000 were invested in buildings and equipment. The assets are now increasing at the rate of about $1,500,000 per year. The capacity of the college is 1,528 boys, and the average number is nearly 1,500. About 9,000 boys have enjoyed the bene- fits of the college since its opening. The annual expenses, at the last report, were $577,000, about $386 per boy, absorbing only about 27 per cent of the income. This amount is entirely sufficient for the present numbers and the present curriculum. It provides a staff of about 450 mem- bers. There are primary, grammar, and high schools, and the fol- lowing mechanical pursuits: mechanical drawing, carpentry and woodworking, machine shop practice, electrical construction, foundry and forge practice, and smithing. Instruction is given in 16 INTRODUCTION bookkeeping, office practice, shorthand, typewriting, and com- mercial law. Boys are received at six to ten >'ears of age and are dismissed before reaching the age of eighteen. Most of them are received between the ages of eight and nine and dismissed between the ages of sixteen and seventeen. There is no question as to the great work which has been accomplished for the 9,000 boys who have come under the care of this great school, or of the conscientious fidelity with which the trustees and officers have discharged their obligations. It is recognized, however, that the time has come in the evolu- tion of the college when it is necessary, in order to carry out the beneficent purpose of the founder, to enlarge the scope of the col- lege. If there were no other reason, the fact that the college is unable to use its income under the prescribed order, and has already accumulated $34,000,000 of assets, would compel them to seek an enlargement of their opportunities. The legislature and the courts have already modified the original terms of the will in some respects, and they can unquestionably make further modifi- cations. In view of the fact that there does not appear to be a suffi- cient number of eligible "orphan bo\s" (that is, boys who have lost either both parents or the father) in Pennsylvania to utilize the resources of the college, it would seem that its scope might be en- larged to include any "dependent boy," as defined by the laws of Pennsylvania. If this change should not discover a sufficient number, it might be necessary to negotiate with institutions and child-helping societies in the state of New York, since boys from that state are eligible under the terms of the will. It would seem desirable that one or more branches of Girard College should be established in other parts of Pennsylvania. An examination of the record shows that, out of 1,512 boys in the college in 1912, about 109 came from the 27 western counties. If a branch were established in Western Pennsylvania it would doubtless attract a much larger number. In the future development of Girard College, the cottage plan should be adopted and should be developed along the lines of such institutions as the Good Will Farm at Hinckley, Maine; 17 CHILD WELFARE WORK IN PENNSYLVANIA the Children's Village at Chauncey, New York; the Hebrew Sheltering Guardian Orphan Asylum at Pleasantville, New York; and the Thorn Hill School at Warrendale, Pennsylvania. The Hebrew Sheltering Guardian Orphan Asylum, in particular, pre- sents an admirable combination, for boys of corresponding age, of a school of letters and a vocational school with practical and indus- trial training. By making each cottage a separate domestic unit, and by limiting the number to 1 5 or 20 boys, it is possible to approx- imate the conditions of an ordinary family home and to do away with most of the evils of "institutionalism." It is generally recognized at the present time that institu- tions of this class ought to present opportunities for agricultural training, and that those boys who develop aptitude for country life should be prepared and encouraged for it. It is recognized also that, even for boys who are to make their home in the city, it is a good thing to learn something of farming, gardening, horticulture, domestic animals, camping, "hiking," swimming, and that it is important to have abundant room for playgrounds and for space between buildings. For these reasons, nearly all of the new estab- lishments for children are being located on farms of from 50 to 1,000 acres. The New York State Agricultural and Industrial School at Industry, and the Thorn Hill School at Warrendale, Pennsylvania, have farm cottages each of which has a small farm of 30 or 40 acres which is worked by the boys of the cottage, with a separate stable, team, cows, and so on. A central industrial group of cottages provides for boys who are receiving industrial training. In his annual report for 191 1, President Cheesman A. Her- rick of Girard College said: "In the last annual report attention was directed to the desire of Stephen Girard to have his institution founded under country conditions. . . . The requirements of Girard were that agriculture should be in the list of occupations to which boys were to be sent from the college. . . . Under present conditions we are not making our contribution to the great need of the time for intelligence on and interest in the country. Nor can I think we are fully meeting the requirements set by the Girard will. We are not only failing to render the largest possible service to the citv boy, but we are doing even greater damage to 18 INTRODUCTION the boys from the rural districts in Pennsylvania, by rearing them under city conditions and giving them a city education. . From every consideration I can see nothing but gain from such a rural establishment. . . . As a matter of policy I trust your honorable board will deem it unwise ever to increase the popula- tion in the present establishment of Girard College. . . . Tak- ing all these facts into consideration, I am moved to recommend in strong terms that you take title to a large tract of land, so that we may plan for the future development on this of an agricultural branch of the college." This recommendation is eminently wise and ought to be adopted without further delay. Child-Caring Agencies Pennsylvania has 37 child-placing societies* for the care of dependent children, 12 in the eastern section and 25 in the western, which is about one-fourth of all the societies of this class in the United States. In addition to these the report covers eight humane societies and the Pennsylvania Society to Protect Children from Cruelty, five in the eastern section and four in the western, which care for neglected children. The following is a summary of the statistics of the child-caring agencies, reduced to ratios: TABLE E.— WORK OF CHILD-CARING AGENCIES IN PENNSYLVANIA Amounts per 100,000 inhabitants Eastern Western section section Child- Placing Societies Children under care 66 40 Children reported placed in famUy homes II. 9 ir.2 Current expense S3. 125 I1.S88 331 Humane Societies* Children under care Children reported placed in family homes 4^6 2.1 Current expense Public funds received 316 94 » Including the Pennsylvania Society to Protect Children from Cruelty. An examination of this statement reveals the reason, in part at least, for the excess of institutional children in the western sec- *Not including seven special child-caring agencies. See Table 12, p. 156. 19 CHILD WELFARE WORK IN PENNSYLVANIA tlon. The child-placing societies of the western district include 23 county children's aid societies. These societies pride them- selves upon doing all of their work through volunteer agencies and using no paid agents. The 23 societies employ one "actuary" who keeps the joint records and acts as an exchange agent for the interchange of children among the 23 societies. The Alle- gheny County society has employed one paid agent at Pittsburgh. The societies of Washington County and Mercer County each employ one paid agent, part time, paying in the one case ^180 per year, and in the other case $75 per year. Whatever case work is done falls to the volunteer members of the several county societies, who give a great deal of time and thought to this work. It is impossible, however, for any volunteers to carry on this responsible and exacting work with due efficiency. It requires a great deal of time to give adequate investigation to such cases, and it requires even more time to select homes properly and to visit and supervise the children after they are placed out. The whole matter of placing-out children is a technical work, and it requires people of training and experience who can give their whole time to it. The plan of having such technical and expert work performed entirely by volunteers harks back to the days of spin- ning wheels and hand looms, the days when doctors were few and for the most part ill-educated, and when trained nurses were un- known. Most of the children's societies in Western Pennsylvania keep very imperfect records, or none at all worthy of the name; they do not seem to have any conception of what modern record keeping means. In our judgment, the fact that the western child-placing societies expended only half as much in proportion to population as the eastern societies, and the fact that they drew from the public treasury only 28 per cent as much money in proportion to the population for the maintenance of their societies, indicate not economy but neglect. Few if any of these societies have been accustomed to make any adequate case study in order to ascertain in advance just what ought to be done for a child and just who ought to do it. The humane societies and the societies for prevention of cruelty to children which care for neglected children show a similar 20 INTRODUCTION difference in favor of the eastern section. The eastern societies cared for more than twice as many children in proportion to the population as the western societies, and they expended more than six times as much money in proportion to the population. The eastern societies are not content to bring the recreant parent into court and punish him by fine and imprisonment, but they en- deavor to ascertain why the parent neglects the child or treats it with cruelty and, if possible, to bring to bear upon the family such reconstructive influences as will inspire the purpose and desire in the hearts of the parents to meet their parental obligations. It is far better to quicken parental affection and parental conscience than simply to inflict upon an ignorant and untrained parent a pun- ishment whose purpose and spirit he is entirely unable to compre- hend. It is being recognized that, in order to accomplish this higher reconstructive purpose, it is necessary to employ agents of training and education. The day is past when the interests of a neglected child can be committed to an agent whose chief qualifica- tions are physical courage and general goodwill towards suffering children. The opinion developed by this study is that while there are some excellent institutions in the west, yet on the whole the western institutions are not as well organized or conducted as those in the east; that there is more disposition to retain children in institutions in the west than in the east. And it is unquestionably true that the child-placing societies of Eastern Pennsylvania are better organized and better supported than in the west, and that there is a spirit of co-operation and team work among the different child-placing societies which is for the most part absent in the western section. The Subsidy System in Children's Institutions The plan of subsidizing private institutions from the public treasury— especially from the state treasury— is practiced upon a very large scale in the state of Pennsylvania. Grants are made from the state treasury to private institutions for dependent, delin- quent, deaf, blind, feeble-minded, and crippled children ; also to private hospitals, homes for the aged, homes for incurables, and so on. State appropriations were given in 1912 to 301 private institutions, 21 CHILD WELFARE WORK IN PENNSYLVANIA TABLE F.— SUBSIDIES TO INSTITUTIONS FOR DEPENDENT CHILDREN IN FOUR STATES, 1912^ New York California Maryland Pennsylvania Subsidized Catholic Institutions Number of institutions 58 Average number of children in care 2 Number 21,894 3 Number per institution 377 4 Number per 100,000 inhabitants 240.2 of care of children in insti- tutions 5 Amount $3,006,890 6 Amount per child 137 7 Amount per 100,000 inhabitants 32,993 2,923 1,438 183 144 122.9 III $350,565 SISI-I05 $350,098 120 105 99 14,745 11,665 4.567 Public funds 8 Amount $2,356,330 9 Amount per institution 40,626 10 Amount per child 108 11 Amount per 100,000 inhabitants 25,855 38,070 $56,766 $70,036 13,004 S.677 3.686 71 39 20 8,751 4.382 914 Subsidized Non-Catholic Institutions Number of institutions Average number of children in care 2 Number 3 Number per institution 4 Number per 100,000 inhabitants ,699 ISS 95.5 Expense of care of children in insti- tutions 5 Amount $1,589,220 6 Amount per child 183 7 Amount per 100,000 inhabitants 17.43S 846 2,S96b 60 42 65.3 33-9 $579,328 $130,038 $466,546'' 184 154 180 24,367 10,039 6,087 Public funds 8 Amount $839,457 9 Amount per institution 14.990 10 Amount per child 97 11 Amount per 100,000 inhabitants 9.2 11 $158,755 $33,896 $215,885'' 3,872 2,421 3.482 50 40 83 6,677 2,617 2,816 All Subsidized Institutions Number of institutions Average number of children in care 2 Number 3 Number per institution 4 Number per 100,000 inhabitants Expense of care of children in insti- tutions 5 Amount $4,596,110 , 6 Amount per child 150 7 Amount per 100,000 inhabitants 50,431 30,593 6,074 2,284 6,139'' 268 107 95 76 335.7 255.5 176.3 80.1 $929,893 $281,143 $816,644'' 153 123 133 39,111 21.704 10,654 Public funds 8 Amount $3,195,787 9 Amount per institution 28,033 10 Amount per child 104 11 Amount per 100,000 inhabitants 35, 066 $366,825 6,436 $90,662 $285,921'' 3.778 3.S30 40 47 6,999 3.730 ' Including private institutions only. ' Omitting Avery College. INTRODUCTION including no less than 8i* private institutions for children, as shown in Table F, in addition to 33 children's aid societies, five humane societies and one society for the prevention of cruelty to children; a total of 120 subsidized institutions and agencies for children. In some states grants of public funds are made on a per capita basis, according to the actual service rendered. In Pennsylvania grants from the state treasury are usually made in the form of a lump sum to each institution, without any definite and uniform basis. Grants from county treasuries are made in many cases according to the actual service performed; for example, appropria- tions are made to reimburse children's aid societies for actual amounts paid out for the board of children. It is generally agreed that the plan of making appropriations to private institutions in lump sums is inequitable and liable to abuse. There is a great temptation to allow such grants to come under partisan political influences, and it is practically impossible so to adjust them as to make a fair distribution. The Subsidy System in Four States There are four states of the Union in which the plan of public grants to private institutions has been pursued to a larger extent than in any other states. These are New York, California, Mary- land, and Pennsylvania. There is submitted herewith a state- ment (Table F) exhibiting the amount of such appropriations in these four states. We have arranged them in the above order because, in most cases, the ratios are in this order; Pennsylvania having the lowest ratio both of numbers and expense. We have separated the Catho- lic institutions from the non-Catholic institutions for the reason that there is a marked difference in the scale of expenses of the Catholic institutions, owing to the fact that they enjoy the unpaid services of Sisters and Brothers. The following summary of the statistics in Table F furnishes material for an interesting study respecting the subsidy system: * Omitting Avery College. 23 CHILD WELFARE WORK IN PENNSYLVANIA SUMMARY OF TABLE F New York California Maryland Pennsylvania Children per institution All institutions Catholic institutions Non-Catholic institutions Number of children per 100,000 inhabitants All institutions Catholic institutions Non-Catholic institutions Expense of care per child All institutions Catholic institutions Non-Catholic institutions Expense of care per 100,000 inhabitants AH institutions Catholic institutions Non-Catholic institutions Public funds per institution All institutions Catholic institutions Non-Catholic institutions Public funds per child All institutions Catholic institutions Non-Catholic institutions Public funds per 100,000 inhabitants All institutions Catholic institutions Non-Catholic institutions 268 377 ISS 107 183 77 95 144 60 76 186 42 336 240 96 256 123 133 176 iir 65 80 46 34 $150 137 183 $153 120 184 $123 105 154 $133 180 150,431 32,993 17.438 $39,111 14.74s 24.366 $21,704 11.665 10.039 $I0,6S4 4.567 6.087 $28,033 40,626 14,990 $6,436 13.004 3.872 $3,778 5.677 2,421 $3,530 3.686 3.482 J 104 108 97 $60 71 50 $40 39 40 $47 20 83 $35,066 25.855 9.2ir $15,429 6.677 $6,999 4.382 2,617 $3,730 914 2,816 Although the number of subsidized institutions in Pennsyl- vania (82*) is 72 per cent of that in New York (114), the average population of the Pennsylvania institutions (76) is only 28 per cent as large as in the New York institutions (268), and 71 per cent as large as that of the California institutions (107). The number of children in subsidized institutions in Penn- sylvania out of each 100,000 population is only 80, one-fourth as many as in New York (336), one-third as many as in California (256), and one-half as many as in Maryland (176). This is doubt- less due to the efficiency of the best children's aid societies in Penn- sylvania and the wider development of the placing-out method. The expense per child for maintenance is ^133 in Pennsyl- vania, as compared with ^i 50 in New York, |i 53 in California, and $123 in Maryland. It is important to note that while the average * Including Avery College. 24 Ihe Bed Line 1 i: Ii' ||ii^^^ ^^^^^^^^■■^1 m K ii^i^fr-*^^ ^ ' 1 ^jr'^jr.'~f^j''j: '^^^^H^-t^ i. Salvaiion Akmy RiiSCL'E HoMi-;, Philadelphia. (Sec p. 206) m mt' "*"-»• ' f^ ^r .1 lntirmar\' and Alain ISuildint ( )n the Playground \ "•^^rl J^^ w^^™^ r Kindergarten Girls Shelter for Colored Orphans, Philadelphia. (See p. 207) INTRODUCTION rate per child in the non-Catholic institutions in Pennsylvania (^i8o) is nearly equal to that in New York ($183) and that in Cali- fornia ($184), though it is greater than that in Maryland ($154), the average rate per child in the Catholic institutions of Pennsyl- vania (S99) is much less than in New York ($137) and California ($120), and about the same as in Maryland ($105). Catholic insti- tutions have uniformly a lower rate of maintenance than non- Catholic institutions because, as already stated, the Sisters and Brothers serve without pay and thus reduce the salary cost; but it is impossible in these days to maintain a proper standard of institutional care for children for Si 00 per year. The expense of maintaining children in subsidized institu- tions for each 100,000 inhabitants in Pennsylvania ($10,654) is one-fifth as much as in New York ($50,431), one-fourth as much as in California ($39,111), and one-half as much as in Maryland ($21,704). While the aggregate amount of public funds appropriated to children's private institutions in Pennsylvania ($286,000) seems large, yet the amount appropriated to many of the institutions is entirely inadequate as appears from the facts stated below. The average amount appropriated per institution is: in New York $28,000, in California $6,400, in Maryland $3,800, and in Penn- sylvania $3,500. The amount appropriated per child resident in subsidized institutions is as follows: in New York $104; in Califor- nia $60; in Maryland $40; and in Pennsylvania $47. The amount of public funds appropriated per child in Catholic and non-Cath- olic institutions is as follows: New York California Maryland Pennsylvania Catholic $108 $71 $39 $20 Non-Catholic 97 50 40 83 It will be observed that while the rate for Catholic and non- Catholic institutions is just about equal in Maryland, and the rate for non-Catholic institutions is 10 per cent less in New York and 30 per cent less in California, in Pennsylvania the rate for Catholic institutions is only 24 per cent of that for non-Catholic institu- tions. The result is that many of the Catholic institutions can not and do not provide adequately for their children with the funds 25 CHILD WELFARE WORK IN PENNSYLVANIA at their command. In 16 out of 27 Catholic orphanages and homes, the annual current expense is reported $80 or less per child, and in II, ^70 or less per child. Of the 16 institutions which spent |8o or less per child, seven received no public money and nine averaged public grants of $12.42 per child! No Governing Principle of Distribution In view of these facts, the low rate of public subsidies in Penn- sylvania can not be commended as an economy. If public appro- priations are to be made to private institutions, they should be sufficient to permit adequate care. There appears to be no governing principle in the distribu- tion of public funds to institutions. We find that in 13 subsidized institutions, whose average population was 25 or under, the amount of public funds per child and the percentage of current expense taken from public funds were as follows: Public funds per child Per cent of current expense from public funds Public funds per child {continued) Per cent of current expense from public funds {continued) II47 57 I46 32 127 48 28 27 91 45 19 7 88 39 18 12 80 38 16 12 62 37 11 18 60 52 Average 13 institutions 64 35 Out of 38 child-caring societies which receive public funds, there are 14 whose expenses are less than $500 each, and whose income from public funds is less than $160 each. These 14 socie- ties are those of the counties of Fayette, Clearfield, Washington, Elk, Mercer, Clarion, Butler, Greene, Center, Armstrong, Potter, Jefferson, Beaver, and Cameron. The amounts expended for current expense and the amounts of public funds received for each of these 14 societies are: 26 INTRODUCTION Current expense Public funds Current expense Public funds (continued) {conlinned) I476 I121 $167 I128 428 102 167 127 368 S3 142 94 271 121 lOS 210 lOI 88 202 ^F 76 21 171 89 31 48 There does not seem to be any sufficient reason why pubHc funds to the amount of $3.00 or %2 1 should be appropriated to assist in the maintenance of a society in any one of these rich counties of Western Pennsylvania whose total expenditures are $500 or less. It is doubtless true that the public appropriation is largely responsible for the pitiful amount expended by these societies. People say: "The state is supporting this work, therefore it is not necessary for us to contribute." These 14 societies undertake to place children in family homes, and some of them pay board for children in family homes. As we have already stated, placing children in family homes is a technical and expert work, which should be performed only by people of special training and effi- ciency. If public appropriations are to be continued to these small societies they should be conditioned upon the employment of competent paid agents and the maintenance of a strict and faith- ful watch-care over children placed in family homes. Inadequate State Supervision The law requires that the state board of public charities shall make a recommendation to the legislature with reference to each institution which applies for a state appropriation. This recommendation is based, first upon a visit and report by an agent of the board and, second, upon hearings given by the board to representatives of the several institutions. The reports of visits average about 50 words each. The following is a sample report: "Children's Home October 12, 1911. Capacity, 75. Inmates, 36 boys and 14 girls. Home is in good condition throughout, large comfortable rooms and plenty of ventilation. Beds are clean and comfortable; toilets and baths clean, although some are old. The school 27 CHILD WELFARE WORK IN PENNSYLVANIA room is large and has plenty of light. The children are all well and appear to be happy." These reports are necessarily so brief that it is impossible to give information with reference to the quality and scope of school work, the competence and efficiency of employes, budgets, expense per child, rates of salaries, dietaries, and other important items. The board has only two visiting agents for 300 institutions. The hearings before the board are necessarily hasty. If 300 institutions were given ten minutes each, that would amount to 3,000 minutes, equal to 50 hours, amounting to eight days of six hours each. The writer attended two such hearings where he saw representative people of Philadelphia, Harrisburg, and Pittsburgh awaiting their turn for an hour or two at a time. When at last they were ushered into the board room they found a weary com- mittee, drowned in a mass of heterogeneous information. They were exhorted to be brief and were limited to perhaps ten minutes in which to set forth the needs and deserts of an important insti- tution. Under such circumstances it was impossible to present the claims of an institution intelligently and it was impossible for the board or its committee to receive or retain a clear impression of the several applicants. The writer was informed that some institutions remained unrepresented, preferring to trust their interests to the intelligence and right purpose of the board rather than to try to present their claims under such difficult circum- stances. Acting upon such information as it could obtain, the state board has been accustomed to make its recommendations to the legislature, but it appears that these recommendations have been lightly regarded because the legislative committee made an inquiry and held hearings of their own. It became necessary for the rep- resentatives of the institutions to go through the same process of long waiting and hasty presentation before a weary and confused committee. When the legislative committee had agreed upon and passed the appropriation bills, that was not the end of the matter. The legislature invariably voted appropriations in excess of the expected revenues of the state, and the governor was obliged to cut down the appropriation bills, in accordance with his consti- INTRODUCTION tutional privilege, in order to keep them within Hmits. It again became necessary for the institutions to bring to bear such influ- ences as they could command upon the governor to protect their appropriations, it was simply impossible for the governor to make an equitable adjustment of this matter. He had to do the best he could and the temptation was to make his reductions along the lines of least resistance, so that modest boards of trustees who desired to avoid unnecessary trouble and annoyance to the governor were likely to suffer for their forbearance. It is encouraging to note that the appropriations committee of the last legislature discouraged the plan of holding hearings and announced their intention to follow the advice of the state board of public charities. The rational method would seem to be to place a gross sum at the disposal of the state board of public charities and to have them distribute it on the basis of actual work performed, taking into account the resources of the institutions from local appropriations, endowments, donations, and pay pa- tients, and withholding grants from institutions which do not main- tain adequate standards of equipment and efficiency. The state board of public charities should have a sufficient force of com- petent investigators to enable them to do the work so efficiently as to command the confidence of the legislature and the people. It is suggested that the state of Pennsylvania should abandon the plan of making lump appropriations to 300 institutions in the present haphazard fashion and, if the subsidy plan is to be con- tinued, should adopt the plan of paying for actual work done, on a weekly or monthly per capita basis, as is done by the counties of Eastern Pennsylvania in their dealings with the Pennsylvania Chil- dren's Aid Society. If this plan is adopted, however, it should be carefully safeguarded in order to avoid the difficulties which have been experienced in the management of subsidies on the per capita basis in the state of New York. The safeguards to be adopted should include the following: First, a careful case study by efficient agents to determine whether the child is a proper subject for the care of an institution or a child-placing society and, if so, whether it should be cared for as a dependent, a neglected, a defective, or a delinquent child. This 29 CHILD WELFARE WORK IN PENNSYLVANIA Study should determine the question whether the child's mother is fit and competent to care for it and, if so, provision should be made, if necessary, under the mothers' pension law. Second, the establishment of minimum standards of insti- tutional care and treatment. These minimum standards should not be less than the following: That the institution shall be certi- fied annually by the state board of public charities or a state board of children's guardians as having a competent board of trustees; an efficient superintendent; an adequate and properly paid employe staff; sanitary, comfortable, and suitable buildings, not overcrowded; proper school facilities and, if children are kept beyond the age of twelve years, proper industrial training; and such financial resources as will enable the trustees to preserve these standards when once established. Public appropriations should be strictly forbidden to institutions which do not meet these requirements. Third, the supervising state agency should be authorized to prescribe or provide thorough and continued supervision over chil- dren passing from the care of institutions and societies until they are safely established in life. The state board of public charities or board of children's guardians should have liberal appropria- tions to enable them to perform these duties. Fourth, corresponding standards of efficiency should be estab- lished with reference to child-placing societies receiving public funds, and similar precautions should be taken to insure the wel- fare and happiness of children placed in family homes by such societies. It would be useless to undertake such work as has been rec- ommended without an adequate force. Instead of the present staff of two visitors for the entire state, the state board of public charities would require at least 20 visitors. The state of Massa- chusetts, with less than half the population of Pennsylvania, em- ploys 40 children's visitors, besides the necessary clerical force. But such a plan would, in the end, save the state far more than its cost by relieving the institutions of the care of children who could be suitably cared for by parents, relatives, or foster-parents. On the other hand, the expense of the system would have to 30 INTRODUCTION be increased by such a sum as might be found necessary in order to insure the proper care and maintenance of children, taking into account the increased cost of hving. A State Program of Child Welfare This study of the child welfare work of Pennsylvania reveals the fact that no comprehensive or logical plan has ever been at- tempted. The question whether the need of any particular class of children shall be met has been determined by the individual caprice of some testator, or by the generous impulse of some group of women, or by the personal initiative of some legislator. Gen- erous and adequate provision has been made for the needs of some classes of children, while others equally deserving or equally in need have been neglected. The provisions for certain classes of children are abundant in some sections of the state, while in other sections they are lack- ing, and the resources and efficiency of child-placing societies are much greater in some parts of the state than in others. There is excellent provision for delinquent boys and girls in institutions, but entirely inadequate provision for their watch-care and guidance after dismissal from the institutions. Some counties provide well organized juvenile courts with competent judges and probation officers, while others absolutely ignore the juvenile court law and leave their children to be dealt with by police magistrates, without any probation officers. Millions of dollars have been provided for the care of normal orphan girls, which can not be used because the girls of that class are so few. At the same time, thousands of defective girls are allowed to run at large and to reproduce their kind for lack of suffi- cient institutional provision. A State Problem The only way in which the problem can be adequately solved is from the viewpoint of the state at large. It is impossible for municipalities to deal adequately with these different classes of children except in the most populous and wealthy communities, 4 31 CHILD WELFARE WORK IN PENNSYLVANIA and even these communities are dependent upon the rural districts to provide family homes for their dependent and delinquent chil- dren after they are sent out from institutions. On the other hand, the rural districts need the benefit of state and private institutions for special classes, like Girard College for orphan boys, the Elwyn School for Feeble-Minded, the Widener Memorial School for Crippled Children, and the Glen Mills Schools for delinquents. They need also such co-operation with expert agencies as has been established by local children's aid societies and county officials in Eastern Pennsylvania with the Children's Aid Society of Penn- sylvania. A Tentative Outline of a State Program A. Secure the co-operation of the most efficient and patriotic organizations which deal with child welfare: for example, the state board of Public Charities; the Public Charities Association of Penn- sylvania; the best organized children's aid societies; societies for the prevention of cruelty to children; women's clubs; juvenile courts; child labor committees; mothers' clubs; public and private insti- tutions for dependent, delinquent, and defective children; also the attorney general and state and city bar associations. B. Call a session of the State Conference of Charities to consider the question of a children's program. Let this conference create a committee representing each of the important child-help- ing institutions of the state, for the purpose of outlining a compre- hensive state program for child welfare. The child welfare program should contemplate a plan to cover a series of years probably extending from ten to fifteen years, with the final aim to cover the entire field. C. Secure legislation for the creation of a state commission to prepare a children's code, to embody all legislation affecting dependent, delinquent, and defective children; the children's code to cover: 1. The supervision of all public and private child-helping agencies by the state board of public charities. 2. The creation of a department of the state board of public 32 INTRODUCTION charities, a state board of children's guardians, or other state agency for the care and oversight of all children who are public wards. 3. The juvenile court law. 4. Legislation providing for the physical, medical, and psy- chological examination of children; also a careful case study of all children under consideration for court action or for care by chil- dren's societies or institutions. 3. Legislation with reference to the creation and government of orphanages, children's homes, children's aid societies, and other organizations dealing with orphans and dependent children, and the care and guardianship of such children. 6. Legislation with reference to the organization of societies for the prevention of cruelty to children and for the care and pro- tection of neglected children. 7. Legislation regulating the organization and management of institutions for delinquent children and for the parole and watch-care of such children. 8. Legislation defining feeble-mindedness and providing for the adjudication of the question of feeble-mindedness; the segre- gation of feeble-minded children and adults; the creation and regu- lation of institutions for their care. 9. Legislation providing for the care and segregation of epileptic children. 10. Legislation providing for the surgical treatment of indi- gent crippled children, and for the organization and control of public and private institutions for the treatment and care of crip- pled children. 1 1 . Legislation providing for the care and treatment of incur- able children. Pennsylvania has already, abundant resources in buildings, endowments, societies, and a multitude of interested and devoted people who are giving their time and their money for the benefit of the children of the state. What is needed is to coordinate these resources and to bring them into effective co-operation. The child-helping organizations of Pennsylvania need to bring their methods into accord with the spirit of the twentieth 33 CHILD WELFARE WORK IN PENNSYLVANIA century just as her great manufacturing institutions have done in the commercial world. The desirability of this is clearly recognized by many thoughtful citizens of the Commonwealth, and there is every reason to believe that such coordination and co-operation will be largely accomplished before the close of the present decade. 34 CHAPTER I INCEPTION AND SCOPE OF THE STUDY FOR several years the Russell Sage Foundation has been gathering statistics and information concerning the child- helping agencies and institutions of Pennsylvania. After the study had made considerable progress, leading social work- ers of the state, including the officers and a committee of the Pennsylvania State Conference of Charities, — hereafter mentioned as our Pennsylvania associates, — asked that its original scope be enlarged to include more details as to numbers of children served, institutional property values, current cost of work, and forms of administration. To make this more comprehensive in- quiry within a limited time, and to obtain uniform statistics, re- quired the services of a number of trained investigators, personal visits to the institutions, and the use of formal schedules. To cover the cost of such a study and to secure its comple- tion in a reasonable time, two Philadelphia organizations, the Children's Aid Society of Pennsylvania and the Seybert Institu- tion for Poor Boys and Girls, offered to bear a part of the expense. Under these conditions the Department of Child-Helping of the Russell Sage Foundation consented to undertake the task, it assigned to the work two of its own agents; the Pennsylvania associates also provided two visitors to work under the direction of the special agent of the Department. The field work of the co-operative study began June i, 1912. After the visitation of institutions was completed the Department continued in frequent communicatiom with many of them in all parts of the state. The work of classifying, tabulating, digesting, and interpreting the material gathered has gone forward as rapidly as possible. The task of arranging and formulating a general report in a study of this kind takes even more time than the field work, but the results are now available. The inquiry covered many details and characteristics of the 35 CHILD WELFARE WORK IN PENNSYLVANIA child-caring work of the state, among which the following are most important : SCOPE OF THE INQUIRY 1. The number, capacity, type, and quaHty of the agencies and institutions. 2. The amounts invested in institutional property, and the cost of the child-helping work, both to private organizations and to the public treasuries. 3. The number, kinds, and classes of children handled, whether placed out in homes or cared for in institutions. 4. The reasons given for the dependency or the delinquency of the children requiring agency aid or institutional care. 5. Carefully compiled statistical tables exhibiting in classi- fied form the work of these agencies and institutions. THE SCHEDULE The arrangement of a satisfactory schedule was ex- ceedingly difficult. From previous experience the Department of Child-Helping desired to limit the points to be considered to the minimum. On the other hand, the Pennsylvania associates wanted information on a multitude of matters, including a great many interesting details of work and management. The resultant schedule was a compromise, omitting many things the Pennsyl- vania associates desired included, and including a number of points the Department would have omitted. As a sample of co-operative questionnaire building, and as a suggestion of details to any who are preparing for similar studies, as well as to show the basis on which the material used in this study was gathered, the schedule will be of interest to social workers. Its reproduction here gives the source from which the tables and deductions presented were derived. In form, the schedule was a four-page folder of letter size, a sheet 11x17 inches, folded once. The reduced size here printed may give the impression that the space was greatly crowded, but with the above dimensions the print was clear and the writing space ample. 36 RUSSELL SAGE FOUNDATION John M. Glenn, General Director, 105 E. 22nd St.. New York City. DEPARTMENT OF CHILD-HELPING Hastings H. Hart, Director. W. H. Slingerland, Special Agent; STUDY OF PENNSYLVANIA AGENCIES AND INSTITUTIONS FOR THE CARE OF DEPENDENT, DELINQUENT AND DEFECTIVE CHILDREN PART I— GENERAL INFORMATION. 1. Corporate name Popular name, if different- 2. Location . Town Street address 3. Year founded -County- -Date of incorporation- 4. State, county, or private mstitution _ 5. Under control of what church, order, society, or other body? 6. Inventory of property; (1) Value of lands composing site of plant — (2) Value of buildings, furnishings, etc -_ (3) Amount of invested funds, endowment and lands not inoiuded above- Total value of property . Give source of information, and basis of estimate- 7 Is institution built and conducted on "Cottage" plan? (1) If so, what type, "A" or "B"? (See note 12, Page 4)_ (2) Capacity of each cottage (children) _ (3) Total capacity of institution. (See note 4, Page 4) _ (4) No. of single beds .No. of cottages. .No. of double beds Note: List as "cottages" only buildings in which children sleep. 8. Is institution built and conducted on "Congregate" plan? (1) If so, what type, "A" or "B"? (See note 12, Page 4). (2) Capacity of each building (children) .Xo. of buildings (3) Total capacity of institution. (See note 4, Page 4). (4) No. of single beds List as "buildings"'only those .No. of double beds- ifhich children sleep. 9. Name important buildings not included above; give type and material of buildings; and condii suitability. to repair, order, and Facsimile of Schedule Used in Co-operative Study, p. i PART II— FINANCIAL STATISTICS. 10. Receipts for (1) From state treasury (2) From county treasury (3) From municipal treasury (4) From invested funds, endowment and rents. (5) From general donations (6) From relatives toward care of inmates (7) From miscellaneous sources . Total income for year- U. Expenditures for year ending.. (1) For salaries and wages. (2) For food supplies-. _ (3) For fuel and light (4) For school expenses . $_ (5) For miscellaneous expenses — . $- (6) For buildings and_ improvements $_ (7) For investment or permanent endowment- Total expenditures for year PART III— ACTIVE. WORKERS. 12. Executive officer — Title Name 13. Number of paid employes Male Female Total Number of unpaid employes Mal e - F emale T otal - — Total number of employes Male —Female Total _ PART IV— BENEFICIARIES, ADMISSION AND DISCHARGE. 14. Classification of beneficiaries: (1) Dependent, Delinquent or Defective? _ (2) Race or color limitations? (3) Sex and age limits: Ages Received Ages Dismissed Boys __ ___ Girls (4) Other requirements — (Must they be orphan, destitute, under 15. Reception of children; (1) How are applications for admission made?- (2) What investigation made to ascertain real need, proper guardian, family history, etc.? (3) By whose authority passed upon. Superintendent, Matron, Committee of Board, etc.? Facsimile of Schedule Used in Co-oper.'^tive Study, p. 2 16. Dismissal from institution: (1) Who authorizes dismissal of inmates?- (2) What after supervision given? 17 Placing out work: (1) Are children placed out in families? (a) With board paid? — (2) What supervision given placed-out children?- -(b) In free homes? PART V— STATISTICS OF CHILDREN. Children cared for during year ending ■ (1) In institution at beginning of year— (2) Children received first time (3) Wards of previous years returned — (4) Total different children in year (Counting no child more than once) 19. Disposition of children cared for during year (1) Placed in family homes (2) Returned to kin _— (3) Died at institution or in temporary c outside.. (4) Transferred to other institutions permanently (5) Otherwise disposed of (6) Remaining in institution (7) Total different children, i t close of year- in "18 (4)" Children in institution at close of year classified by reasons, given for dependency; Death of one or both parents Wilful desertion or abandonment Cruelty, neglect, or other mistreatment- Homeless or destitute because of illness, poverty,' or other parental disability : (5) Total in institution close of year (same as 19 — 6) How many children cared for during year were illegitimate Estimated average daily census of children in institution during the year— . 23. Sources from which wards in institution at close of year were received, and relational condition : Both is. Both Found- lings Total Rplativpi; and fn>nH« Other npenrif? Total f.;amp a= \<)—f,\ 24. Total number of children outside of the institution but still under its control or supervision at close of year. 25. Does institution publish an annual report?- 26. What records are kept showing sources from which children are received, reasons for dependency, family history, health, physique, etc. Facsimile of Schedule Used in Co-operative Study, p. STUDY OF CHILD-HELPING INSTITUTIONS. Suggestions and Definitions. 1. Make every word and figure legible. Careless work is worthless. 2. Statistics are to be secured for the latest possible full year, fiscal or calendar. Statistics for finances and population should cover the same time. 3. Secure or make an estimate of property value, if none has been officially made by the institution. Advise with busi- ness n-.en if necessary. The land valuation should show number of acres or measurement in feet. Indicate whether the valuation is original cost or present' estimated value. Building values should allow a reasonable amount for depreciation. They should indicate the present value of the buildings for the purpose of the institution. 4. The capacity of an institution is the number of children for whom sleeping accommodations are provided. 5. Children must appear in only one group under each question, to prevent double counting. 6. If statistical records are incomplete, obtain close estimate of class items, under questions IS to 24. from institution officers. If estimated, so state. 7. No children are to be counted "placed," either on pay board or in free homes, who remain in these homes a shorter period than a week. 8. To place with "Kin" is to place with relatives of the first and second degrees— parents, grandparents, brothers or sisters. 9. To "place out in families" is to place dependent or delinquent children in the families of others than relatives within the second degree, for the purpose of providing homes for such children. 10. An mstitution is said to do "placing-out work" when it selects homes, or secures positions including homes, for any number of its minor wards, and by authority of its guardianship officially arranges for their location in such homes, either as paying boarders, free inmates, or paid workers. 11. Obtain when possible a printed report of the institution, and a set of its blank forms, to supplement this study, and for the files at the Foundation headquarters. 12. The type of the institution is to be ascertained. Study details carefully, so as to properly answer questions 7 and 8. The "Cottage" type is indicated by limited groups of children, in small buildings, and care and spirit in imitation of ordinary family life. The "Congregate" type is indicated generally by large buildings, and care of children en masse with little individual treatment. To guide the visitor the following are accepted as satisfactory tentative definitions for use in this study I— COTTAGE INSTITUTIONS. Class A. An institution composed of one or more cottages, each containing no more children than can be given personal and individual care, permeated with a real family spirit, the number not to exceed 30 in any one cottage, and in which each cottage is a complete domestic unit, with its own kitchen and dining-room. Class B. An institution composed of several cottages, each containing no more children than can be given personal and individual care, permeated with a real family spirit, the number not to exceed 50 in any one cottage, where the cooking is done in a general kitchen, and the meals served either in cottage dining-rooms or in a general congregate dining-room. II— CONGREGATE INSTITUTIONS. Class A. An institution in which children are gathered in one or more large buildings, the minimum average in care exceeding 50 children, and in which the care is en masse rather than individual. Class B. An institution having usually only one main building, the average in care not exceeding 50 children, the physical equipment, spirit and methods adapted to mass care, and the treatment of the children collective rather than indi-; vidual. 13. Carefully note and write up in "story" form the general characteristics of the institution. Cover as many as possible of these items: Description of location and building; interior conditions; fire escapes; size and ventilation of dormitories; kindsj of beds and bedding; sort of dining-room, seats, tables, dishes and napery; apparent amount and quality of food; cleanliness! and sanitation; clothing of children: spirit manifested, whether kindly or rigorous, homelike or institutional; and impression as to efforts to overcome institutionalism and develop initiative in the children. Facsimile of Schedule Used in Co-operative Study, p. 4 INCEPTION AND SCOPE OF THE STUDY THE FIELD WORK The ideal study implies the personal visiting of agencies and institutions by a highly trained social worker, backed by ade- quate authority and able to use ample time. Even under such con- ditions the personal equation, added to certain physical limitations, will lead to some degree of imperfection. This co-operative study necessarily varied somewhat from the above ideal. It was not made by a single agent but by a corps of visitors; most of whom possessed only general experience in social work, and could be given only a brief course of instruction in methods of inquiry. The personal equation was therefore manifest in some of the reports. There was behind this study no civil authority. For its success it depended entirely upon the ability of its agents to con- vince the officers of institutions and others related to child-caring work that it was an honest effort to advance the common welfare. The almost universally favorable response to their requests for information proves that it was so accepted throughout the state. Yet it would have been possible to secure fuller and more accurate details f the visitors had been backed by adequate authority. The time at the disposal of the visitors was limited. The plan of the field work of the study, based upon the available time, workers, and finances, required each visitor to average about four completed reports each week. Often the visit to the institution, the interview with the superintendent, and the effort to fill the schedule, were but the beginning. The visitor then had to seek from three to five additional interviews with board members and others, variously located, to obtain the remainder of the desired data. Hurried calls, hesitating and sometimes unwilling re- sponses, and the natural effort of institution officials to set the best foot foremost, account for some of the imperfections always found in a study of this kind. Notwithstanding the above named elements of imperfec- tion, it is beheved that the reports are true to the existing facts and conditions. Beyond question the records and descriptions give a very fair picture of the institutions, and reasonably accurate 41 CHILD WELFARE WORK IN PENNSYLVANIA Statistics. The tabulations and deductions based upon them de- serve close and systematic study. GROUPING AND COMBINING The study necessarily led to a separation of the various agencies and institutions into groups for convenience of comparison and the combination of statistics. The divisions made, and the ar- rangement of institutions within them, are not exhaustive nor al- ways satisfactory; but they seem fairly well adapted to bring out the facts under consideration, which is the essential thing in the study. The limited division of the institutions into groups, and the classified relation of some not strictly coordinate, were forced by necessary publication restrictions in regard to the number and size of statistical tables, it was advisable to combine as closely and to arrange as uniformly as possible. This necessitated some unsatis- factory grouping. For instance, several institutions chiefly de- voted to vocational training have been listed among the orphan- ages and children's homes. They give continuous care to needy young people, but add to it agricultural, mechanical, or other special training. To call them orphanages or children's homes is neither exact nor sufficient fully to express their work, yet to group them and other institutions with specialties by themselves would have multiplied the sets of tables far beyond what was practicable. The present arrangement is the result of many trials and months of study, and it is believed that it will be found clear and serviceable. For the purposes of this study the words "agency" and "institution" have been used in a definite and restricted sense. Those child-caring organizations whose main function is to ar- range for needy and dependent children and place them in family homes, or in orphanages, hospitals, or reformatories, are classified as agencies. Those organizations whose principal function is to provide direct and more or less permanent board and care for the various classes of needy and dependent children, and which usually possess considerable plant and equipment for the purpose, are classified as institutions. The terms "public funds" and "private funds" also need 42 INCEPTION AND SCOPE OF THE STUDY explanation. They are used in special definite relations all through the various chapters and in the statistical tables. Public funds are those derived from taxation. It was not found practi- cable to separate those administered or distributed by the state, count)-, and municipal authorities. Therefore, in the statistics of some institutions the public funds may be an aggregate of the amounts received from all three. Private funds are those derived from sources other than taxation. They include special gifts, income from endowments, general donations, and receipts from entertainments, tag days, and other miscellaneous money-gather- ing activities. For the purposes of this study, the term "' child welfare work," used in the title of this book and frequently in its various chapters, is limited in its application to work done for children classed as dependents, delinquents, or defectives, whose welfare is sought by the child-caring agencies and institutions. 43 CHAPTER II KINDS AND NUMBERS OF INSTITUTIONS THE type of management was made the index for a general division into public and private institutions. All of those under the direct support and management of city, county, or state officials, are counted as public; and all in which the prop- erty is held, the policy controlled, and the funds administered by privately created boards of managers, are listed as private insti- tutions. The groups dealt with in this study are believed to include all of the public or private organizations and institutions now estab- lished within the state, devoted to the care of defective, delinquent, or dependent children. There are a number of other institutions, some public and some private, which incidentally care for some children of one or the other of these classes; but their principal work is remedial or educational instead of charitable or reformatory, and they are not included within the limits of this study. The public institutions are subdivided into (i) Those giving direct and more or less permanent care with special schooling and training, and (2) Those in which the care of children is either incidental or of brief duration. The institutions of the first division present quite full and accurate statistics; the second, from the nature of the case, give only limited and incomplete information. As a matter of convenience in arrangement, all of the insti- tutions under public management and the private institutions for special classes are assembled in one section of the report, entitled Part Two. In this will be found six groups and a summary. Of the almshouses t may be said that children are cared for in them only under protest and for as brief a time as possible. The state law forbids the retention of normal children, except infants, in almshouses for more than sixty days; but the law s frequently 44 KINDS AND NUMBERS OF INSTITUTIONS violated. The attention given to almshouses in this study was not to ascertain the general condition of the institutions, but to learn whether or not children were there cared for and, if among the inmates, the quality of service rendered to such children. The 80 almshouses are entirely separated from the regular institutions for child-care, a chapter and a table being devoted to them at the beginning of Part Two. Detention homes are understood to be intended only for the temporary care of children under observation or expecting action by the juvenile court, and such children are there cared for only until their cases can be properly adjudicated. There are nine detention homes listed and tabulated. This small number is be- lieved to include all existing within the state at the time of the study, although some counties have equivalent service through arrangements for the board of children by private families or insti- tutions. Detention homes are counted among the regular child- caring institutions, although the average period of care is quite limited. They have a chapter and a table immediately after the almshouses. For convenience in study and for ready reference, the state institution for soldiers' orphans and the four county children's homes, which are all mainly devoted to the care of dependent children but also care for a few defectives, are grouped together in a single chapter and table. This gives a group of five public insti- tutions under the title State and County Homes for Depen- dents. For similar reasons all of the nstitutions for the care of delin- quents are assembled for description and tabulation. The two under public management are joined to the nine under private management in one chapter and table, to give a connected view of this class of work. Likewise the two public institutions for the care of defectives are grouped with the two private institutions for the feeble-minded, and the four are given a chapter and a table by themselves. The six private institutions caring for physically crippled chil- dren, constituting another distinct class, are separately treated and tabulated. To assemble in Part Two, as above noted, practically all the institutions for special classes, the chapter and table relating 45 I CHILD WELFARE WORK IN PENNSYLVANIA to crippled children are located immediately after those relating to mental defectives. A summary, which includes all but the almshouses, com- pletes Part Two. The 53 child-caring agencies constitute Part Three. The agencies which have as their main work the investigation of cases and general handling of children, are necessarily separated from the institutions for continued care. They are also subdivided, for tabulation purposes, according to function and location, into five groups. To place the agencies before the institutions for perma- nent care seems to be the logical order, as their direct care of chil- dren is usually brief and preliminary to more permanent placement in family homes or institutions. The grouping of the remaining 175 private institutions is more complicated. There are 1 53 orphanages and homes for dependent children which are divided into five groups, based on type of housing and religious aff)liation. The remaining 22 institutions care for both adults and children, and are treated and tabulated separately. These six groups, with a summary of the 175 private institutions and a general summary of all the regular child-caring agencies and institutions, compose Part Four. It is difficult to classify in a satisfactory way an agency or institution having several functions; but by seeking the principal function and making it the index, in most cases the classification has been satisfactorily accomplished. Table G provides a connected view of the kinds and numbers of child-helping institutions in Pennsylvania, classified as above indicated. 46 \ l\\-pical (;:(in,nrc,t;atc lUiiKlin.u ,sixu\ .Mi^.MoKiAi. lioMi., Philadelphia. iScc Tabk' 17. p The Lawn Dressers MM fi i^ yi ar \; ^ p & * Twenty Little Tots Holy Family Polish Orphan Asylum, Pittsburgh. (See Table 17, p. 202) KINDS AND NUMBERS OF INSTITUTIONS TABLE C— PUBLIC AND PRIVATE AGENCIES AND INSTITUTIONS BY NATURE OF WORK Table no. Type of management and nature of work Agencies and institutions Public Management Institutions for brief and incidental care Almshouses and poorhouses Detention homes of juvenile courts Institutions for continued care Soldiers' Orphans' Industrial School County homes for dependents Institutions for delinquents and defectives Total Total institutions under public management Private Management Institutions for special classes Institutions for delinquents and defectives Institutions for crippled children Child-caring agencies 8 General child-caring agencies 9-10 County children's aid societies 1 1 Humane societies for children 12 Special child-caring agencies Total Institutions for dependents 14-15 Orphanages and homes — cottage type 16-18 Orphanages and homes — congregate type 19 Institutions for combined care of adults and children Total Total under private management Grand total, public and private Grand total, omitting the 80 almshouses and the 7 special child- caring agencies* 'These are omitted from the summaries of the general tables also. 47 CHAPTER III THE STATISTICAL TABLES THE information gathered regarding the several groups of institutions has been put as far as possible into tabulated form. The written text of the various chapters to which the tables are attached is mainly a running comment upon them, including some necessary explanations and a few deductions or suggestions. The tables are the most important part of this digest. In the text where comment is made upon the statistics, it is gen- erally made in the present tense, although a few changes may have occurred by the time this book is issued. In paragraphs where the year of the statistics is given, the past tense is used. In form and arrangement the tables are intended to embody the idea of the old motto: Let the facts speak for themselves. Be- fore beginning the descriptive sections in which the tables are used, their plans and details should be known and understood. Omitting the 80 almshouses, whose main work is for other classes than children and for which a single general table is provided, and the 53 child-caring agencies, the tables for which require modi- fications, there are 210 child-caring institutions in the state, 18 under public management and 192 under private management. For these a set of four related tables is arranged on a definite sys- tematic plan, covering an aggregate of about 40 points for each institution or group of institutions. Each of these tables, while complete in itself, is designated as a section of the set covering the institution or group. The information for each institution or group will best be obtained by the successive study of each section from the first to the fourth. This set of tables is made the base for the set provided for the child-caring agencies, but some modi- fications are made necessary by the character of their work. I. Section A. General and Financial. This table is in- tended to give an outline of the institution's general character and its investments in plant and endowment. It gives the location 48 THE STATISTICAL TABLES and name, year of founding, religious affiliation, type of housing, date of the report quoted, capacity, cost of plant per bed, value of plant, amount of endowment, and total value of property. 2. Section B. Comparative Current Statistics. This table takes up the annual expense and shows the total for main- tenance and the amount paid for salaries, with per capitas for total maintenance and for salaries based upon the average number of children in care. Then follows the amount of public funds received during the year, and its per cent of the annual maintenance expense. Final!)', the number of regular employes, the average number of children in care, and the average number of children per emploj^e are given. 3. Section C. Beneficiaries and Methods. In this table are recorded the class of children cared for, the sex taken, the age limits for reception and discharge, color restriction, how the institution investigates its applicants for admission, and how it supervises its wards who are placed out in other homes, temporary or permanent. 4. Section D. Statistics of Children. Here are found the vital statistics of the institution. The table records the children in the institution at the beginning of the year covered by the report, the children received during the year, and the total number in care during the year. To match these entrance statistics are those showing what disposition was made of the recorded total, in columns showing the numbers placed in family homes, returned to kin or friends, died, disposed of otherwise, and remaining in care or under supervision at the close of the year. In the parts dealing with the public institutions, fairly com- plete tables are presented for the state school for soldiers' orphans, the four county children's homes, and the four training schools for delinquents and defectives. Less satisfactory statistics are re- corded for the nine detention homes of juvenile courts. One gen- eral table, not at all on the plan outlined above, as already noted, has been formed from the limited material furnished by the alms- houses, some of which, unfortunately, are without records worthy of the name. The 46 general and county agencies and humane societies, all under private management and doing active child-caring work, are 49 CHILD WELFARE WORK IN PENNSYLVANIA quite fairly represented in the tables. Because of certain differ- ences between them and the institutions, a number of points were added and other points omitted, and the set of four tables was reduced to three. The material furnished by the seven special child-caring agencies was very meager and imperfect, hence they are given one general table, which defines and recognizes them as fully as possible. The great body of the continued child-caring work is repre- sented in the division entitled Fart Four, containing the orphanages and children's homes and the institutions for the combined care of adults and children, aggregating 175 of the private institutions, tabulated and treated in six groups. Four principal summaries are provided. The first includes 35 of the public and private institutions for special classes; the second contains totals and averages for the 46 regular child-caring agencies; the third comprises aggregates of the si.x groups into which the 175 private institutions are divided; a fourth brings to- gether the previous three to give a general view of the entire child- helping work of the state as related to delinquent, defective, and dependent children. All of these summaries will be found exceed- ingly interesting and important. A list of the tables in consecu- tive order is given in the index at the beginning of the book. Two more items of detail will aid in making clear the arrange- ment and relations of the tables. First, each table or set of tables immediately follows the chapter to which it relates. Second, as the matter in Section C of the set of four tables is descriptive of beneficiaries and methods in individual institutions, and can not be totaled, it does not appear in the summaries, which therefore have only three sections. For several reasons the statistics in these tables do not con- form exactly to those published by the state board of public chari- ties. The fiscal year covered was not always the same, and the items included are often difi'erent. Materials for the reports were furnished frequently by different individuals, who varied in their estimates of property values or did not have equal access to accounts or books. The records of many institutions were very imperfect. In some cases there was a disposition to minimize property values and the maintenance expenses; in others an appar- 50 THE STATISTICAL TABLES ent desire to magnify them. A substantial agreement in the reports obtained by two independent surveys made at diiTercnt times is all that can be expected; variation in details is certain to occur. Take the matter of property valuations. Our visitors se- cured separately the amounts invested in plants and endowments. The state board has but one item on property valuation, and it sometimes includes and sometimes excludes the endowments. In some cases our reports give the value of property used for children, while the state board includes all belonging to the institution. Yet a total for a hundred institutions would vary little in the two reports. One or two examples of extreme variations in property valua- tion may be of interest. The Northern Home for Friendless Chil- dren at Philadelphia gave to the state board a valuation of $188,473 and to our visitor one of $200,000 on its city plant, to which is added $200,000 for endowment. Another variation is due to the fact that the Burd Orphan Asylum of Philadelphia in 1910 re- ported to the United States Census Bureau at Washington the total amount of its property as $944,000; less than two years later the amount given to our visitor was $635,000. This was only a slight difference of $309,000; and the institution is first class, apparently well managed, and had no known losses during the period! With these and lesser variations to be considered, all matters relating to each institution have been carefully studied and estimates accepted which seem most consonant with all the known facts. In the matter of maintenance, items included or excluded are not always the same. The limit of average annual repairs, and what should be counted as permanent improvements, is a matter of judgment. There are other items equally uncertain of inclusion or exclusion when making up a current expense account. We have also in some cases recorded only maintenance for children, while the state board tabulates the entire expense, both for adults and children. For these and other reasons there are many discrep- ancies in the two sets of tables. Yet in most cases there is a known and valid basis for the difference. Great effort has been made to avoid errors which would lead to unfair per capitas or averages. The text of the chapters in Parts Two, Three, and Four con- 51 CHILD WELFARE WORK IN PENNSYLVANIA sists mainly of outlined descriptions of the groups and institutions. In Parts Two and Three the numbers in each group are small enough to allow of a paragraph for each institution or agency. In Part Four it was deemed inadvisable to attempt this, and a few sample institutions of each group are thus outlined, mainly as a guide to the information easily obtainable in regard to all in the tables at the close of the chapters. Having described the grouping of the agencies and institu- tions, the scheme of tabulation, and how this report may justly be compared with other reports, we pass to the more detailed study of Pennsylvania's present facilities for the care of these various classes of needy children, and the situation as indicated by the results of the study. 52 PART TWO MISCELLANEOUS INSTITUTIONS FOR CHILDREN Not all the poor are dependents, and poverty is a merely relative matter. A poor Irishman would be counted rich in Patagonia. Depend- ency admits of degrees, and shades off upward into simple misfortune and downward into abject beggary and crime. There is solidarity, organic connection, between dependents and delinquents. They cannot be studied or treated as if they belonged in compartments separated by impervious walls. Very often a single family will impose upon society the burden of ill-born and badly trained children, who will be dispersed in later years among dependents, defectives and delinquents.— Charles R. Henderson. It is vitally important that child-caring institutions shall be so organized as to accomplish the beneficent purpose for which they are in- tended; that they shall be so wisely planned and so faithfully administered as to insure the safety of the lives of the children who are to be committed to them, the development of their bodies to the highest degree of efficiency, wise and practical intellectual education, and the highest possible spiritual development. Many of the juvenile reformatories were at first in reality juvenile prisons. . . . The juvenile reformatory of the twentieth century is organized on essentially different principles. It abandons entirely the prison method and the idea of retributive punishment. Its design is to create and establish right character in delinquent children, when all other agencies have failed. — Hastings H. Hart. CHAPTER IV ALMSHOUSES AND POORHOUSES OF the 80 county, township, or borough almshouses, 52 were caring for children when the visiting agents called in the latter part of the year 1912. The number of children then being cared for was 582. During the preceding year an aggre- gate of 3,002 children had been in care. Of the 582 on hand at the time of the study, 528 were declared by the almshouse officials to be normal and 54 unsound or abnormal. As no psychological tests are taken in most of the counties, it is certain that very many more than 54 should be classed as physically or mentally deficient. Under present conditions proper mental diagnosis and the separa- tion of the unsound from the normal are almost impossible. In 54 of the almshouses no method of care was designated or there was no effort to separate children from the other inmates. In nine the babies and the girls were kept in the women's section of the institution, and the large boys in the men's section; in 10 the children were kept wholly in the women's building, or the ad- ministration building; seven had special rooms for children. In Philadelphia County, in two almshouses the children are kept with other inmates; at the Blockley Almshouse there is a separate children's building, but it is inadequate, and large num- bers of children are scattered through other portions of the insti- tution, many of them being sent to the hospital for the treatment of skin diseases or minor nose and throat operations. At Harris- burg two rooms in the almshouse are arranged as a substitute for a juvenile court detention home; so that few children— and these mere babes — are in the part assigned to paupers, although they are in the same building. As a general impression made upon the visitors, it may be said that the physical facilities for the care of children were "good" in 22 of the almshouses; physically good but bad in influ- ence in two; "fair" in 19; "poor" in nine; while the facilities of 28 were not defined. 55 CHILD WELFARE WORK IN PENNSYLVANIA The conditions in most of the almshouses are as good as can be expected under the present system. The buildings are modern in only a few instances, and owing to the inadequacy of official inspection there is slight stimulus toward even the best possible use of what is possessed. Nearly all could definitely separate the children, at least from objectionable adult inmates. Many could provide separate rooms for children in even the present plants; and the placing of children under the care of adult inmates is al- most always seriously objectionable. Twenty-eight of the almshouses depend mainly on the county and general children's aid societies for assistance in the disposition of permanently dependent children. Fifteen of them stated that such children were immediately transferred to other institutions. Fourteen stated that they did their own placing in family homes, but confessed that there was practically neither previous investiga- tion of homes nor after-supervision of the children. Twenty- three either recorded no children or had no defined method. Four almshouses confessed to constant violation of the "sixty-day law."* Nearly all of the others declared that this law is carefully observed; and in most of them there is evident effort to comply with its provisions. The Pittsburgh people, claiming to be unable to do so, are agitating for a county children's home. One of the directors of the poor in Allegheny County had a bill introduced in the 191 3 legislature enabling poor directors to estab- lish children's homes in connection with almshouses. This bill failed to pass. Owing to the increased efficiency and enlarged work of the various children's aid societies and other placing-out agencies, the almshouse, too slowly, yet surely, is passing from its former unsatisfactory place as a factor in the child-caring work of the state. Yet the regrettable fact remains that in the past year over 3,000 children were in the almshouses of the state for an average period of about three months. The average number constantly in care was over 500. Our illustrations of child life in almshouses happen to be from Allegheny County. They could be duplicated in various county institutions in other parts of the state. The lesson they * See p. 290. 56 1 he liuilding and lis l^lavgrcjund W ard for Men— and Little Boys These little boys played in this men's community room, ate with them, open ward with paral\-tic and otherwise (.lisahled men >lept in the ALLHGHtNY CoLNTV HoMU (AtMSHOLSh), \\ood\ille. (See p. 56) ■ ■»Afc H^ Playmates at Woodville Pennsylvania law permits children like these to be kept sixty days in almshouses. Some are kept longer Caretakers and Children With a toilet installed alongside the beds, this was used as both sleeping room and chi dren's play-room Allegheny County Home (Almshouse), Woodville. (See p. 56) ALMSHOUSES AND POORHOUSES teach is not limited by any local significance. However, it would seem that in this regard, because of its large population and great wealth, Allegheny County has duties and responsibilities above the average. The present situation in Allegheny County is thus clearly and forcibly described by Florence L. Lattimore: The Pittsburgh District boasted no fewer than three almshouses, one for the county, one for the former city of Allegheny, now merged with Pittsburgh, and one for Pittsburgh itself. At the Pittsburgh almshouse, called the City Home, a modern and attractive little pavilion had been set apart for the children's use. It was light and had a small yard which contained swings and toys. Children were sometimes kept there illegally for many months, when, for instance, the mother was ill in the almshouse hospital. There was no concealment of this fact by the management, which would have welcomed the help of some agency in relieving it of such a burden. At the Allegheny City Home the law was strictly enforced, although one might, of course, find babies there that had been born in the institution. At the County Home in Woodville, however, conditions were startlingly bad. Here, the objectionable almshouse features which led to the framing and passage of the Children's Law in 1 883 still persisted. There were no separate quarters in which the children could either sleep or play. The sanitary conditions were particularly objectionable; one room in which 10 babies and little girls and four women were crowded day and night, contained a toilet built boldly into one corner, and separated from it only by a thin wooden partition. The only provision for ventilation in this living-sleeping room, as in the other rooms where children were kept, was by windows which were rarely opened; the heating was by gas, the air was foul. Little boys over two years of age slept in the open ward occupied by disabled men — cripples, paralytics, and locomotor ataxia cases; during the day these little fellows had no place in which to play except the sitting room where the men smoked and played cards. Even the sixty days to which their stay was limited was too long a period to spend in such surroundings. The visitor to this institution upon two occasions found 40 children, most of them between the ages of four and sixteen, standing about in listless groups. Nowhere else in the county were there such flagrant instances of charitable and civic inertia in work for children as in this county home at Woodville.* *The Pittsburgh District: Civic Frontage, pp. 343-344. (The Pittsburgh Survey.) Article by Lattimore, Florence L. : Pittsburgh as a Foster Mother. Russell Sage Foundation Publication. New York, Survey Associates, 1914. 57 CHILD WELFARE WORK IN PENNSYLVANIA Let it not be thought that what is described in the foregoing quotation is ancient history and not appUcable to present condi- tions. In the spring of 19 14 an inquiry was made by the Child Welfare Association of Allegheny County and the Public Charities Association in regard to the numbers and condition of children in the county almshouse with a view to their removal from that institution, and the formulation of a plan which would make further almshouse commitments of children unnecessary. The inquiry developed that at that time there were 49 child inmates at Woodville. There is scarcely any relieving feature in a situation in which innocent defenseless children are kept in close proximity to help- less old age, loathsome disease, and vicious morals; and in some cases are obliged to live in close association with idiots and the insane. Professor Charles R. Henderson, in his book on Dependent, Defective, and Delinquent Classes, draws a picture of the contents ofpoorhouses in these words: "Into these receptacles of suffering people flowed all sorts of rejected material, the aged, the sick, the insane, forsaken children, inebriates, the blind, deaf mutes, the worn-out criminals and prostitutes, the epileptic, the demented, and the paralytic. As the poorhouse was the most unattractive place in the county, and the inmates were without influential friends, and the superintendent not always chosen for his special fitness for such an office, abominable abuses grew up, and in many places still continue."* Charles Dickens wrote, "Throw a child under a cart horse's feet and a loaded wagon sooner than take him to an almshouse." This may be an extravagant statement, but all good citizens will agree that the ordinary poorhouse is no place for a child, and that every progressive commonwealth should provide other and better disposition for all children dependent upon public care. In addition to a presentation of these facts and statements, and based upon them, the following action is urgently recom- mended: * Henderson, Charles R.; Dependent, Defective, and Delinquent Classes, p. 72. Boston, D. C. Heath and Co., 1904. 58 ALMSHOUSES AND POORHOUSES 1. That the present state law prohibiting the keeping of normal children in almshouses for more than sixty days be rigidly enforced in every county. 2. That increased and more efficient state inspection be given almshouses in order to secure a strict compliance with the laws relating to the care of children, and to improve the care and condition of adult inmates. 3. Such enforcement and inspection under present laws are duties of the state board of charities, which for lack of funds and agents can make only a part of the needed visits and investigations, although its officers are putting forth strenuous efforts to fulfill their obligations. Therefore, provision should at once be made to supply the state board with adequate facilities and trained visitors. 4. That the advanced position taken by many states, in- cluding Massachusetts, New York, Michigan, Minnesota, and Colorado, some of which acted on this matter at least thirty >'ears ago, where laws are in force absolutely forbidding the care of children in almshouses, be taken at the earliest possible date by Pennsylvania. 5. That to establish, as is now proposed, a number of county children's homes to provide for the children in public care now ac- commodated in almshouses, in our judgment is both inadvisable and unnecessary. Such institutions in effect would be junior almshouses. Instead of establishing such homes, county and other officials are urged to enter into close co-operative relations with suitable, officially-approved child-caring agencies and institutions. 59 S2i ^rtM 0.3 •s s ■5 C -1 S-2 si . 1 t/5 g i § I ^ S:2 C M O t/) S ii O 3 rt CD U ° g 2 2 i H •as •is 1 1 "^ ^° ^p ^^ N is 'i-S Isi II •§ ° tJE at U 5 E o S >> ^1 o c ua II E •a o So d« §■■3 £ E < rtE ^ u T1^ ll °^ Tis c S w^ 2< 0^ 5I 13 tnU Si •oE 60 ^ w a «< oo •5 o O.E -t ■i'' 1< 5< en g •Sg g 2 0-^ <:! ° .-^« •: ^S« di S Hi &< r. "E !^ cu "o 3 u ^ " l°a l|d 11 Is 0^ 1^1 <: « u.S 0-0 It a o"o^ ;a-ap H H H •a<5 8-S o II I •c-g 13 :SE 0^3 E EE c o •2-S rtE Ji c 5§ •S E^ 2 ^S Co -S^ oj Em ^11 Eo "o U U 2§ o o 13 o 61 s u u •o JS o e _o 1 ■q c d (3 < U < 6 6 H II it 1 1 ;3 § > a 2 § 1 2 1 1 •5 g^ E ^£ fc-SE 3 c j2 — eI c 5: U 3 rt S u ^ n Sf ^,*l Sji ii ^ 3 J2 3 -"^ g-§ t^^ S-S p^ W U C E II 6 c ^.1 :E u^ . P. at u 3 c 3 rt Q 3 uc3 w f fe 1^ 6 c 3 •5 6^ 6& 62 — '^ s if: 3 ^Ji y.-B ^'b 0.-9 =>?= =,« oS d" d^^ H U U « (9 •••2 g OS ? US t P2 8 -s •«>. o: ^2 o — (A o ^c _§.! ii o S <— o E^ c .t; •^2 « 2 ueu 5E rt C -1£ it u c 00 O i |§ 3 II O M II ="l i !l =^1 ^i ll d>. r >, - >> rt! b>. cl 0| al PC : 3 si a o .5^ g-° Cfj 2cd fa Iq" dH ►J -! « J 63 °°° 3 o 0.2 iJ o % s^ "1£ . 3 N •am -do -a = ^ 2; ^ o 3 3 64 t;5 - r C o ^ Uo "SO (3^ c -g % s II S6 ti.2 o.t! 9;-o o S-oE O.O.S •a o tuoo go •a o V V O . ^6 Bc3 13.> r „ E e ° art C m ^- £J .2 >0 r- 65 CHAPTER V DETENTION HOMES OF JUVENILE COURTS THE juvenile court law of Pennsylvania enacted in 1903 requires the establishment in every county of the state of a detention home for children awaiting action of the court. Only a few have really complied with the letter of the act; nine have definite but not always adequate provision for such children; perhaps a dozen or more have substitutes in adapted rooms in county buildings, or arrangements for the board of children in private families or in private institutions. A prominent example of the last is in Luzerne County, where the United Charities Home at Wilkes-Barre is used as a detention home. Of the nine homes concerning which somewhat definite information was obtained, three are in rooms in county buildings — one in a jail, one in an almshouse, and one in a building otherwise devoted to offices; one uses a rented cottage; one is a farm property; that at Scranton uses part of a building, while the Associated Chari- ties occupies the remainder; one is a special "cottage" belonging to the county; and two are more extensive modern buildings. No valuations could be obtained save for the last three. These are: Erie, Detention Home, $6,500; Montgomery County at Norristown, House of Detention, $33,000; and Philadelphia, House of Detention, $203,000; or a total of $242,500. In very few of the detention homes is there any satisfactory recording or statistical system. Such records as are kept are on the line of meal tallies, or supply items, and related to individuals only by way of getting at per diem or other per capita cost of service. Except in Philadelphia, and in a smaller degree in Pittsburgh and Norristown, there seems to be no efi'ort to make or keep records of the children as such, much less a conception of the need of medi- cal and psychological examinations. It should be said to their credit that the counties of Erie, Montgomery, and Philadelphia have taken the juvenile court law seriously in reference to houses of detention; have provided 66 - '-'iiiit;; jiiiiiiifiilri Building at Arch and Twenty-st-cond Streets ^ Roof Gymnasium and Ph\sical I rainin.i; Clas^ Philadelphia House of Detention. (See p. 67) I he School Room The Kitchen Philadelphia House of Detention. (See p. 67) DETENTION HOMES OF JUVENILE COURTS fine modern buildings, probably equally adequate in proportion to the needs of the population served, and are endeavoring to utilize the plants in accordance with advanced ideas. That most of the other counties, so far, have used makeshifts of various kinds, overlooking the letter and often the spirit of the law; and, not- withstanding the mandatory character of the statute, ten years after its enactment have no detention homes worthy of the name, is a sad indication of conservatism and inertia. Over 60 of the 67 counties should cease to emulate Rip Van Winkle in this matter, and modernize their methods. The fine detention building at Philadelphia deserves more extended notice. As already stated, it is modern in construction, is practically fireproof, and is well equipped with sanitary furnish- ings and with scientific apparatus for medical and psychological examinations. There are 20 employes in addition to two school teachers furnished by the department of education, and four physi- cians who are without compensation. Although the capacity of the house of detention is only 70, a total of 2,623 children were in care during the year 191 1. This number, however, includes some duplications, as in a few cases the same children were detained a short time more than once in that period. The cost of mainte- nance was 524,089, of which the sum of $13,500 was expended in salaries. The superintendent of the Philadelphia House of Detention, H. P. Richardson, very suggestively said in 191 3: Under the present system of having juvenile court only once a week, the Detention Home serves the same purpose as the county prison, being a place where those children who cannot secure bail are kept awaiting their trial. With the methods now in use of arresting children as crim- inals, holding them in bail as criminals, etc., it is not to be wondered at that the ideas as to detention are also unscientific and far removed from the true spirit of the Juvenile Court Act. This quotation is in itself almost an epitome of the situation all over the state; and while exceptional counties, officers, and courts have caught the impulse of better ideas and methods, most of them have not yet in this regard crossed the line into the twen- tieth century. Within a very short time there has been an improvement in 67 CHILD WELFARE WORK IN PENNSYLVANIA juvenile court conditions in Philadelphia. Under date of January 17, 1 914, H. P. Richardson, mentioned above, in a personal letter states: Since the new arrangement went into effect (January i, 19 14) all children come before the Juvenile Court without any preliminary hearing before a magistrate. The Judge is assigned for one year and the Court is held in the House of Detention where the arrangements permit of the hearing of each case apart from any others which may be waiting. Having no other court work to do the Judge can give his full time and strength to the Juvenile Court and as ample quarters are provided for the Chief Pro- bation Officer and his staff, the House becomes the center of activity for the care of children who for any reason become wards of the Courts. A new Chief Probation Officer has been appointed, a man who has been the successful Superintendent of one of the largest and most progress- ive of Philadelphia's Public Schools. The probation force has been strengthened by the addition of two men officers and it is expected that from time to time more men will be added. The new arrangement is in full operation and going finely. I am glad that you will be able to include this good news in your report. 68 •1° 13 2 >a 2 -^ OJ3 IS 2 s ■» s o i. 5? «§ 'p c)^^ ZJj OOg >.^ o ■go; IS We ^1 as li §1 d o is • aj3 3-a & s „ 'S Sh m ^S3 5 si .•2 a E 0-5 ll la o a ;o£2 s 5Q 00 ^0 « OJ ^ e ll 3 a1 .a p n rt^ 1'' °-0 a| la § § u > tl-a.5.2-= S| *j~ t«^ a , 3_^ a oj i; 70 CHAPTER VI STATE AND COUNTY HOMES FOR DEPENDENTS THE five public institutions in this group include one under state management, the Soldiers' Orphans' Industrial School at Scotland, and four county children's homes. While nearly all the children cared for in these institutions are de- pendents, there are a few mental and physical defectives in the county homes. These special children's homes, which are in addition to the county almshouses, are located in the counties of Beaver, Blair, Greene, and Washington. The dependent or defective children of their respective fields are received under order of the courts, the county commissioners, or the directors of the poor. If normal, there is generally a provision that after the child has been an inmate thirty days or more, the officials " shall be authorized to secure a suitable home for said child, if said board of directors deem same advisable." These five institutions, which are practically the only ones in the state under public management that are devoted primarily to the care of dependent children, deserve somewhat detailed mention. It should, however, be recognized that the separate chil- dren's building at the Blockley Almshouse, Philadelphia, is an ef- fort along the same line; but as this building is one of a connected group, it is not considered a separate institution like those here treated. I. Soldiers' Orphans' Industrial School This institution, located at Scotland, was founded in 1863. There are two large three-story brick buildings connected by a long porch or open hall, beautifully located on a tract of 50 acres of rolling land with fine shade trees and a small lake. The capac- ity is 500; valuation of the property, $171,000. The state for many years had a similar institution at Chester Springs, Chester County; but it was discontinued in August, 1912, 71 STATE AND COUNTY HOMES at Williamsburg in 1901. The site contains about four acres of ground, giving a fine lawn, numerous shade trees, and space for a vegetable garden. The building is a good-sized, modern, two- and-a-half-story brick building, with a capacity of 32 children. There were 66 in care during the year ending May 31, 191 2; valuation of the property, §20,000. A regular teacher is employed, and there is a bright and cheerful school room with 30 desks. In spite of the name, there is as yet no regular industrial training. Of course the larger children assist in the housework. In cleanliness and order the home is well up to standard. Here, as in Greene County, the numbers run high in winter and low in summer, the larger boys and girls serving in private families during the busy season, and then finding their way back to the county home in the fall. The placing-out of children is in the hands of the county commissioners. They require a recommenda- tion of a home before approving it, but the home is not visited before a child is placed, and after-supervision is entirely ignored. The average number of children on hand was 30; the ex- pense for salaries was $1,333, or a per capita of $44; the total cost of maintenance was $4,355, or an average per capita cost of $145. All of the expense was met by appropriations from the public treasury. 4. Greene County Children's Home The Greene County Children's Home, located five miles from Waynesburg, was established in 1884. It has a farm of 76 acres, and the main building is an old two-story brick farm house remodeled. The capacity is only 25. During the year studied, 75 children were in care. The equipment is partly modern; val- uation is set at $34,000. The home is usually overcrowded in winter and about half filled in summer. The average stay of children is about four months. Good-sized boys and girls are in demand each spring, and the greater number are returned in the fall. They are placed with very little investigation of the homes, and there seems to be no after-supervision. The average number of children on hand was 25; the ex- pense for salaries was $3,186, or a per capita of $127; the total cost of maintenance was $8,958, or an average per capita cost of $358. 73 CHILD WELFARE WORK IN PENNSYLVANIA No explanation was given of this exceedingly high cost of care. The entire maintenance was from public funds. 5. Washington County Children's Home The Children's Home of Washington County, located near the county seat, was established in 1870 and is of the regular congregate type, with a capacity of 125. The property includes 22 acres. The building is a three-story brick structure. There are no fire-escapes. The valuation of the property is $74,000. The dormitories average 27 beds each, with toilets and lavatories adjacent, all in good condition. All over the building is a ming- ling of ancient and modern methods. It is made a punishable offense for any child to use a towel other than his own; but the children do not have their own individual clothing, being clad from a general supply filed away by sizes. This was explained by the superintendent on the ground that the changes of inmates are too frequent for the home to provide individual outfits of cloth- ing. On the first floor of the building are offices, private rooms for officers, a play room for girls and boys, and a large and well- equipped school room. There is an isolated infirmary with seven beds. Adjacent to the infirmary are a special kitchen and suitable lavatory facilities. The spirit of the management is very favor- able towards placing-out in families all children who can not be expected to return to parents or relatives. The homes used are in- vestigated by a paid agent who supervises the children after placement. The average in care was 70 children; the expense for salaries was $4,222, or a per capita of $60; the total cost of maintenance was $ 1 1 ,724, or an average per capita cost of $ 1 67. N inety-fi ve per cent of the maintenance was from public funds. GENERAL COMMENTS By current report Allegheny County is contemplating the erection of a similar institution for the care of dependent children. It is hoped, however, that increased co-operation by the county officials with placing-out agencies and existing institutions will render such action unnecessary. 74 STATE AND COUNTY HOMES Taking the group of five state and count)' institutions as a whole, it is interesting to note that the average expense per capita for salaries was ^59, and the average per capita for the total ex- pense of maintenance was $241. As will be seen later, this is a much higher average than is found in the general run of institu- tions for dependents throughout the state. It is also evident from the foregoing descriptions that the best institutions are often run at a lower average cost than those of poorer quality. In Philadelphia the county courts commit certain needy, neglected, and dependent children to the department of public health and charities, which in turn uses the Children's Aid Society of Pennsylvania for its placing-out work. This department also takes care of deserted children and foundlings received through the police department, and makes similar use of such approved agencies and institutions for their care and ultimate disposition. In this connection it may be remarked that there is great irregularity in the county care of dependent children in Pennsyl- vania. The situation well deserves the expression "chaotic." There is great need for a more uniform system. This implies either the establishment of a new public service agency, perhaps to be called a board of children's guardians, or the special enlarge- ment of the scope and powers of the existing agency, the state board of charities, in order to devise a satisfactory system and to enforce its methods by adequate authority. As a first complete set of institutional tables follows this chapter and gives in related and consecutive sections much val- uable information concerning these five institutions, the reader is urged to give to them especial attention. The details and expla- nations given in Chapter 111, The Statistical Tables,* should be clearly in mind and the institutions and the totals for the group followed successively from the first to the fourth section of the set. All of the four sections are essential to a comprehensive view of any or all of the institutions. * See pp. 48-32. 75 in i a <| 03 H g a. ^ W § ^ .2 O ^ K >^ H O O Q <1 H m o ^ WO O c3 2 ^ Z Z 6 o e ^ § y i^c3 r i^>U r , . O Co. o Se u *' s s • V 3 c C )3 a u.S 2 4) " > < If ^ T3 S '^ a 1 ^o 3 c: 3 E 3 < u i;.ti s ala a _0J 1 c o J- B ^ < s ^ OJ a 1-2 oi.t: "^ rt 13 c a < — 5 o H c c ■o c „ .2 s kO "t N vO Oi ro =0 P< •o U z MiliS wn '•-> i; 0:3^^ 6 J-o, u c-q UJ5 6-^ygM« f.^ s«^::s Sr5ll 77 ^ is O fJ 8 ^ wo 78 o S o rt Z Z Z 'Z P^Q^Q^P, 2 c ,^ 1 c-p C3 S O ^ V cj. •D D = ^ i r- •o 3J n o^ Q ? .s § K -a o a I, .X B J" •5§s 2'c ,1- m'c c^ ^ • s => rt ■ ^- c s^ 79 CHAPTER VII HOMES AND TRAINING SCHOOLS FOR DELINQUENTS THERE are only two public institutions in the state for the care and training of delinquent youth — the Pennsyl- vania Training School in Washington County, and the Allegheny County Industrial School for Boys at Warrendale, now popularly called the Thorn Hill School. The Glen Mills Schools, under private management but receiving their main support from public funds, take the place of public institutions for this class in the eastern part of the state. There are also in the state several other institutions under private management — most of them receiving large financial sup- port from public funds — devoted to the care of delinquents of both sexes. Like the Glen Mills Schools, they are sometimes called "semi-public" institutions. To group together the entire definite provision throughout the state for this class, they are here assem- bled with those above named for description and tabulation. I. Pennsylvania Training School ^ The Pennsylvania Training School, founded in 1854, is a state institution for the wayward and delinquent boys and girls of the western part of the state. It is located at Morganza Station, about twelve miles southwest of Pittsburgh. Eastern Pennsyl- vania has no equivalent state school, but as above stated, its place is taken by the Glen Mills Schools. The Morganza school has an excellent site of 450 acres in the hills of Washington County. Around the buildings is a beautiful and spacious lawn. There are a football field, baseball diamond, and a running track, with a grandstand and band pavilion, located in a small park. In the girls' playgrounds are tennis courts, basketball field, and so forth. The property is valued at $1,217,000; the current expense for the year ending May 31, 1 91 2, was ^ 1 2 1 , 1 62 ; the average number in care was 448. The youngest age at which a child can be com- 80 HOMES AND SCHOOLS FOR DELINQUENTS mitted is seven )ears, and the limit of care is twenty-one years; but by the parole system very few remain to the limit unless sent there near the close of their minority. There are 8i officers and employes, or one to every 5.5 inmates. The buildings are generally on the cottage plan, but there is a wide range of capacity, from 65 down to 20. The cottage unit, recently adopted, is 30; and probably all hereafter erected will have that capacity. There are six separate buildings occupied b>' boys, and three by girls; and the administration building, which is an old but still serviceable four-story structure, is the home of two families of boys, of about 50 each. The total present capac- ity is 488. There are numerous other buildings, including the new kitchen and officers' quarters; the gymnasium, new power plant, industrial group, hospital, and many barns and smaller buildings. It should be said that this old institution is undergoing a radical transformation. In a little more than five years Superin- tendent W. F. Penn has reconstructed the greater part of the buildings, changing from large ones to those of the small cottage type as far as possible. Two new cottages just completed and which will accommodate 30 each, will take the place of one of the original buildings, containing 65 inmates, and the old structure will at once be torn down. There will then remain but one of the old family buildings, which will also be vacated and destroyed as soon as new cottages can be built to take its place. The influence of modern ideas is very clearly shown in this demolition of an old congregate plant, and the substitution for it of the new cottage family homes with the sanitary and other conveniences of the age. For the detailed statistics of finance and children in care, see the set of tables at the end of this chapter. The per capita for salaries was ^106, and the average per capita cost of maintenance was $270. It is probable that these are above the average for the institution, because of the reconstruction process carried on along with its regular work. 2. Thorn Hill School This is a new institution, founded in 191 1 and located near Warrendale, in the northern part of Allegheny County. From its 81 CHILD WELFARE WORK IN PENNSYLVANIA location it is called the Thorn Hill School. The site is a farm of 1,100 acres, and already buildings valued at ^23 5,600 have been erected. The institution is planned as an industrial village of the cottage type, and 13 fine, permanent cottages, each costing from $16,000 to $20,000, have been completed. These are of brick, fireproof construction, and each will accommodate 20 boys besides the officers and caretakers. While the total cost to date was $390,400, and the valuation is now set at $400,000, it probably will exceed half a million in a short time, as the development of the institution progresses. All of the boys here cared for are between eight and sixteen years of age and are wards of the juvenile court. There is no definite term of commitment and, under a parole system, each boy secures his release when he has earned it. The report, which was personally given by the superintendent, was for the year ending November 30, 1913, which was practically the second year of regular work. July I, 191 1, only 25 boys were at the school, then just started; but November 30, 191 2, the number practically equalled the enlarged capacity, which was 250, and so continued through the year of the report. The amount expended by the institution that year was $2 1 5, 166, of which $170,2 14 was devoted to buildings and permanent equipment. The amount used in maintenance expenses was $44,932; the average number of boys in care was 220; the expense for salaries was $86 per capita; the average per capita cost of maintenance was $204. The institution is one of the best of its kind and bids fair to accomplish much in the way of industrial training. For many other details see the statistical tables. •3. Glen Mills Schools, Girls' Department The Glen Mills Schools, founded in 1826, are among the best known, equipped, and managed institutions for delinquents in this country. Especially is this true of the Girls' Department, since its removal from a congregate plant in the city of Philadelphia to a cottage plant on Sleighton Farm, near Darlington Station, Delaware County. The homes for the girls in care, v/ho range from eight to 82 In thf Kitchen Glfn Mills Schools— Girls' Departmhnt (Sleighton Farm). (See p. 82) Crf'to<}k':i-r;^v'^5.».i.' ■-.•: In the Field Harvest Products Feeding the Fowls Glen Mills Schools — Girls' Depaktment (Slhighton Farm). (See p. 82) HOMES AND SCHOOLS FOR DELINQUENTS eighteen \ears of age, are nine new two-story buildings called cottages, but each accommodating more girls than are usually located in one structure of the "cottage" type. Five of them average in capacity 37 girls each; the others respectively have 43, 49, 82, and 85 beds, making a total capacity of 444. Each is a complete domestic unit, with its own kitchen and dining room, and hot-water heating plant. The buildings are excellent and fitted with the best modern equipment. The rooms are well lighted and ventilated. There are a few dormitories, but in the main the sleeping quarters are single rooms of fair size, well but plainly furnished, many of them adorned quite attractively by the personal efforts of girls of the higher t\pes. The plant at Sleighton Farm is valued at 8205,300, and the average number of girls in care for the year studied was 400. There is no endowment. While only 47 per cent of the year's expense was credited to public funds, most of the remainder was from an unexpended balance on hand, probably originally from the state treasury. The salary expense was $32,969, or $82 per capita; the total cost of maintenance was $85,772, or an average of $214 per capita. There were 68 regular employes, or one for each 5.9 inmates. During the year, 401 girls were received, and a total of 777 different girls were inmates for an average period of from four to six months. 4. Glen Mills Schools, Boys' Department The Boys' Department of the Glen Mills Schools is located about five minutes' walk from the Glen Mills Station, in the west- ern part of Delaware County. The institution was formerly called the House of Refuge, and the name is yet occasionally used. As stated in regard to the Girls' Department, the institution was founded in 1826, and although under the management of a self- perpetuating private board of managers, takes the place of a state reform school for Eastern Pennsylvania. The departments are entirely separate both in location and administration, and yet in another sense are like the two halves of an apple, complem.ents each to the other. The department for boys is beautifully located on high, hilly ground. The buildings are arranged in a quadrangle around a 83 CHILD WELFARE WORK IN PENNSYLVANIA large, open court. The administration building is at one end, and opposite, across the court, is a large and well-equipped chapel, capable of seating at least 900 boys. At the sides of the court are the buildings for the boys and a school house. Other buildings stand outside of the original quadrangle plan. At present there are nine buildings for inmates of the insti- tution. Six have an average capacity of 100 boys each, one accom- modates 160 boys, one provides for 80 boys, and one has beds for only 25 boys; making a total capacity of 865. The larger buildings are three-story brick structures, covered with ivy and in good repair. In applying the family idea to the care of the inmates, the buildings, most of which are called " double cottages," have been divided by solid partitions, to accommodate 17 groups, each to average 50 boys, and to make each household in its details entirely independent of the others. There is a large central kitchen, where the greater part of the cooking is done for the entire institution. The food is sent around to the buildings by means of a little railway, with inclosed and heated "box-cars." The boys are dressed alike in a gray-blue uni- form with brass buttons, on which is the name of the school. The clothing is not individual, but is served out from a common stock. The plant is valued at ^671,300. There is no endowment. The average in care for the year studied was 757; the salary expense was $52,272, or $69 per capita; the total cost of maintenance was 1 1 49,664, or an average per capita of $198. The entire support was from public funds. The school received 449 wards during the year, and there were i ,272 different boys in care for a longer or shorter time. There are 93 regular employes, or one for each 8. 1 of the average of boys in care. 5. George Junior Republic of Western Pennsylvania This is a nonsectarian institution for delinquent boys and girls of Western Pennsylvania, usually not under fifteen years of age and rated sound in mind and body. It was established Decem- ber I, 1909. Its central peculiarity is the privilege granted to the inmates, who are called citizens, of "self-government, provided they follow out the spirit of the constitution and laws of the United States and the State of Pennsylvania." 84 HOMES AND SCHOOLS FOR DELINQUENTS The site of the RepubHc is a farm of i lo acres, located about one mile from Grove City in Mercer County. There are two modern three-story frame cottages,— the capacity of the one for boys being 32, and the one for girls, 20,— a school building, jail, barn, and other outbuildings. The entire plant is valued at $41,- 000. There is no endowment.' The boys and girls seem to take their privilege of self-govern- ment seriously and are devoted to the institution. All have a great deal of healthy outdoor life. They impose upon themselves and carefully enforce a wholesome discipline. Even the religious services are to a large extent managed by the "citizens." Con- siderable social intercourse between the sexes is allowed and is declared to be very helpful. It was stated that so far there has been but one known case of immorality among them. The super- intendent said he would feel much easier if he had only one sex to deal with, but believed the benefits of the present plan out- weighed its dangers and anxieties. The average in care for the year ending May 31, 19 12, was 45 ; the salary expense was $3,062, or $68 per capita; the total cost of maintenance was $16,440, or an average per capita of $365. The Republic received 65 per cent of its expense from public funds. During the year, 24 new "citizens" were received and there was a total of 67 in care. There were five regular employes, or one for each nine of the average number of "citizens." 6. St. Joseph's Protectory for Girls This institution, which is under the management of the Sisters of the Good Shepherd of the Roman Catholic church, is at Norristown, Montgomery County. It is located on a thirteen- acre tract on the summit of the hill, well back from the main busi- ness part of the city. A high wall surrounds the entire site. The building is cruciform, only partly modern in equipment, and is a perfect labyrinth for strangers. Some of the dormitories are large, having about 30 beds each, but the air space and ventilation seem to be adequate. The bedsteads are of enameled iron and the bedding is good. The capacity is 130, and the value of the plant is estimated at $175,000. The beneficiaries are delinquent white girls from eight to 85 CHILD WELFARE WORK IN PENNSYLVANIA eighteen years of age. The Sister in charge said of those only eight or nine years old, that in her opinion not the girls but their parents were incorrigible. Some instruction and practice are given in cooking, baking, general housework, sewing, knitting, embroidery, and gardening. Some garments and embroidery are made for sale and put upon the market in Philadelphia. The average number of girls on hand for the year ending August I, 1911, was 120; the amount paid in salaries was not given; the total for maintenance was $20,551, or an average per capita of $171 . There were 45 girls received during the year, and a total of 165 in care. The number of regular workers was not given. 7. Elmwood Home This is a nonsectarian cottage institution for delinquent boys from nine to fifteen years of age, near North Springfield, Erie County, 26 miles from the city of Erie. The site is ideally located on the shore of Lake Erie, with a fine stream flowing through the farm. The one "cottage" is a remodeled and enlarged two-story frame farm house; its capacity is 30 boys. There are a school building and the usual equipment of barns, and so forth. The entire plant is valued at $14,000. There is no endowment. At present only boys committed by juvenile courts in various counties of northwestern Pennsylvania are admitted. When the institution was visited, it was overcrowded with 34 inmates. New cottages averaging 30 in capacity are to be erected in the near future. While the present buildings are inferior, and the equip- ment not all modern, the visitor reported it as "the most home- like institution 1 have seen." The average in care for the year ending May 31, 19 12, was 26; the expense for salaries was $1,726, or $66 per capita; the total cost of maintenance was $5,063, or an average per capita of $195. There were 19 new wards committed during the year and a total of 45 in care. Three regular workers were employed, or one for each 8.7 of the average on hand. 8. Magdalen Society of Philadelphia This society was founded in 1800, and is therefore one of the oldest child-helping institutions in the state. Its purpose is thus 86 HOMES AND SCHOOLS FOR DELINQUENTS defined in a historical sketch pubHshed in 1902: "To aid in restoring to paths of virtue, and in recovery to honest ranks of hfe, those unhappy females, who, in an unguarded hour, have lost their innocence, . . . and are desirous of returning to a life of rectitude." In the 113 years of its existence more than 3,000 wayward girls have been sheltered and uplifted in this Christian home. The site consists of something over an acre of land on North Twenty-first Street, Philadelphia, surrounded by a high brick wall, "to elude prying eyes, and to prevent the escape of discon- tented Magdalens." The building is of brick, conglomerate in style, a part of it over one hundred years old. The front part is four stories high, the middle section three stories, and the rear portion two stories. There are a few modern conveniences, but as a whole the building is out-of-date and unsuited to the society's present use. The plant is valued at $125,000. As soon as possi- ble this property will be sold and a new plant established in the suburbs of the city. The endowment amounts to $91,000. Only delinquent white girls from twelve to eighteen years of age are admitted. The capacity of the building is 50. There are 34 individual sleeping rooms for the girls, and a few have two or more beds each. Several special "bungalow tents" — structures with wooden floors, and sides of wood to a height of about three feet, with wire screens thence up to a widely projecting roof — are erected in the rear of the main building and occupied as dormi- tories by an officer and some of the girls all the year through. The general spirit and work of the institution seem to be admirable. The average number of girls in care for the year ending Janu- ary 31, 191 2, was 45; the expense for salaries was $2,260, or a per capita of $50; the total cost of maintenance was $10,400, or an average of $231 per capita. During the year, 33 wards were received and there were a total of 74 in care. There were six regular employes, or one for each 7.5 of the average on hand. 9. St. Mary Magdalen Asylum for Colored Girls This asylum is a large and important Roman Catholic insti- tution managed by the Sisters of the Good Shepherd. Its year of founding was not given. The site is a suburban tract of about 87 CHILD WELFARE WORK IN PENNSYLVANIA 45 acres on Chew Street, Germantown. There are two large stone buildings devoted to the uses of the asylum. The capacity of one is loo, and of the other, 50 girls. In most respects the equipment is modern. A third building is devoted to the Sisters and to the Magdalens, an order of reformed women. The esti- mated value of the entire property is $217,000. No endowment was reported, but one is believed to exist. The beneficiaries are delinquent colored girls only, from ten years up to adults. They are divided into two groups: (i) those known to be immoral, and (2) what are called the preventive cases; and the two are housed in different buildings. The dormitories are large and have too many beds for air space and ventilation. The dining-room equipment is of the old orphanage type — oil- cloth covered tables, benches for seats, and granite-ware dishes. Owing to the reticence of the Sisters, the statistics are some- what imperfect. No salaries were reported, and the total cost of maintenance, $22,500, was the Mother Superior's estimate. The average number of girls in care for the year 1911 was 97, and the average cost of maintenance was $232 per capita. There were 35 new wards received and a total of 135 in care during the year. The number of Sisters and other assistants engaged in the work was not reported. 10. Philadelphia Protectory for Boys This institution is located not in Philadelphia but at Pro- tectory Station, about six miles west of Norristown in Montgomery County. It was founded in 1898 and is managed by the order of Christian Brothers of the Roman Catholic church. The site con- tains 300 acres, valued at $90,000. The building is a three-story yellow brick structure and very massive in appearance. The central portion of the building is a spacious hall leading to a broad stairway. This section extends upward to form a five-story tower. The large dormitories, containing 200 beds each, the general dining room, and other related equipment, are such as are usually found in the great congregate institutions. The capacity of the building is 600 boys. The main building and other accessory buildings are ar- ranged around a central court, the inclosed space being about one Industrial I raininf^ lor Boys LnJor the I rees Pennsylvania Ikaininc. Schooi,, Morganza. (See p. 80) The Boys' Cottage m m IHnF^^VwnPV^ -.«<«■„ l^ip^7rrnrTw*5rw^ Carter Republic Citizens William T. Carter Junior Republic, Redington. (See p. 89) HOMES AND SCHOOLS FOR DELINQUENTS acre. The buildings are estimated at about $710,000, making the total value of the plant $800,000. No information could be ob- tained in regard to endowment. The Protectory is devoted to the care of dependent and delinquent boys from eight to fifteen years of age, without restric- tion of race or color. They must be destitute or under court order to obtain admittance. As a matter of fact, most of the boys received are under commitment by the Philadelphia juvenile court for various degrees of waywardness. The average number of boys in care for the year ending December 31, 191 1, was 460; the expense for salaries was $14,289, or $31 per capita; the total cost of maintenance was $60,347, or an average of $131 per capita. There were 284 new wards re- ceived and a total of 734 in care during the year. II. W'lLLi.^.M T. Carter Junior Republic The aim of the William T. Carter Junior Republic is to provide a child-saving agency in which, under careful supervision, in the environment of a cultured nonsectarian Christian home, the inmates are granted the privilege of self-government and aided in the development of thought and industry. The institution was founded in 1898 and is located near Redington in Northampton County on a fine hillside, with an ideal outlook over valley, stream, and opposite hills, and with cultivated fields on every side. The site contains 186 acres of land, on which is over a mile of river front; also an orchard of 55 acres with over 4,000 fruit trees. There are one two-and-one-half-story frame cottage for boys, ca- pacity 40; a superintendent's residence, a farmer's house, and vari- ous other buildings. The property is valued at $50,000. No endowment was reported, but there is an annual gift from Mrs. William T. Carter, the founder, which for the year 191 1 was $6,000. The beneficiaries are white Protestant boys, dependent or delinquent, from twelve to eighteen years of age. Most of those received have been wayward or unmanageable elsewhere. Mis- conduct leads to a trial by the "citizens," the imposition of a penalty, a part of which is restraint, out of school or work hours, in the "jail." Many of the former "citizens" have "made good" 89 CHILD WELFARE WORK IN PENNSYLVANIA after leaving the Republic, and are holding honorable positions in various parts of the country. The average in care for the year 19 ii was 28; the salary expense was $3,000, or $107 per capita; the total cost of mainte- nance was $9,100, or an average per capita of I325. Only 19 new boys became "citizens" during the year and the total in care was 47. There are seven regular employes, or one for each four of the average of boys in care. GENERAL COMMENTS The total capacity of these reformatory institutions is 3,099. The average cost of plant per bed is $1,263; the total investment is $4,006,600; the average expense per capita for salaries is $72, and for the total cost of maintenance, $206. Of the maintenance, 71 per cent came from the public treasuries. There are 344 regular employes caring for an average of 2,646, and after deducting the children in institutions where the number of workers is not given, the remainder show an average of one worker for each 7.0 children in care. Many other very interesting facts and deductions may be drawn from the set of tables which immediately follow this chapter. It has been suggested by leading social workers of the state that there is great need at the principal centers of population for parental schools, or institutions for the restriction and discipline of truants and other mild delinquents. Their field of usefulness would lie between the supervised probation of wayward children in their own homes, and lengthy commitments to the correctional institutions, like the Glen Mills Schools or the Pennsylvania Training School. The parental schools should have public support and be under public management, either as a part of the public school system, which to the writer seems most advisable, or as a separate division of the state's schools for delinquent children. Not having made a close study of the situation, the suggestion is here made without a definite recommendation, as this Department favors additional institutions only in cases of real necessity. 90 o o o o o o H E 2 0 r~0 K N^O I moo ^ ^. ^ ■ ^ ^ 11 a si lo a>d d 1 ' d d PL, ;caj (2 m o < ;-5 fl,W(l,PH c« U gJ o o lllb^uz ^ 3>0 000 ifloO ' ■2 '5a QQ DQQOOaQQ Q -o-U" c)^<^ 1^ s ^a n -a 2 o o'' . — '^ 5, O Q MJi o 02i = &>■ O < 93 r<5 •* WO t~oo o> ( !2 ^ •■•p.?, o S H. S 5i a 3 52^ lists ^ POO ZZ(i( fL( eS " « ^ c 94 CHAPTER VIII HOMES AND TRAINING SCHOOLS FOR DEFECTIVES THE word defectives, as used in this chapter and its related tables, refers to the feeble-minded and the epileptics. A chapter is to follow on institutions for the care and training of physically crippled children. For the mentally deficient there are two institutions under public management and two under pri- vate control. The same reasons which led to the assembling of the 1 1 institutions for delinquents apply for the grouping here of the four devoted to defectives. They are therefore named and des- cribed in the order in which they appear in the statistical tables at the end of the chapter. I. Western Pennsylvania Institution for Feeble-minded This large and important institution is located at the town of Polk in Venango County. It was established in 1893, but first admitted children into care in 1897. The buildings, of which there are about 25 directly used for the care of inmates (in- cluding two multiple cottages described later), are built on the cot- tage plan and average 50 in capacity. The entire capacity of the institution is 1,500. The superintendent declared that for the best results only 1,200 should be accommodated. Yet at present the cottages contain many more than the 1,500 supposed to be the utmost that they should accommodate. At the time when our visitor studied the institution, in October, 1912, the inmates num- bered 1,620. The overcrowding was permitted because of the numbers needing such service and the urgency of the appeals for their admission. The site includes 1,216 acres and the estimated value of the plant is $1,260,000. While the main part of the institution consists of individual cottages whose average capacity is 50 each, there are two multiple cottages in the rear of the main group, in which are kept the lower 8 95 CHILD WELFARE WORK IN PENNSYLVANIA grades of feeble-minded who require more watchful attention. These are known as the custodial buildings, one for each sex, and together they accommodate 500 inmates. However, in interior arrangement these buildings also are divided into sections or "cottages," five in a building, each of which accommodates 50 children, making a total of 250 for the building. Both sexes are received. There are no color restrictions and practically no age limit, although preference is given for the admission of those under twenty years. Eighty per cent are children, or at least under twenty when received, and nearly 70 per cent of the average number on hand are under twenty-one. Our visitor was greatly pleased with the methods and management of the institution, and with its condition and work. The one "fly in the ointment" was its overcrowded condition, which was as deeply regretted by the superintendent as by the visitor. For the year ending May 31, 191 2, the average number on hand was 1,575; the expense for salaries was f 88,395, or $56 per capita; the total cost of maintenance was $318,475, or an average per capita of $202. During the year, 195 new wards were received and the total in care was 1,755. There were 256 regular employes, or one for each 6.1 of the average in care. Of the expense, 91 per cent was provided for from public funds. 2. Eastern Pennsylvania Institution for Feeble-minded The Eastern Pennsylvania Institution for Feeble-minded was founded in 1903, but not opened for service until 1908. It is located about two miles from Spring City, in Chester County, on a site containing 280 acres of land which is elevated and should prove salubrious. There are now five buildings for inmates, with an aggregate capacity of 500. The present value of the plant, based on the cost as reported to the state board, is $1,451,300. As noted above, the institution is comparatively new and is as yet only partially completed. Originally it was planned to provide for 1,200 inmates, but changes reduced the proposed buildings to a capacity of 800. There is now provision for only 500. No one can estimate when the accommodations for the other 300 will be erected. At present only boys from six to twenty 96 Boys' Cottage and Cottage Family Manual W ork School Room Western Pennsylvania Institltion for Feeble-minded, Polk. (See p. 95) \ iew of the Home The Field Workers \\ omen and Girls at the Home Passavant Memorial Home for Epileptics, Rochester. (See p. 98) HOMES AND SCHOOLS FOR DEFECTIVES years of age are admitted. When all of the proposed buildings are erected, girls also will be taken. All of those received, and prob- ably 90 per cent of those now in care, are under twenty years of age. The five buildings for boys are of brick, fireproof construc- tion, two-story with finished attics and basements, with capacity respectively for 60, 90, 100, 100, and 150 inmates. They are connected by "doubled-decked" corridors on the levels of the basements and first floors, which have the appearance of elevated stone walks enclosed between parapets. The average in care for the year ending May 31, 1912, was 400. One of the buildings was completed and first occupied during the year, immediately increasing the number to 500. The expense for salaries was $50,0 1 2, or ^ 1 2 5 per capita ; the total cost of maintenance was ^113,724, or an average per capita of S284. During the year, 178 wards were received and a total of 533 were in care. There were 100 regular employes, or one for each four of the average in care. Of the expense, 78 per cent was provided for from public funds. 3. Pennsylvania Training School for Feeble-minded Children This training school for defectives, under private manage- ment but with much of its support from public funds, is one of the largest and most important of the semi-public institutions in the state. It was established in 1852, is located at Elwyn in Dela- ware County, and the view from the administration building look- ing toward Media, the county seat, only one mile away, is superb. The site contains 340 acres of rolling land, and in some respects the location is ideal; but there is not enough level ground to permit a satisfactory grouping of the buildings. The soil is so rocky that excavation is very expensive, and the obtaining of an adequate water supply has been a difficult proposition. However, the insti- tution has charming views, the beauty of sloping lawns, and the inspiration of groves of native trees. The plant is valued at ^770,000; the endowment amounts to $250,300; making the total property value $1,020,300. Children of both sexes are received, without restriction as to 97 CHILD WELFARE WORK IN PENNSYLVANIA race or color, from six years upward for state cases, and a few pri- vate patients are taken under six years of age. The institution prefers to receive none over sixteen, but does take some who are older. There are 12 buildings devoted to inmates, with an aggre- gate capacity of 1,134. The buildings are of stone and brick, and are of various sizes and degrees of suitability. All are well equipped and in good repair. The average in care for the year ending September 30, 191 2, was 1,076; the expense for salaries was ^76,972, or ^72 per capita; the total cost of maintenance was ^238,182, or an average per capita of $221. During the year, 62 wards were received and a total of 1,133 were in care. There were 216 regular employes, or one for each five of the average in care. Of the expense, 74 per cent was provided for from public funds. 4. Passavant Memorial Home for Epileptics This excellent home for a very unfortunate class was founded in 1895 and is located at Rochester, in Beaver County. It is under private management and nonsectarian, but is under the control of the Institution of Protestant Deaconesses, which is related to the Lutheran church. The site contains 54 acres and is high, with a beautiful view of the surrounding country. The institution has a capacity of 70; the plant is valued at $129,600. There is no endowment. The three buildings for inmates are two-story brick cottages, accommodating respectively 21, 21, and 28 patients. Both sexes are taken, from five years up, without restrictions of race or color. If cured of the disease, or if the mental condition becomes such that others are endangered, dismissal or transfer to another institution takes place. Otherwise the patients are expected to remain for life. The rule for admission is peculiarly restrictive: "No person in whom the disease has developed imbecility, idiocy, or insanity, or who is suffering from contagious disease, will be admitted to the Home." It was difficult to estimate the proportion of minors in care, but it is probably about 20 per cent. The average number of inmates for the year ending March 31, 191 2, was 63. The expense for salaries was $3,838, or |6i per capita; the total cost of main- 98 HOMES AND SCHOOLS FOR DEFECTIVES tenance was Si 1,738, or an average per capita of $186. During the >ear five patients were received and a total of 63 were in care. There were nine regular employes, or one for each seven of the average in care. Of the expense, 43 per cent was provided for from public funds. GENERAL COMMENTS The total capacity of the four institutions dealt with in this chapter is 3,204; the average cost of plant per bed is $1,127; the total investment is $3,861,200; the average expense per capita for salaries is $70, and for the total cost of maintenance, $219. Of the maintenance, 82 per cent comes from the public treasuries. There are 581 regular employes and an average of 3,1 14 inmates in care, or one worker for each 5.4 of the average on hand. The study of the tables at the end of this chapter will add many other interesting facts and deductions. The Pennsylvania Epileptic Hospital and Colony Farm, located at Oakbourne, Chester County, is an excellent private institution for these unfortunates. It was not listed in the homes for defectives because it is classed by the state board of charities as a regular hospital rather than as a home. It has a children's cottage, and during the year ending May 31, 1913, had a total of 30 children in care. The institution possesses property valued at $1 10,000, and the expenses for the above named year were $31,563. Many social workers of the state for years have urgently appealed for additional facilities for the care of defectives, espe- cially girls of child-bearing age, who are now in general or special institutions or still at large in the various communities. As the state possesses but one institution for the feeble-minded in Eastern Pennsylvania, which at present can accommodate only 500 in- mates and is wholly devoted to boys from six to twenty years of age, the need for the speedy establishment of at least one more institution of large capacity to be open to the above named class of girls, is too evident to require argument. The overcrowded condition of the institution at Polk is indicative of urgent needs in the western part of the state. If the present accommodations were at once doubled, the provision for mental defectives would still be woefully inadequate. 99 CHILD WELFARE WORK IN PENNSYLVANIA In response to these appeals, and to partially supply these needs, the state legislature at its session in 1913 passed an act to establish an institution for feeble-minded women, which was ap- proved by Governor John K. Tener, July 25, 191 3. The purpose of the act is thus defined: An act to establish a State Village for feeble-minded women; pro- viding for an appointment of a board of managers to select a tract of land for that purpose in the State Forest reserve, and to erect and furnish buildings on the same, and to manage said institution; and for the com- mitment thereto of feeble-minded females between the ages of sixteen and forty-five years; and making an appropriation for the purposes aforesaid, also for the expenses of maintenance until June i, 191 5. The appropriation mentioned was "approved in the sum of forty thousand dollars." This will just about pay the expense of selecting a site and securing plans from able architects. Appro- priations for the actual buildings must follow. Great bodies move slowly, and however imperative the need, state institutions linger long on the trestle board of the architect and under the hammer of the contractor. The board of managers was appointed in January, 1914, and a month later held its first meeting. But the need has been recognized by the law makers and the executive, the thin end of the wedge has been struck into the heavy log of public action, and ultimately a useful modern institution will be built and occupied. Patience is a virtue and so also is vigorous effort to consummate a duly authorized work of public utility. Leading social workers of Philadelphia say that the state village for feeble-minded women is only the initial expression of a new policy to which the state is definitely committed, and which includes both adequate care of all feeble-minded children and the segregation of all adults of this class, so that they cannot reproduce their kind. Such a progressive program is worthy of note; but as its working out will require years of time and millions of money, it may prove only the "iridescent dream" of welfare workers in whom the wish is father to the hope. 100 :ss ^^ c c o o 22: ^ ^ ^1 .. 'J s ^ 22 W.5 c >> •3 >- o 1 E 3 2S Si u.S 2 >- s 1 •3° It It •a l c ^ c 3 3 fl. < o rt ^ ii (S'l m g .2 1 c« 3 O 1 < O ^ o c £l s 3 C C < •^ o H V E OJ C •o 3 ns e o a ^ « o -o a C Oi o O vO ro •Si 3^ 3i^ " g •o .-a . S — -S — ■ — c-p c S S 103 ^5 §1 Wed 1^ 21 IS DO O 3 I 3 „ £35 O .2 ^"S^ -5 O. (D 1) D 104 CHAPTER IX INSTITUTIONS FOR CRIPPLED CHILDREN THERE are six institutions, or parts of institutions, in the state of Pennsylvania devoted entirely to the orthopedic care and vocational and other trainingof crippled children. They receive only the physically defective who are normal in mind, and are therefore entirely distinct from the institutions for the mentally defective treated in the preceding chapter. Four of these institutions are in Philadelphia and two in Allegheny County. Most of the physical defectives cared for in these institutions are taken from conditions of utter homelessness or from homes of poverty and destitution. They are, therefore, in the saddest sense dependents. A few points in reference to each of these institutions will probably be appreciated, for crippled children excite deeper sympathy than perhaps any other class of suffering humanity. I. Children's House of the Home for Incurables This house, which was established in 1877, is as the title indicates only a part of an important nonsectarian institution located in the city of Philadelphia. However, the property of the Children's House is separately listed and an endowment is specially devoted to it. The plant is valued at ^90,400 and the special endowment, $5,500, making the total value of the property 195,900. While much of the income of the Children's House is specially given, any deficiencies in meeting the expenses are met from the income of the institution of which it is a part. Its capacity is 33. The Children's House receives only incurable cripples, of both sexes, of the white race, and of any age up to twelve years, with no discharge limit. The service is usually free, but in case relatives are able to meet part of the expense a small charge is made, the maximum being $1.00 per day. 10; CHILD WELFARE WORK IN PENNSYLVANIA The average number in care for the year ending April 15, 191 1, was 26; the expense for salaries was ^2,655, or $102 per capita; the total cost of maintenance was $10,277, or an average per capita of $395. None of the income was derived from public funds. There were 13 regular employes, or one for each two of the average in care. 2. Home of the Merciful Saviour for Crippled Children The Home of the Merciful Saviour was founded in 1882 and is under the auspices and control of members of the Protestant Episcopal church. It is located in Philadelphia and is of the cot- tage type. The capacity is 50. The plant is valued at $96,800 and the endowment amounts to $200,000, making a total property valuation of $296,800. The institution receives all kinds of crippled children of both sexes, of the white race, and from two and one half to six years of age, with no discharge limit for girls, boys being transferred to other institutions at sixteen. The service is usually free, but a few who are able pay a little toward the cost of care. The average number in care for the year ending October 31, 191 1, was 50; the expense for salaries was $5,625, or $113 per capita; the total cost of maintenance was $16,312, or an average per capita of $326. No public funds were received. There were 15 regular employes, or one for each 3.3 of the average in care. 3. House of St. Michael and All Angels The House of St. Michael and All Angels was founded in 1887 and is located in Philadelphia. It is an Episcopalian insti- tution for Negroes only, with a capacity of 30. Its plant is valued at $13,600 and the endowment is $35,000, making the total prop- erty valuation $48,600. The institution receives all kinds of colored crippled children; boys from two to nine years, and girls of any age, from two years up. The boys are usually dismissed at the age of ten, and the girls at the age of eighteen. The service is usually free, but a few parents or relatives pay $1.00 a week toward the cost of care. The average in care for the year ending September i, 191 2, was 25; the expense for salaries was $1,217, or $49 per capita; 106 Building and Plavground HoMh OF THE Merciful Saviour for Crippled Children, Philadelphia. (See p. io6) I he Nursery House of St. Mich.\el .and .m.l .Angels, Philadelphia. (See p. io6) Entrance Front View Rear View WiDENER Memorial School, Philadelphia. (See p. 107) INSTITUTIONS FOR CRIPPLED CHILDREN the total cost of maintenance was $4,719, or an average per capita of S189. No public funds were received. There were six regular employes, or one for each 4.2 of the average in care. 4. WiDENER Memorial School This great school was founded in 1906, and while an indi- vidual, or rather a family benefaction, is classed in its religious aft'iliation as an Episcopalian institution. It also is located in the city of Philadelphia. The Widener Memorial School is one of the most remarkable institutions of the kind in the world. The many millions in the plant and the endowment have been given by P. A. B. Widener and his family, and now constitute a permanent memorial of his deceased wife and other members of his family, especially George Widener, who was lost on the ill-fated Titanic in April, 19 12. For \ears before his death, George Widener had been interested with his father in the erection and management of this institution, and after his death the senior Widener completed the already large endowment in order liberally to provide for its work and to estab- lish a permanent and useful memorial of his lost son. The plant, setting a very low valuation on the large acreage tract in Philadelphia, in reality a splendid private park, is valued at $1,132,000; the endowment is at least $4,000,000, making a total property valuation of $5,132,000. The capacity of the school is 100. White children from four to ten years of age, permanently crippled, but not helpless, are received. The age of discharge varies from eighteen to twenty-one years. Preference is given children whom training may aid in prep- aration for at least partial self-support. Free service and training are given to all. The average number on hand for the year ending July 29, 1912, was 96; the expense for salaries was 842,795, or $446 per capita; the current expense was $107,041, or an average per capita of $1,115. However, it should be recognized that a part of this expenditure is for maintaining costly buildings and grounds which are a family memorial as well as an institution for the unfortunate. There are 78 regular employes, or one for every i .2 of the average in care. 107 CHILD WELFARE WORK IN PENNSYLVANIA The beautiful location, the fine modern buildings and equip- ment of the plant, the skilled teachers and caretakers, with the best orthopedic and other specialists of the city on the surgical staff, make this institution as nearly perfect in possibilities as any of its kind in the world. 5. Industrial Home for Crippled Children This excellent orthopedic and vocational training home was founded in 1902 and is located at Pittsburgh. It is a nonsectarian cottage institution and has beds for 50 children. The plant is valued at $11 0,1 00 and there is an endowment of $43,000, making a total property valuation of $153,100. It cares for all kinds of crippled white children of both sexes, receiving them between the ages of three and twelve years, with no definite discharge limit. The service is usually free, but for those able to pay there is a maximum charge of $1 .00 per day. The average in care for the year ending April 30, 191 1, was 45; the expense for salaries was $5,750, or $128 per capita; the total cost of maintenance was $1 5,003, or an average per capita of $333. The institution received 33 per cent of its cost of maintenance from public funds. There were 16 regular employes, or one for each 2.8 of the average in care. 6. Sewickley Fresh Air Home This institution is located at Sewickley in Allegheny County, and was opened as a fresh air home in 1897. Its enlarged work, including orthopedic service, dates from 1909. It is a nonsectarian cottage institution. The plant is valued at $21,700 and there is an endowment of about $5,000, making a total property valuation of $26,700. The capacity is 32 children. The institution receives all kinds of crippled white children of both sexes, from three to twelve years of age. There are no defined discharge limits, and children are kept until they are bene- fited as much as possible. The service is free. The average number in care for the year ending December I, 191 1, was 27; the expense for salaries was $3,152, or $117 per capita; the total cost of maintenance was $10,568, or an average per capita of $391. Only 5 per cent of the cost of maintenance 108 INSTITUTIONS FOR CRIPPLED CHILDREN was received from public funds. There were lo regular employes, or one for each 2.7 of the average in care. GENERAL COMMENTS It should be remembered that this is a peculiarly exceptional group of institutions, including within themselves the combined functions of the home and the hospital, and in most of them a third function — that of the vocational training school. The numbers needing such care are limited, hence the capacity required is com- paratively small. For obvious reasons the average expense for salaries and the general cost of maintenance are higher than in ordinary institutions. The total capacity of the six institutions is 295. The average cost of plant per bed is $4,965 ; or, if we omit the Widener Memorial School, because exceptional, the average for the other five institu- tions would be $1,706. The total investment is §5,753,100. The average per capita expense for salaries is $227, and the average per capita for maintenance is $609; or, omitting the Widener as above, we would have for salaries, $106, total maintenance, $329. Only 3.4 per cent of the maintenance came from public funds. There were 138 regular employes, or one for each two of the average number of children in care. For other interesting facts, see the tables at the close of this chapter. 109 z w Pi Q jj 5 u Q a Pli s u O en Z o H ^aS II III 1 i. 1.1 1 § g 8§ § a a MM .. § 1 1 i n 1 i 8 1 ^ 8 di< Q •s -^ c o 2^ ^^ I s^Hl'i I ^ E .2 I I ^ -"1 I, Ovo. • 4) e t; ( •o g M u s fi < cS "^ ^ T3 st (So •a a 3 y c 1 1 eu < G rt o &> 1 'S 1 s C .s 3 < o i^ c ^ " B o-- p u > 111 K 3 > 117 ^ a c u E pa ft! z S^ o H i^ "3 (/) c 1 < 'O a s;:5 Si S = o 2 -sS £'*;o o " > g M .a-0 oil .i.| ii; i! ■^ rt m c « ■; u 5 o o^ o ; a o ii8 p 5 s S •s « B c ei ^ •? E o & S-« -00 o> o s^ S " S 3 =-5 '-' c o c o „ ii ■g m O. S 3 Q. 3 £ cj an) 4j >< s o 119 PART THREE THE CHILD-CARING AGENCIES As to the children who for sufficient reasons must be removed from their own homes, or who have no home, it is desirable that, if normal in mind and body and not requiring special training, they should be cared for in families whenever practicable. The carefully selected foster home is for the normal child the best substitute for the natural home. Such homes should be selected by a most careful process of investigation and with due regard to the religious faith of the child. After children are placed in homes, adequate visitation, with careful consideration of the physical, mental, moral, and spiritual training and development on the part of the home- finding agency, is essential.— Conclusions of the White House Conference, Paragraph 3. The essential conditions of successful placing-out are investigation, careful records, and thorough supervision. No society has a moral right to undertake the placing of children unless it is prepared to carry out this plan of investigation and supervision generation after generation. Only competent associations should be licensed by the state, and they should give adequate guarantees for the faithful prosecution of supervision. One such voluntary society in a state is enough for the general work. Supervision and inspection demand a high order of ability, wide travel, and energetic labor, by tactful and experienced experts. It is evi- dent that an association which deals with only a few cases in a year can not afford to provide such agents, and is tempted to depend on letters or irregu- lar visits. It would seem to be wise to combine several of these agencies in one federation for the purpose of maintaining the kind and quality of super- vision demanded by experience. — Charles R. Henderson. CHAPTER XI GENEIIAL CHILD-CARING AGENCIES TURNING now to the private organizations and institutions, the first to be considered are the general and local agencies. Most of these bear the name "Children's Aid Society" and have as their principal work the placing of dependent children in family homes, either as paying boarders, free inmates, or paid workers. Five of these agencies cover more than local territory, or are state-wide in their field and work. Hence they are grouped to- gether under the title of General Agencies, for descriptive comment and for tabulation. I. Children's Aid Society of Pennsylvania This general agency was organized in 1882 and has its head- quarters in Philadelphia. Its territory is not limited by its charter and its work may extend to any county of the state; but in practice the society confines its efforts to territory east of the Allegheny Mountains, or to about three-fifths of the state. The development of this society has been rapid of recent years. Advanced ideas, modern methods, and trained workers have made this the most active and progressive child-placing agency in the state. It owns no plant except its excellent office equipment, valued at 85,500, but has a growing endowment, now amounting to ^219,- 300. For the year 1912 its expenses were $1 14,985. During the year it received 547 new children, returned 131 to parents and friends, placed 381 in family homes, and had at the end of the year 1,796 children in care and under its supervision, nearly all in private families. About 600 were in private homes as pay boarders, about 900 were in free homes, about 150 were receiving wages, and the remainder were in hospitals, training schools, institutions, or on probation with relatives. In conjunction with the Seybert Institution and the Penn- 123 CHILD WELFARE WORK IN PENNSYLVANIA sylvania Society to Protect Children from Cruelty, this society has a receiving home, called the Joint Shelter, in one part of the Charities Building in Philadelphia. This shelter is managed by a joint agency of the same organizations which is called the Chil- dren's Bureau. Each of these will receive separate treatment. By them not only temporary care but medical and psychological examinations are given to various children in direct care. The Children's Aid Society of Pennsylvania now receives children in Philadelphia either through the joint agency, or Chil- dren's Bureau, or directly from the Pennsylvania Society to Pro- tect Children from Cruelty; and throughout the eastern part of the state from the juvenile courts, the various boards of directors of the poor, and the co-operating local committees and children's aid societies. The society has local committees in a number of counties, all of whose statistics are included in those of the central organization, so that no separate statistics are available. It also has a working alliance, without merger, with nine county children's aid societies of Eastern Pennsylvania. These societies have their separate organizations and statistics which are not included in any other statistical tables, and will receive separate mention and tabulation. Although they are independent, they are all co-operating definitely, in different degrees, with the Children's Aid Society of Penn- sylvania. 2. Home Missionary Society of Philadelphia This agency was founded in 1835. Its work is quite general' including special religious work among the poor and various lines of aid to the destitute as well as the care of needy children. Its children's department, which is the only one to which this study is related, has in recent years become increasingly prominent and effective. The society possesses a fine property in Philadelphia, about one-fourth of which is held for use as its headquarters, and the remainder rented out. The combined plant and endowment property is valued at $95,000. The income and expense of the children's department for the year ending September 30, 191 1, was $5,809. 124 A Sample Foster Home GENERAL CHILD-CARING AGENCIES During the year, 48 children were received; four were re- turned to kin and friends. 49 were placed in family homes, and 261 were in famil\- homes under supervision at the close of the year. 3. Children's Aid Society of Western Pennsylvania ' This agenc}' was organized in 1885 and has its headquarters in Pittsburgh. Its territory also is undefined, being practically contained in certain counties where local societies are organized, but is mainly included in the two-fifths of the state west of the Allegheny Mountains. The organization is peculiar in two ways. First, it is an incorporated federation of 23 county aid societies, each of which is an independent organization in its own territory. These will be treated in a group by themselves, carefully separating their statistics from those of their central organization. Second, it has held tenaciously to the plan of volunteer work rather than to that of paid trained employes, and uses almost exclusively the uncompensated efforts of interested citizens. The federation possesses only one institution, the Girls' Industrial School, at Indiana, Pennsylvania. This property is valued at 817,000 and is listed among the nonsectarian cottage orphanages.* The Industrial School is used jointly by all members of the federation. The only other property belonging to the general society is the office equipment, which is valued at $1,000. There is no endowment. The expense of the central organization for the year ending May 31, 191 3, was $2,894. The main functions of this organization are to bind together the members of the federation; to arrange for matters of finance, especially a small state appropriation, the major part of which is apportioned among the members of the federation; to facilitate the exchange and disposition of children; and to aid in matters relating to the Girls' Industrial School. Very little direct work in the care and placement of children has been carried on from the central office. During the year of the study only eight children were there handled, as distinct from those handled by the local societies. Yet many wards of the members of the federation are handled in transit and many inquiries and applications are received at the central office and passed on to the local societies. * See Table 14, p. 174. 125 CHILD WELFARE WORK IN PENNSYLVANIA It has been thought best to Hst the main work of the Chil- dren's Aid Society of Western Pennsylvania under the name of the individual members of the federation. This gives credit to the local organizations and pictures their relative activity and usefulness. To give only a set of totals under the federation name would be far less suggestive and satisfactory. Their work is outlined in the chapter entitled County Children's Aid Societies of Western Pennsylvania, and their statistics in Table lo, which immediately follows that chapter. 4. Children's Home Society of Pennsylvania This organization, which is related to the National Chil- dren's Home Society, was founded in 1894 and has its headquarters in Pittsburgh. Its activities are supposed to cover the entire state, but naturally are more pronounced in the western part. Owing to various unpropitious circumstances, the Children's Home Society of Pennsylvania has had a comparatively slow growth. The society possesses a receiving home and equipment valued at $40,000, and has an endowment of $20,000. Its expenses for the year ending March 31, 1912, were $20,886. The statistics of children were omitted because they did not conform to those of other organizations. Like all of the other organizations in this group, this society is an exponent of the care of dependent children by placing-out in private families, as opposed to the plan of massing them for indefinite periods in institutions. 5. Juniata Valley Children's Aid Society This society was organized in 1881 and is located at Hunt- ingdon, near the center of the state. The territory covered is Huntingdon County, and to some extent four or five adjacent counties. There is a children's home valued at $10,500, but no endow- ment. The income and expenses for the year ending May 31, 1912, were $5,476 and $5,251, respectively. Only 22 children were received during the year; three were returned to kin and friends, 19 were placed in family homes, and 64 were in homes under supervision at the close of the year. The 126 GENERAL CHILD-CARING AGENCIES society recently lost by death its founder, Professor David Em- mert; and later, his son, who had taken up his father's work, moved away from the community. The work of late years has been less effective on this account, and a virile nev/ leader is necessary to future prosperity. Combined Results As a whole, these general agencies are exceedingly important. They are the main expression for the state of the home-finding plan of child-care as contrasted with the institutional method. Aggre- gating their statistics, we fmd that during the year studied they received 684 children; had in care or under supervision a total of 2,532; placed in family homes, 457; and at the close of the year had in care and under their supervision 2,149 children. This does not include the statistics of children handled by the Children's Aid Society of Western Pennsylvania, except the few connected only with its central office, or those of the Children's Home Society of Pennsylvania. The figures for the former will appear in connection with the county children's aid societies, to prevent duplication, and the latter were entirely omitted, as stated above. It is apparent that in the fields and work of these important agencies the conditions are chaotic. There are indiscriminate overlapping of territory and extreme differences in methods and policy. The amalgamation of the five agencies into two strong standard societies would be the logical and economic solution of the problem. The Home Missionary Society of Philadelphia could well and wisely merge all of its child-caring work into that of the Chil- dren's Aid Society of Pennsylvania, with headquarters in Phila- delphia; and the Children's Aid Society of Western Pennsylvania would do well to unite with the Children's Home Society, with, headquarters in Pittsburgh. The Juniata Valley Society should cease all general work and confine its efforts to the local situation; as from recent advices it now seems likely to do in any event. This would unify and harmonize the general work of child- rescue and placing-out all over the state. It would tend to im- prove the quality of the work, make a great saving in the relative 10 127 CHILD WELFARE WORK IN PENNSYLVANIA expense, open the way to close co-operation with pubhc officials and all kinds of child-caring institutions, make it possible syste- matically to cover the entire territory and to give adequate super- vision to all placed-out children. Pennsylvania's agencies should emphasize more positively the advantage of the use of high grade free family homes for chil- dren permanently separated from their parents, whether by death or desertion, or formal court action. The advantage to a child of being reared in the normal conditions of a good family circle rather than in the abnormal conditions of an institution, is now too well- known to need explanation, and so universally accepted as not to require argument. If the placing-out work is well done by high class agencies, and adequate after-supervision is afforded, the home-finding plan is the best method yet devised to provide for normal children not in need of special training, who are perma- nently homeless. The suggested amalgamation would give to Pennsylvania a state-wide system of immense possibilities. The three sections of Table 8, which is placed at the end of this chapter, will give many other interesting details concerning these five general agencies. 128 «^^ 'i. 5 c StS >" 32 o V H c o a ^ g ill 3 S 1) o H >i ^■'^ a o a ^ > 1 ^ m" M .Si a V.'-B 'X^ c C/} ^ >. oil—" r« u, -0 rt^ C M i; o 3 a >■ £■" . c •o c JJ g -) P(^§ !:3^ 129 ■g \ o c 1 a i) ^ a OJ JS 1 O < o ■!-> s § 8 s u a fe u CL, > ■^ 13 c E a aj 5 E^ < ^ c S fe s c2i 1 c d < m ;g >• fcS' E 1- s > > a C 3 1^ -c ^■S m" ° Ja U cd u E SJ c -o c rt J. _o g J O CO 10 o O •* >o o O <3 >n ro Ch O O M ro in o a 130 !" S - « . lilt .S c c - i- IS |~|i u 0-2 g H- >in a •3 .!3 Dis- posed of other- wise X ^j i ^-n ^ O-D O Oi Vi 5 rt- £.5 i« Ills ,:73< O C .2 gg ^ I ill lii! SqS 131 CHAPTER XII COUNTY CHILDREN'S AID SOCIETIES OF EASTERN PENNSYLVANIA THERE are a large number of county and local child-caring agencies in Pennsylvania, most of which bear the name of children's aid societies. For the purposes of this study they are arranged in three groups, to the first of which is given the title found at the head of this chapter. Nine county children's aid societies, all located in the eastern half of the state, are included in this group. While they are inde- pendent, they are definitely allied in some degree with the Children's Aid Society of Pennsylvania, the general agency covering with its agents and activities the eastern part of the state. Each of these county societies has its own organization and records, and the statistics given in the tables are entirely separate from and additional to those of the general agency with which they are principally associated. The co-operation with the Chil- dren's Aid Society of Pennsylvania is mainly in case study, placing- out work, and the after-supervision of placed-out children. An article prepared for the State Dependents Commission by Edwin D. Solenberger, secretary of the Children's Aid Society of Pennsylvania, indicates not only their special relations to this general agency but also some of the special work done by seven of these county aid societies: The Bucks County Children's Aid Society receives and boards out children for the directors of the poor. The Chester County Children's Aid Society receives and boards out children for the directors of the poor and co-operates with the juvenile court. The Dauphin County Children's Aid Society, headquarters Harris- burg, acts as placing-out agent for the county juvenile court, the county poor board, various homes and private charities. The Delaware County Children's Aid Society receives children from 132 COUNTY CHILDREN S AID SOCIETIES the directors of the poor, and from the juvenile court, and places them in homes. The Franklin County Children's Aid Society conducts a receiving home in Chambersburg, and receives children from the directors of the poor, from the juvenile court, and direct from parents. The Lycoming Children's Aid Society is conducted as a branch of the Children's Aid Society of Pennsylvania, and maintains a receiving home at Williamsport. The children are received from the overseers of the poor, the juvenile court, and from parents and relatives. The re- ceiving home is conducted and maintained by the local society, while the Children's Aid Society of Pennsylvania does all the home-fmding work, and places out and visits the children. The Montgomery County Children's Aid Society receives children from the directors of the poor and finds homes for them. It will be unnecessary to enter into further details in regard to the individual members of this group. A study of Table 9, following the suggestions given in previous chapters, will enable the reader to obtain an outline of the condition and activities of each of them. All of these societies favor and practice home-finding and placing-out in private families rather than the institutional care of normal children. Yet because of the variety of children for whom they provide, they co-operate with many child-caring insti- tutions, especially such as provide for the wilful and wayward, and for the mentally defective and those otherwise abnormal. Each one may be said to be an agency to seek out needy and dependent children, to study the best way to secure their welfare, and then to place them with relatives or in other families, or if necessary, in some public or private child-caring institution. Only two of the nine societies own headquarters for their work, the other seven being housed in rented offices. The Frank- lin County society has a receiving home valued at $20,000, and that of Montgomery County a plant valued at $3,500. A small receiving home is maintained by the Lycoming society at Williams- port, but no details of its capacity or valuation have been received. Three of the societies have small endowments. About 50 per cent of the aggregate income is from public funds. The nine societies expended during the year a total of $21,980. There were only 10 133 CHILD WELFARE WORK IN PENNSYLVANIA regular workers reported, and there is considerable dependence upon volunteer effort. The nine societies reported as a year's work an aggregate of 240 children received; a total of 589 in care and under supervision; 114 children placed in family homes; 448 remaining in care and under supervision at the close of the year. A surprisingly large portion of their work is in connection with the county directors of the poor. Many helpful and instructive comparisons can be made between the items in the three sections of this table and similar items in other agency groups. It is to be feared that these soci- eties do not yet fully understand the importance of trained skill and modern methods. They should have at least three times as many paid workers as they now have, or closer co-operation with other agencies, in order to cover properly their territory and popu- lation. Like the western group, in which it is almost an article of religious doctrine, most of these county societies of Eastern Pennsylvania still adhere to the supposed advantages of unsuper- vised volunteer service. Possibly even before these friendly suggestions become public, the influence of teaching and example may have changed these conditions. It is an era when efficiency bears the banner in the van of progress. Trained workers, who give their entire time to the amelioration of social ills, have become a necessity in every field of philanthropic effort. 134 to 2 < > g; w W< a; Ofe .> la c Q < s-l-S 2 '-5 1" O O CO o lO 1/1 O CO O Os O O "-» -^ O '^9. 0\ o c^ 0\ O 0\ o o^ Ov 3- & & a tjs a s < OT 'X < OP < Q U i a a a a o o o o < G o 135 y >: "i -i Tj- lOO 1^ 00 fcoofc, fcoo j^ 0) 7 Uu-z Q.SQ iQ.a<;.SQ.s< ^Q.sp.s<:.s < 6 Soffiiz^^^ ,36 ! "Se'S — o fc.S-fi a 1^3!^ C4 o c co^ •S o^-o'z Bt c 'c Sf c .S 4' g SE a , s «-3 s ■•5 "H c S a - :S ra OS-| u I- ■ c . S c~ tl IIP ^ ^ E « c •a c c s o ►J 2 • « > ■ ^ I ^ V t/3 • • • 'ci X • • ". H ". a 6 ' "o§2 •s!6g-=36goS-S«3j=-iS 13; ■>-' c o2 ^ 2ii-<' 3 aj _ m'^ "^ 5 diS'o a! ~ 2 o.2_-s CHAPTER XIII COUNTY CHILDREN'S AID SOCIETIES OF WESTERN PENNSYLVANIA ALL of the 23 county societies comprising this group are full- fledged organizations, each covering its own territory but in definite relations to all the others through their central organization, the Children's Aid Society of Western Pennsylvania. As stated in the chapter on General Child-caring Agencies, the central organization does little direct work with children, but is a bond of federation and a general clearing house for the auxiliary societies. These have their regular officers and records, and manage their own local work, but are united in support of the central organization and of the Girls' Industrial School at Indiana, Pennsylvania, as before stated, the only institution owned by the federation. Each month the reports and statistics of the various societies are forwarded to the central organization at Pittsburgh, and with some additions due to central office activities, form the regular report of that body, the Children's Aid Society of Western Penn- sylvania. For the purposes of this study the central office statis- tics have been separated from those of the 23 auxiliary societies, in order to show the work being done in the several counties, the classes of children cared for, the relative cost, and the strength of the various auxiliaries. These matters may be particularly observed in the sections of Table 10, at the close of this chapter. It should be noted, as already mentioned in the sketch of the central organization, that these 23 county societies depend almost wholly upon volunteer effort. The Allegheny County society, covering the city of Pittsburgh, employs one paid agent, and the Mercer County society and the Washington County society each employs a paid agent for part time. It is held by these organizations that volunteer work is more sympathetic and genuine, and not cold, methodical, and machine- 138 GiKi.s' Indlstkiai. School, Indiana (See p. 138J Institution of Children's Aid Societv of W estern PennsvKani Summer Camp, near Warren. (See p. 142) Managed by Warren County Children's Aid Society '¥4^ h^fM COUNTY CHILDREN S AID SOCIETIES like, as is the work of many paid empknes. They claim that any benefits of training in social service possessed by paid workers is more than made up by the closer relations of those who do the work because of a love for humanity. Making allowance for the excellent spirit which seems to pervade the auxiliaries of this federation, and the fact that many children are well placed by these societies, it still seems that this federation could greatly advance its own interests and more efficiently aid in the care of needy children throughout its territory by utilizing the new and scientific methods of service through trained social workers. It would not be necessary to give up volunteer service; only to give the advantage of trained leadership to work that has been sporadic and unsystematic. Exclusive volunteer social work has been outgrown in nearly all parts of the country. Careful case study of children and fam- ilies, according to modern requirements, is practically impossible to untrained volunteers, who give only a brief time to the work at uncertain intervals, as they may be able to do in connection with home or other duties. However sympathetic or devoted to the cause of child welfare such volunteer workers may be, they lack the detailed knowledge, systematic methods, and general per- spective that enable trained workers to see beyond the superficial appearance of persons and homes, and to estimate them according to their real character. The same is true in regard to the supervision of children after placement. In many cases the volunteer worker lives neighbor to the foster home and finds it hard to study matters without preju- dice. There is the same lack of time, of systematic methods, and of wide perspective that makes good preliminary case study by volunteer service almost impossible. The public subsidies noted in connection with the federation probably are more of a damage than a benefit. Sums ranging from $2 1 to a few hundred are at best mere pittances, when for their work such county societies really need thousands. In all likelihood the amounts actually received by the majority of these agencies really dry up springs of benevolence that otherwise would furnish many times such subsidies. Two-thirds of the organizations could refuse public aid to their financial advantage. 139 CHILD WELFARE WORK IN PENNSYLVANIA Only five of the 23 organizations receive from public funds I400 or more; 10 others receive between $100 and $300 each; and eight receive less than $100 each per year. Surely the friends of such a work would more than make up such small sums if stimu- lated by the thought that it was dependent upon subscriptions rather than a seeker of doles from the public treasuries. It is evident that under present circumstances few of the auxiliary societies can afford trained paid workers. Of the 23 societies, only five have annual incomes exceeding ^1,000 each; three more have incom^es ranging between $500 and ^1,000 each, and 15 have incomes of less than I500 each. The employment of trained workers on salaries is manifestly impossible without great increase in the available funds. It would doubtless be feasible to join several adjacent counties into a working district which could pay a salary, and thus make it possible to put a trained paid worker into the field. If three coun- ties joined to form such a district the trained agent could divide the time among the counties according to their special needs, doing case work, supervising placed-out children, stimulating public sentiment, and other similar duties. By this plan most of the objections to exclusive volunteer service would be obviated and still leave ample room for the uncompensated activities of the society members. A truly co-operative spirit and great care in the details of arrangement would be required to make such district organiza- tions successful. The worker chosen should be one who has had some real training in modern methods, and should possess con- siderable executive ability, so as to be fitted for real leadership all over the territory. Each county society should expect to do "team work" with the others, using the time and efforts of both paid and volunteer service for the best interests of all concerned. It is realized that there is great difference between the con- ditions in strictly rural sections and those in the large towns and cities. In the country districts a part of the work can be well and wisely done by volunteer efforts, although everywhere trained leadership is required for high class service. But in the cities and all places of considerable population, all of the best authorities now agree that trained paid workers are absolutely essential. 140 COUNTY CHILDREN S AID SOCIETIES These 23 societies have no headquarters plants except the Allegheny County organization, which has office equipment valued at S400. The societies in Lawrence and Mercer counties possess small endowments. In the aggregate the group receive 27 per cent of their income from public funds, almost three-fourths of the entire amount going to five of the 23 societies. The total current expense of the group for the year ending May 31, 191 3, was $22,713. Of this amount only 4 per cent was paid in salaries, 4 per cent in traveling expenses, and 92 per cent was devoted directly to the payment of board or other care of the children served. During the year, 336 new children were received and a total of 1,163 were in care. The various societies secured the adoption of 51 children; 224 were returned to kin or friends, and 106 were disposed of otherwise. During the year about 32 1 were placed in free or boarding homes, and nearly $ 1 6,000 was paid out for children's board. At the close of the year, 388 of their wards were in free homes, 1 1 1 were in boarding homes, and 83 were in hospitals or special institutions; a total of 782 under supervision. For full particulars in regard to the work of this important group, study the three sections of Table 10, at the close of this chapter. Note.— In July, 1914, the Children's Aid Society of Allegheny County retired from the federation and merged with the Child Welfare Association of Allegheny County. The amalgamated organization re- tains the name, constitution, and offices of the Children's Aid Society, but accepts 20 members of the association board on its directorate, and adopts the general method of employing paid trained agents instead of depending upon volunteer service. The merger is an auspicious begin- ning of co-operative combinations for economy and efficiency. 141 SSI 1 O rt-o.r^ M in O fOOMfO 00 t-<0 o O •* "^ r- o vo q o o o o vO O fO ro re ro fO f*? f^ fO ro ro rO fO fO re ro ro fO rO ro (T) re fO re O Oi Os 0\ O^ O^ O^ 0> Ov 0» ^ Ov O 0» 0\ 0\ 0\ 0\ Oi O* 0\ 0\ 1^ ro fO ro n ro fO ro fO ro re r<0 n nn ro ro re r<5 ro r<5 n rQ ro duuo cJcjo cjucju 6 cJu c3u ououou y cccc ccB eecc a a a a a cccccs c oooo ooo oooo o oo oo °°°°°° 2 zzzz zzz zzzz z zz zz zzzzzz z ^O00\OO\ OOw MMl-^t^ CO ooo O ^ 0 CJCJog • -u (A . .0 . •u C/JcJ ■(Amm u w ,A• la II xg ^•5 •* o a m n >>>>>>> > > > > > •a> > •2-a> > > > SiSijSiSiSiS^-S .^s^^s^s 2 .i2 .^;§ : i,S I5 Is' Is Is Is I - Is Is" S 3 u g ^ O 5: ^ •43 Board paid for chdn. in families Placed in free or board- ing homes' >> i I •S J3 " O — 4A m I 1 3 i II Dis- posed of other- wise o u " ill it < bo .5 c li Under siipvn. May 31. 1912 E g •0 r: 1 ■ r,» N r<5 O irtco ■ !-) M r<5 OMn t^ "1 U1 ro r«3 I OvO-O Ol/5M0>I^Mv0OtOO'O'-l«"r.10v>-00OP>Tf ■ ^O CO vO ^O O 00 fO t* r^O O I r~oo rf -a- Oi t " lO lo nao l> • O 00 m-o ro o I !OroV5Mr)- .NNi/> rj-oo 1 O H M W ^> rooo O M r<: i^ ► • rO OMfl cq Tj-i h'»5N'*-*roiMr)n ir>0 t^lnO'OOOOO'O ' 0\ '^O M 0\0>r^vO MOO r^oooo lofor^oooo o\^vifOO d^O gr ■, -S; 01*3 S1^ w-g 0."^ ^^ d.S g rt § ^ C ear studied was ^100,812. While all classes are handled, their principal work is with the willful and abnormal, or with children unfortunate enough to possess what one worker calls "incorrigible parents." They naturally receive and handle many children from the juvenile courts, either for permanent placement in families or institutions, or to return to relatives on supervised probation. During the year studied which while not exactly the same for the various members of the group was approximately 191 2, the aggregate number of children handled and under supervision was 4,467. The societies placed 279 children in family homes and had 2,586 under supervision at the close of the year. These figures show the importance of the group and the extent of the work done. Table 1 1 will repay further and detailed study of its three sections. It may be well at this point to note the agencies commonly known as the Associated Charities. There are eleven of these associations of charities or charity organization societies in the state more or less directly connected with child-placing, that is, in addition to what is done for children in the general aid work of the societies. These organizations keep no separate records for children, the work being recorded by "cases" or "families." While in the aggregate they do an immense work for poor and helpless children, its general nature and the lack of records specially relating to children precludes more definite consideration of it here. Probably from the standpoint of this study, their main usefulness in child-helping is in referring matters relating to dependency to the various child-caring agencies and institutions, and arranging for the temporary or permanent care of destitute or homeless children according to the need in each case. 147 QlO C>0 0v0\0\0i ^ QQ Q Q Q P P Z2;Z2;^ZJ2:22; I if •3 ^1 Ph — ^ " a; 22ai ;S O I 3Z a; c s O rt "'^ a Q o ^ - " pg ffl5 = Q PQ OU I4S CL, 1^ ^ c s u c u c, C- aJ ^ c i 3 i < o i c «' > s Ch M 2 .s c ft 1 g s 2 E a H < ^ o j; S fc M 1 < m •a 1 nj ^=1 "H ^ c ja oi C > c, H- "f. M V ^ ^£ mo a «J — to Oo E c s n c 8 _] -o n 1- o o o o M O t^ H 3 ."3 "a "a ft, CL, <.= <.S<.£, 1 c 1 II Dis- posed of other- wise t;.s.ii 1 1 3 •T3 Si •S c ll sp •a to S0 Under supvn. begin- ning of yr. 1 a •o c; c .2 1 •vO N iflr~ •*<^ nx) o o> oo I ro ^ no t^ O • n ■* ■ O M -vO ■ • o ^ go e£ OSS C y O O ca B . o JO &i-ot£ufe""-^ mm So; !*>*, Tl S •O 01 a o m i;,;?"'^ U i:„^ o •S-ssi eg li (S d) « - ^-|5 .a *^ a > rt- g-2i .s 1^1 I o'S'^ 2 34J 5; O 2 2 o " III i •g|g E ■ill ■I Ep I oca S°S .§ llJll llllll -.2 ^o^^ -S^og"! :!=3S&|.E loSE^I- -. 1" c > Em 3 ^ "o 2 J ^.2 to a oE .2 UjO ao) «j: 3 H^ c c'>' 150 CHAPTER XV SPECIAL CHILD-CARING AGENCIES THIS group of agencies is separately listed and tabulated because in general the work done is somewhat different in type from that of the county children's aid societies or other organizations covered in the preceding chapters. Some are not connected at all with placing-out work, and very little with institutions. Part of them do very little in the direct handling of children, and much in supplying their needs through others. One is the placing-out agency of a county juvenile court; and some do considerable placing-out work, especially boarding, but more of physical and psychological examination, investigation of cases, and reference of children to more general agencies and institutions. They deserve recognition as child-caring agencies, and are an important link in the chain of organizations. Because of their peculiarities and the fact that many of their activities are either on different lines or merged into the work of groups already stud- ied, but few coordinate statistics could be obtained. These are embodied in a single general table, which follows this chapter. For obvious reasons this table is not included in the summary of the agency groups. A more or less detailed explanation of their work may be found in the following paragraphs. I. Bureau for Jewish Children of Philadelphia - The Bureau is a branch or department of an organization called the United Hebrew Charities, whose central function is the collection of funds for the support of the various Jewish institu- tions throughout the city. It was established to provide a central agency for the investigation of cases of neglect, dependency, or delinquency, and the reference of such children as required con- tinued care to appropriate Jewish agencies and institutions. Only one agent is employed. During the year ending April 30, 1913, the bureau handled 160 children, of whom 86 were sent to institu- «5i CHILD WELFARE WORK IN PENNSYLVANIA tions and 74 were temporarily assigned to agencies or placed in private families. The cost of the work was not given. 2. Children's Bureau of Philadelphia This is an investigating, recording, and locating organization, jointly supported and managed by the Children's Aid Society of Pen;isylvania, the Society to Protect Children from Cruelty, and the Seybert Institution for Poor Boys and Girls. In addition to these supporting agencies, the following institutions and organiza- tions are affiliated with the Children's Bureau, having a representa- tive, with voting power, on the joint executive committee of the bureau: Nothern Home for Friendless Children, House of St. Michael and All Angels, Bethesda Children's Christian Home, Society for Organizing Charity, Shelter for Colored Orphans, House of the Holy Child, Burd Orphan Asylum, Howard Institu- tion, Lincoln Institution, and the Home for Destitute Colored Children. These affiliated organizations pay a nominal annual fee of ^10 each. During the year 191 2 the bureau made investi- gations, with considerable frequency, for 33 other children's organ- izations in the city, as well as for the social service departments of 22 hospitals. To provide for the temporary care of children, a Joint Shelter or receiving home is maintained, under joint support as above, but under the direct management of the bureau. The bureau has extensive files and modern case records, employs many trained workers who are ready at call to investigate cases of re- ported dependency or need, take children into temporary care, give them thorough medical and psychological examination, and arrange for them to go into the more permanent care of relatives, agencies, or institutions. All placing-out in family homes, of children handled by the bureau, is done by the Children's Aid Society of Pennsylvania. The Conference of Institutions for the Care and Training of Children, and the Round Table Conference of Colored Institu- tions, both of which were organized through the Children's Bureau and hold meetings at various times throughout the year, have done much to further co-operation in children's work. The extended statement in regard to the Children's Bureau is given because it 152 SPECIAL CHILD-CARING AGENCIES is the expression of real co-operative spirit, and the agency of a group of important organizations which have reached the "do- things-together" stage of co-operation. 3. Juvenile Aid Society of Philadelphia • A Jewish organization for the handhng of all classes of chil- dren needing aid or requiring temporary or permanent care. The principal part of its work is the aid given to children in their own families, but during the year ending May i, 19 12, the society handled 71 homeless children, of whom 13 were returned to kin or friends, 54 were put into institutions, and four were placed in private family homes. The society expended in its work during the year $10,968. 4. Wo.men's Directory of Philadelphia. The Directory, founded in 1893, is an organization for the aid of mothers and children. It deals specially with unmarried girls expecting motherhood, assists them during the waiting period, secures their admission to reputable and sanitary hospitals, takes charge of them when convalescent, cares for them and their babies until the mothers are able to work, and then obtains positions for them in good families. Many of these mothers are permitted to take their babies with them into service. The Christian influence of the Directory workers is a special feature, and is accompanied by practical instruction and sound social advice. Many of the unfortunates are reclaimed. There are three regular employes. During the year ending December 31, 191 1, the Directory handled 153 children, the majority of whom were children of unmarried mothers. Of these, 10 were returned with their mothers to kin or friends, 11 were sent to institutions, and 132 were assigned to agencies or placed in private family homes. A large part of the 132 went with their mothers where the latter entered families as domestics. The expense of the work for the year was $3,138. There are a number of other agencies in the state doing similar work, but the Women's Directory is perhaps the most important and best known, and does the largest work. No effort was made to cover this field in detail. 153 child welfare work in pennsylvania 5. Allegheny Widows' Home Association of Pittsburgh This Association was founded in 1866. Its work is done along very nearly the same lines as the modern system of widows' pensions. Rent-free cottages and tenements are provided for widows and children, most of the buildings used being owned by the association. To the home shelter is added the chance for wage- earning and, if necessary, additional help. The association pos- sesses cottages and flats valued at $50,000, which are used in this work. There are no paid agents, and the management of the work and of the above mentioned properties is by the volunteer service of members of the association. 6. Child Welfare Association of Allegheny County The headquarters of the Association are in the Juvenile Court Building at Pittsburgh. It was formed July i, 1913, by a merger of the Children's Bureau, a department of the Pittsburgh Associated Charities, and the Juvenile Court Association of Alle- gheny County. Both of these organizations had been handling some children, arranging for their care in institutions and placing them in private homes, either on board or as permanent members of families, and the merger was effected for reasons of economy and efficiency. The results of the first six months, which ended Decem- ber 31, 191 3, were remarkably encouraging. Three workers were employed, and the expense for the half-year period was $1,767. During this time 169 children were handled, of whom 10 M^ere returned to kin or friends, three sent to institutions, and 1 56 were placed in family homes, either on board or permanently. This is an excellent illustration of the spirit of the times which seeks co-operation and efficiency even when personal and organized interests must be merged into movements for the common good. It is to be hoped that other organizations will unite their forces and simplify and standardize both their methods and their work, and improve the quality of service while lessening its relative cost. 7. Society for the Care of Jewish Orphans Founded in 1906 and located at Wilkes-Barre. Like the Jewish Aid Society of Philadelphia, its main work is to provide for 154 SPECIAL CHILD-CARING AGENCIES the needs of destitute children, without removing them from their families. It has no paid agents. During the year ending October I, 191 1, the society expended in the care of children, $3,104. Only five children were taken into the society's care during the year, and all were placed in institutions. As will be seen from the foregoing, these seven special child- caring agencies play quite an important part in the child-caring work of the state. They have property valued at $52,500, nearly all belonging to one association. They employ 28 paid workers and have an annual expense account of $35,689. While the main part of the work of most of them is so related to children in families as not to be detailed, yet we find 1,602 children in direct care, of whom 443 were returned to kin and friends, 438 were sent to insti- tutions, and 72 1 were assigned to other agencies, or placed in family homes. Table 12, which is a general table giving the statistics of these agencies in fuller detail, will be found at the close of this chapter. Note.— In July, 1914, the Child Welfare Association of Allegheny County was amalgamated with the Children's Aid Society of Allegheny, County. By the terms of the merger, the methods of the association are accepted and continued, and 20 members of its board become members of the board of directors of the society; but the name and organization of the association will no longer exist. The united corporation accepts the name and constitution of the Children's Aid Society, and the execu- tive secretary of the late association is in charge of the amalgamated work. The offices of the association are abolished, and those of the society (at 303 People's Bank Building, Pittsburgh) are, at least for the present, the head- quarters of the united orgaHizations. The society under its new manage- ment is "committed to the principle that the routine functions of investi- gations, reporting on investigations, placement of children, supervision of children placed, and the general direction of field work, shall be per- formed by such paid trained workers as shall be employed by the board of directors; and further, that the scope of volunteer capacity shall be determined bv the board." 155 U -o j^t" o z: « S > a < P^Q 2 Q o ' <^ nO fO O ^ < U ^ ° 5 - """^^ u J) o 1 ro •* lo >0 £•5 O 20 ti MO £ ^^ Sin rH o — 'v- 156 CHAPTER XVI SUMMARY FOR CHILD-CARING AGENCIES THE totals in the four principal groups of child-caring agen- cies have been assembled to provide a summary of their relations and statistics. The special child-caring agencies, which are recognized and listed because of their important work, have a less extended range of activities, so that only one limited general table was made of their statistics. Therefore they are not given a place in the summary. The four groups contain an aggregate of 46 organizations. Comparatively few of them own headquarters, but the value of the various plants is §261,400. Although largely a development of recent years, they have altogether an endowment of §516,700. In plant and endowment the aggregate is §778,100, or more than three-quarters of a million. The work done is mainly in behalf of dependents, except in the humane societies, whose activities are more general. There are 1 17 paid employes and, as stated in previous chapters, the num- ber is too small in some of the groups. The division of current expense into three parts brings out some interesting comparisons. The expense for salaries ranges from 4 to 45 per cent, and for the four groups averages 26 per cent. The traveling expense ranges from nothing to 9 per cent, and for the four groups averages 6 per cent. The general expense ranges from 50 to 92 per cent, with a general average of 68 per cent. A very large portion of the last item is expended in paying the board of children either in family homes or in institutions. The total annual expense account of §295,330 shows that a large work is being done by these agencies. It is when we note the aggregate numbers of children hand- led that the real importance of these organizations appears. They began the year with 5,403 children under supervision and 262 on hand awaiting placement. During the year, 3,086 children were received. 157 CHILD WELFARE WORK IN PENNSYLVANIA This made a total of 8,75 1 in care and under supervision dur- ing the year. As several hundred children belonging to one agency were entirely omitted because of faulty statistics, the above number is probably less than the facts warrant, allowing for all duplications. It is a remarkable thing that these agencies of one state should have relations with about 9,000 children in a single year. Their activities are equally significant when the details of the disposition of these children are considered. During the year, 1,525 were returned to kin or friends and 1,134 Put into institu- tions, or otherwise disposed of, making a total of 2,659 that passed entirely from their care. There remained at the end of the year 217 on hand awaiting placement and 5,875 under supervision in family homes, hospitals, and institutions. There were 1,171 children placed in private homes, either on board or as permanent members of the family during the year. The term "direct care" implies individual handling, arrange- ment of location, or some definite provision for children. Super- vision in many cases involves only correspondence and visitation without removal or relocation. All good agencies give careful supervision to their located wards. Most of this work is done by field agents who, to save expense, make their visits in connection with trips in behalf of new wards, either on their reception or their placement in homes or institutions. Therefore, many agencies make no specific record of the cost of supervision, and all of it is charged in with other expenses. The per capita cost of agency work is therefore necessarily, but somewhat unjustly, based on the number in direct care. With this explanation in mind, it is of interest to note that these four groups of agencies during the year of the study recorded 3,348 children in direct care. The total expense of the work was ^295,330, and ignoring the cost of supervision, because inextricably mixed with the work of direct care, we find these agencies ex- pended an average of ^88 for every child handled. Any who desire to do so may make more detailed study of the agencies and a closer comparison of the relative work of the diff'erent groups by carefully examining Table 13, which immedi- ately follows this chapter. 158 3 o E H ^ 3 E rt-S l|l -" rt g.y " PJ2 c £S«H o H >. tl 4) a & ■" a o c ■o i; o .'^ E W a > d, M .C •5 Z. 3 H-) O 1" ^ O u .K CU > W °c« s-^ a M 3 » So •0=0 K m 3S ^ S s ^ CL, •kJ a 3 ■5 9 < o s c V O u D. V OJ p- > 1) 1 a E g 1 i d H < ^ u s fe p^ ;^ < to •0 1 5i "3E & ^^S ^ ih ■51? jj u n Ic-^ X k! W aliir 2 "S m 'i^ — H uC XI 6 rt a H Ov ■ •* >o Oi t^ r^ O Q s q s>?=3 o£j£^£S-3 < < 160 •5U 2 bJ) ^1 I n o l^g^^o a 2 00 rooo •* J3 . . o 13 >. >> c Ills oddx 161 2"' E'> rt'S 2 c Mo " H S£^^ ^r! ^x P o< ^.V, ^^ M^ PART FOUR PRIVATE INSTITUTIONS FOR DEPENDENTS It is not necessary to discuss the place of the society and the place of the institution in child-helping service, or to encourage criticism which serves no good purpose. It is enough to say that there is a place and a work for every society and every institution engaged in work with and for children, not afraid of public official scrutiny concerning resources, methods and accomplishments. For others than these there ought to be no place in any state. — C. E. Faulkner. By the 'Orphan asylum system' is meant the bringing up of children from childhood to young manhood and womanhood, in an asylum or chil- dren's home. For many years this was regarded as the most desirable system of dealing with neglected children. If a child was left orphaned, abandoned or homeless the idea prevailed that a substitute must be pro- vided for the home, and it was believed by many that the substitute could be made better than the real article. Many orphan asylums still cling to the ancient policy of bringing up children to manhood and womanhood, and to ancient methods of building and administration; but a very large number have broken away from their ancient traditions, and have ceased to bring up children. They have either entered actively into the placing of children in family homes, or they have become temporary refuges for half-orphans and other children needing tem- porary care. There still survive orphan asylums where children are kept in uniform, with shaved heads; where they do not have individual clothing, but have clothing distributed to them promiscuously from week to week; where lice and bedbugs prevail; where food is meager and of inferior quality; where good and willing girls are kept scrubbing floors month after month because they do not complain; where sleeping rooms are unsanitary; where thin straw beds let the tender bodies down upon hard wooden slats; where cuffs and abuse are more freely distributed than kind words. But on the other hand there are children's homes and orphan asylums where tenderness and love prevail; where mirth and jollity are contagious; where weary heads find a pillow on gentle bosoms; where generous diet is prescribed by medical advisers and served with liberal hands; where foster- homes are constantly sought as a better haven than even the good and home- like shelter of such an institution. — Hastings H. Hart. CHAPTER XVII PRIVATE INSTITUTIONS FOR DEPENDENTS WITH this division of the private organizations, we reach the main body, in so far as property invested and num- bers of children in care are concerned. There are 153 orphanages and homes doing the usual work implied by the titles. There are also 22 institutions for the combined care of adults and children, most of them doing a work similar to that of the Florence Crittenton Homes, seven of which are here listed. These make a total of 175 institutions of various classes under private manage- ment, engaged in the more or less permanent care of children, nearly all of whom are classed as dependents. In this study attention is everywhere given to the type of institution under observation. Owing to the lack of uniformity in the ideas and declarations of social workers on this point, it was necessary at the outset to settle the principles and definitions re- lating to type for the guidance of the visiting agents. As a general basis the following was accepted: "The 'cottage' type of institution is indicated by limited groups of children, in small buildings, and by care and spirit in imitation of ordinary home life. The 'congregate' type is indicated generally by large buildings, and the care of children en masse, with little individual treatment." For the purpose of this study the detailed definitions given below were prepared and made the basis of decisions in regard to type. In over 90 per cent of the institutions the type was easily settled by them, the remainder being either compounds of the two types or institutions which could be classified "cottage" in every- thing but the larger numbers provided for in the buildings. Even if considered as only tentative and suggestive, their successful use, with scarcely an objection from any source, in a campaign cover- ing about 250 institutions of many varieties and kinds, is a strong item in their favor. 165 CHILD WELFARE WORK IN PENNSYLVANIA I. COTTAGE INSTITUTIONS Class A. An institution composed of one or more cottages, each containing no more children than can be given personal and individual care permeated with a real family spirit, the number not to exceed 30 in any one cottage, and in which each cottage is a complete domestic unit, with its own kitchen and dining room. Class B, An institution composed of several cottages, each con- taining no more children than can be given personal and individual care permeated with a real family spirit, the number not to exceed 50 in any one cottage, where the cooking is done in a general kitchen, and the meals served either in cottage dining rooms or in a general congre- gate dinmg room. II. CONGREGATE INSTITUTIONS Class A. An institution in which children are gathered in one or more large buildings, the minimum average in care exceeding 50 children, and in which the care is en masse rather than individual. Class B. An institution having usually only one main building, the average in care not exceeding 50 children, the physical equipment, spirit, and methods adapted to mass care, and the treatment of the chil- dren collective rather than individual. In other matters a definite basis was arranged in order to secure uniformity in the study. In property values, the present value of the property for the purposes of the institution was sought, allowing a reasonable amount for depreciation of the buildings by time and use. The capacity of an institution was set at the number of children for whom sleeping accommodations were provided. With reference to placing-out matters, it was necessary to be very clear and positive, as the officers of some of the institu- tions are very vague in their ideas in regard to such work. It was decided that "an institution is said to do 'placing-out work' when it selects homes, or secures positions including homes, for any number of its minor wards, and by authority of its guardian- ship officially arranges for their location in such homes, either as paying boarders, free inmates, or paid workers." It was also decided that no children are to be counted "placed," either on pay board or in free homes, who remain in these homes a shorter period than a week. To place with "kin" is to place with relatives of the first and second degrees — parents, 166 PRIVATE INSTITUTIONS FOR DEPENDENTS grandparents, brothers, or sisters. To "place out in families" is to place dependent or delinquent children in the families of others than relatives within the second degree, for the purpose of provid- ing homes for such children. In addition to the schedule the study called for a written "story" covering the general characteristics of the institution. These stories included as many as possible of the following items: Description of location and building; interior conditions; fire- escapes; size and ventilation of dormitories; kinds of beds and bedding; sort of dining room, seats, tables, dishes, and napery; apparent amount and quality of food; cleanliness and sanitation; clothing of children; spirit manifested, whether kindly or rigorous, homelike or institutional; and impression as to efforts to overcome institutionalism and develop initiative in the children. Frequently the stories brought out very important facts that otherwise would not have been recorded. The groups treated in Part Two, containing the institutions for special classes, were easily tabulated together, each being nicely accommodated on a single page; but because of the number of orphanages and children's homes, these institutions were neces- sarily differently arranged. In apportioning the 175 institutions for dependents for tabulation it was found convenient to divide them into six groups, and as stated in the chapter on the statis- tical tables, four consecutive sections are necessary for the 40 points figured for each group. The cottage institutions are first divided into two sections; the nonsectarian and those under some church management. Of the nonsectarian cottage institutions, there are 24, found in Table 14; and of the general church cottage, there are 19, found in Table 15. The congregate institutions are similarly divided. First, the nonsectarian congregate institutions, 53 in number, constitute Table 16. There are 27 Catholic congregate institutions of this class, and they are grouped together in the four sections of Table 17. There are 30 institutions under the management of other religious denominations, and these are grouped together in the four sections of Table 18. These make a total of 43 cottage insti- tutions and 1 10 congregate institutions in this class. 167 CHILD WELFARE WORK IN PENNSYLVANIA The 22 institutions for the combined care of adults and chil- dren form a group by themselves. The general form of the four sections of the table is retained, and a few points added to bring out their combined capacity, while confining the main statistics of inmates to those of children. These institutions are recorded in Table 19. Putting the matter into tabular form, the six sets of tables are outlined as indicated below: TABLE H.— INSTITUTIONS FOR DEPENDENTS BY TYPE AND MANAGEMENT Table Type and management Cottage Institutions 14 Nonsectarian orphanages and homes 15 General church orphanages and homes Total Congregate Institutions 16 Nonsectarian orphanages and homes 17 Catholic orphanages and homes 18 General church orphanages and homes Total Institutions for combined care of adults and children (cottage, 13; congregate, 9) Grand total It will be understood that the basis upon which these divi- sions are made is simply convenience in arranging the tables, and has absolutely nothing to do with the quality or importance of the institutions so listed. It may also be stated that it was thought best not to divide into tables according to location, but simply on the basis of the type and function of the institution, whose place in the table is, however, determined alphabetically by its location. CHAPTER XVI 11 NONSECTARIAN ORPHANAGES AND HOMES Cottage Type THE private orphanages and children's homes have usually been established to supply an apparent local demand, or to accomplish the seemingly needed work of some religious body. In many cases there has been insufficient study of the local- ity, and inadequate financial basis for the undertaking. The result has been an unwarranted duplication of institutions in some places, many of which have continued to exist without much enlargement, and with a management so conservative as to be far behind the demands of the present age. In some cases dependents, defectives, and delinquents are still found in the same building, inadequately provided for, according to modern methods; and crowded into small and poorly equipped institutions. The nonsectarian orphanages and children's homes of the cottage type include 24 institutions, located in 1 5 counties of the state. They vary greatly in capacity; from eight in the East- brook Home for Destitute Negro Children, in Lawrence County, to 1 50 in Christ's Home for Homeless and Destitute Children, at Warminster, Bucks County. The total capacity of the 24 insti- tutions is 1,210. In the matter of management and the executive ability of officers there is also great variation, not always in favor of the larger and richer institutions. It is fair to say that a larger pro- portion of the "cottage" than of the "congregate" institutions have been touched by the advanced ideas of modern social move- ments. It is also true that some institutions formerly "congre- gate" have become "cottage" under these same ideas and impulses. Owing to the number of institutions in this and the other groups of orphanages and homes, detailed description of each is impracticable. The statistical tables have been made with special reference to bringing out details on all important matters, and may 169 CHILD V/ELFARE WORK IN PENNSYLVANIA be referred to in regard to finance, workers and wards, and many of their varied relations. A selected few of the institutions, how- ever, are given special mention, in order that the reader may the more readily catch some of the salient points elaborated in the tables. The Pruner Home for Friendless Children, at Bellefonte, Center County, was established in 1908 to care for "full orphan" children. It occupies a small two-story and attic frame dwelling, poorly adapted to institutional work, and possesses an endowment of $60,000. With a capacity of 15, the average in care for the year ending July i, 1912, was only four children. As the expenses of maintenance were $4,000, the per capita cost was $ i ,000. There were four regular employes, or one for each child of the average in care. The Hershey Industrial School was founded in 1910 and is located on a farm of over 500 acres at Hershey, in Dauphin County, the farm serving as a home, a base of instruction, and an endow- ment. The value of the property is $203,300; the capacity is 40. The beneficiaries must be white boys, and when received must be between four and eight years of age. There are 10 regular em- ployes, or one for each four boys in care. The expense for salaries for the year ending July 31, 191 3, was $8,075, or an average of $202 per capita; the entire expense for maintenance was $20,332, or a total per capita of $508. The intention is to erect more build- ings and increase the capacity, so as to reduce the per capita cost, and afford agricultural training to a larger number of dependent boys. As stated in the chapter on the General Child-Caring Agen- cies, and in that on the County Children's Aid Societies of West- ern Pennsylvania, the small but excellent institution at Indiana, Indiana County, called the Girls' Industrial School, is the prop- erty and under the management of the Children's Aid Society of Western Pennsylvania. It is used and supported jointly by the 23 members of the federation. The capacity of the plant is 15 girls and it is valued at $17,000. There are two workers and an average of 12 girls in care. The Thaddeus Stevens Industrial School was founded in 1909 as a memorial, and the property near Lancaster, in Lancaster 170 \iL-\v of the School .Manu:il I rainin-^ Shop HEKSiibY Industkial School, Hershey. (See p. 170) ^^^^^^ mi ^ .1:'.^^.^ ^^-^ mii^lm^ "T 'if«MflSiiH-iti^iaaij^j| Main Ikuldirii iifl ^^- ^Sh fiTiin ™W||n mm^ \ ^ ^ Cottages for Housing Students Thaddeus Stevens Industrial School, Lancaster. (See p. 170) NONSECTARIAN ORPHANAGES AND HOMES County, is valued at S300.000. A board of managers has entire control of the plant and policy. Dependent boys sixteen to eighteen years of age are received and are trained in agriculture and the trades. The capacity is 88, and the average in care 55. There are 18 regular employes, or one for every three boys. The expense for salaries for the year ending May 31, 191 2, was ^12,000, or S218 per capita; the entire maintenance expense was $25,000, or a per capita cost of $455. The Seybert Institution for Poor Boys and Girls was founded in 1884 and does a varied work of child-helping in Philadelphia and Eastern Pennsylvania. In conjunction with the Children's Aid Society of Pennsylvania and the Philadelphia Society to Protect Children from Cruelty, it supports and manages the Chil- dren's Bureau and the Joint Shelter for Children. For the year ending December 31, 191 1, it provided toward the support of the bureau S6,6o2, and toward the support of the shelter, 87,500. A large part of its work consists of a high class home and training school for the general development of children not suited for immediate placement in family homes or not eligible for care in other institutions. This plant, called the Children's Village, is located at Meadowbrook, a suburb of Philadelphia, on a 320-acre tract of land, which some years ago cost 895,000, but now has a sale value of more than $1,000 per acre. On this tract are six cottages for white children and two for colored children, with an assembly room, print shop, store, club room, school house, superin- tendent's and employes' residences, barns, dairy and milk houses, and other outbuildings, all of them new or remodeled, modern in equipment. The actual cost of the buildings and improvements to date is $266,300; adding the cost of the land, $95,000, the present valua- tion of the Children's Village property for institution purposes is $361 ,300. Its aggregate capacity is 1 36, giving a per capita plant valuation (on the basis of cost) of $2,657. The average number of children in care during 191 1 was 80. There were 39 employes, or one for each two children in care. The cost of salaries was $ 1 8,837, an average of $235 per capita; and the entire cost of maintenance was $46,676, or an average of $583 per capita. The above net expense related to the care of children in the Village and was 171 CHILD WELFARE WORK IN PENNSYLVANIA obtained by deducting $102,061, expended for permanent improve- ments, and $14,102, devoted to the Children's Bureau and the Joint Shelter, from the entire annual expense of the institution. The J. Edgar Thomson School for Girls founded in 1882 for the benefit of the daughters of Pennsylvania Railroad employes killed in service, and who must be white girls between four and sixteen years of age, is a peculiarly interesting institution. It is said that thirty years after its establishment the institution is practically unknown even to the army of employes it is intended to help. Its plant is rented, and it uses a rented property for a summer colony. The endowment is valued at $1,826,000. The only capacity is that of the present rented building and the per capita plant valuation refers only to equipment. The average in care for the year ending December 31, 1 9 11 , was 24 ; the expense for salaries was $3,481, or $145 per capita; the total expense for main- tenance was $12,872, or $536 per capita. There were 1 1 regular employes, or one for each 2.2 children of the average in care. As at 4 per cent this endowment will produce over $72,000 per annum, of which under present conditions only one-sixth is being used, some way should be found to better utilize this great gift for the welfare of unfortunate children. One institution of this group, the Pittsburgh Home for - Babies, claims to have solved the problem of the institutional care of bottle-fed infants. The managers declare that by a system of trained nurses, careful feeding, and proper segregation, they have done away with excessive mortality and are institutionally rearing strong and healthy babies. Their records seem to substantiate their claim in regard to the avoidance of mortality, as no deaths have occurred in the past two years. They also show great im- provement over former conditions in this institution, and the advance has been accomplished by the use of modern and scientific methods. The Home expends $112 per capita of the average number in care for salaries, and $260 per capita for total mainte- nance. It employs 12 workers for an average of 23 babies, or a nurse for each two of them. This may account in part for their success. The section on comparative statistics shows that the average expense per capita for salaries in this group is $95, and because of 172 NONSECTARIAN ORPHANAGES AND HOiMES the exceedingly high per capita expense of some of the institutions, the average for total maintenance is $317. It should be noted that these figures are based not on capacity but on actual average number in care. It should also be remembered that in new insti- tutions the expense per capita is necessarily much higher than in those of similar type which are well established. In his book on Cottage and Congregate Institutions, Dr. Hastings H. Hart has included a special study of 10 cottage insti- tutions.* He found in these the minimum cost of plant per capita was $869, the maximum, ^1,716, and the general average was $1,181. The average value of plant per capita in this Pennsylvania group was $1,542. The aggregate capacity of the group is 1,210, but the average on hand only 942; indicating that these institutions at least are not overcrowded, as an average of 268 beds are unoccupied. There are 241 regular employes caring for the average of 942 children, or less than four children per worker. As will be seen later, this number of children per employe is much lower than the average for the whole class of private institutions, which runs above six children per worker. Many other interesting facts and comparisons can be drawn from the four tables which follow this purposely abbreviated text. And from these general tables and certain special tables to be incor- porated in later chapters of the text, it is hoped that all essentials of a successful study will be developed. *Hart, Hastings H.: Cottage and Congregate Institutions. Russell Sage Foundation Publication, New York, Charities Publication Committee, 19 10. 173 OOOO OOOOi O O O O f, c — ■ - ■ ooooooooo • o o o o o o • o o o o o o q r- q o_ 1/3 O ro N in d 4o OOOOOOOO00TJOT30O OOOOO OOOOOOOOOOojOuOO OOOOO ro q q in q q q r^ q q -^ q ■" q q q q q ^ q rn t^ o" in M ro o" " ro M S 00 S o" 10 \d ui rO m O 0"0M mhO p<"pJ'~^'^ '^" "^ O ro O O M O O )-o o Ttm-*© o o >0»0\C^OlO\0^0>O^O^O^OlO^^O^ OiOvO^C o t^ a o 00 0.00 Tt N 00 o M-oo 1 :-l^ :/2 g 0) 4) m^H o O C.2 1 • c i-iriS' M N ro ■* i/>vOl>00OiO 'op J" a' ICQ § C = - E E S.2 000^ ; 00 „.i! Ill I ^>^ >i 174 c k. 1 §il "S 1 i Ss C.s 2 II < y u g §• &<— « &:° 1 c o 3 ss O 1 E < .§ (i.'| 1 cJ a w c c § n E E < o ^ » c a (S-a X rt CI u 1 s e < „ o H £ c •a c a g o zi 5 o moo fo ooor-iAOinONO foooo Tt O, m O ON inO >««> OOt't Ov~JCiOi ion o « ooo ■ OiMvO n N « 'i-O roioNf^O O ro M o-o o o o o O Ov o -\0 '^ao f^^ 1^00 0» ^ ) 00 i/^O <^oO ■^o 1 foo fo f o 00 >-• t~ t~ t^ t~ o ^'iir^S^C? =0 fJroO-O t~00 kOoO^ IN CO CJ "_ r^ N 8800 G^ a^)i-'a: .aoaaa . ssc.™ -=---=_: -2 o. c. c 5 "2 ft ftlS-; < U « ^^^c3 ^^2^c5^2Z^c3zZ^^^ ^^s:ZZ S oooo•*T^o>o-0't„■■ fafefefab dddd ddddddddddddddd ag. o._. a QDQQ DDQQQQPQQQQQQPQ QPQ^Q 0'2 J 1= c-m S 2(/] '-2'n o J o SK-Su „ S c P. ^ (J^U >H o „ (J £! <^ ; >00 Ov O M N ro ■* "50 ^^s O " 176 CJ a V u t^OOOMOicoOOvOTfiflO-tOoOO o.s c o o _^-S! inootooinMr^i«owi^>-ia.ov-iOwr- oo-^oooc •wK o o 3-affiK COM S'S C" .a ..2Q — = C'^'S . -— — ^ - u. O O 8— 3 ^S 3 5 5 t.11 S o 177 Idren's I William Trainin of Lycoi o Protect ^^Si'-i a = S.2 Uo~ o >. Ittsburgh U Ittsburgh H rotestant H instkr: CI dren en: Warrer AMSON SCH amsport: C oldy Home York Socu ^0.^^ ii^'i m ^ ^ .O r-M o. O M N rot 3 CJ- oBteM (3 " to > O. 1) ™ rt CHAPTER XIX GENERAL CHURCH ORPHANAGES AND HOMES— Cottage Type THERE are lo denominations and 19 institutions repre- sented in this group. The term "general church" is used because of the wide variety of reHgious interests included, and as being broader than "sectarian" or "denomi- national." These institutions, being clearly sectarian, receive no public funds; although some institutions in other groups, equally under church control, are favored with appropriations by the public authorities. Most of them are small both in capacity and means, but at least four are especially strong, well equipped, and liberally financed institutions. The Baptist church is represented by two orphanages, one in Philadelphia, a very fine institution, and the other at West Newton, which is new and as yet weak and small. The Lutheran church maintains one cottage institution in Pittsburgh, besides several congregate institutions in other locations within the state. The Hebrews have three institutions of this type, one in Phil- adelphia, one in Erie, and one in Pittsburgh. The Mennonites are represented by one institution, located at Center Valley, Le- high County. The Methodist Episcopal church has three cottage orphanages, one in Philadelphia and two in Pittsburgh. The Protestant Episcopal church has two institutions of this type, both in Philadelphia. The Presbyterian church has two cottage insti- tutions in Philadelphia, one for babies and one for older children. The Reformed church maintains two homes, one at Littlestown, in Adams County, and one at Greenville, in Mercer County. The Roman Catholics have but two cottage institutions in the state, one at Harbour Creek and one at Philadelphia; although as shown later they possess 27 of the congregate type, as well as several for delinquents and some for the combined care of adults and children. 178 A Familv of CArh Bapmst Ori'iianage, I^hiiadelphia. (See p. 179) Main Building and One Cottage General Dining Room Methodist Episcopal Orphanage, Phiiladeiphia. (See p. 179) GENERAL CHURCH ORPHANAGES AND HOMES The United Brethren have one institution, located at Quincy, in FrankHn County. The aggregate value of the plants included in this group of cottage institutions under church control is $1,538,000; the aggre- gate capacity is 1,063 children; the average value of the plant per capita is $1,447; the aggregate of endowment is $2,084,300, of which sum two institutions own $1,500,000. As in the nonsectarian group, a few of these general church cottage institutions are given special mention to call attention to some principal points in the statistical tables. These are selected because they represent the best modern type of cottage orphanage. It happens that all but one are located in Philadelphia. The Baptist Orphanage of Philadelphia was founded in 1879. It has an excellent cottage plant in the western part of the city, valued at $310,000, with an endowment of $137,000. The capacity of the institution is 125, making the per capita cost of the plant $2,480. The average in care for the year ending March 31, 1912, was 112; the expense for salaries was $3,655, or $33 per capita; the whole expense for maintenance was $15,660, or $140 per capita. The orphanage had 18 regular employes, or one for each 6.2 children of the average number in care. The Methodist Episcopal Orphanage of Philadelphia was founded in 1879. It is a high class cottage institution with a plant valued at $520,000, including the splendid site of 22 acres adjoin- ing Fairmont Park, and $1,200,000 in endowment. The capacity is 240, making a per capita plant valuation of $2, 1 67. The average in care for the year ending March i, 191 2, was 143; the expense for salaries was $7,807, or $55 per capita; the total expense for maintenance was $34,166, or $239 per capita. There were 23 regular employes, or one for each 6.2 children of the average num- ber in care. The Presbyterian Orphanage of Pennsylvania, at Philadel- phia, was founded in 1877. It has a fine cottage plant valued at $180,000, and an endowment of $300,000. The capacity is 143, making the per capita cost of the plant $1,259. The average in care for the year ending January 15, 1912, was 129; the expense for salaries was $7,831, or $61 per capita; the entire expense for maintenance was $32,928, or $255 per capita. The institution 179 CHILD WELFARE WORK IN PENNSYLVANIA had 2 1 regular employes, or one for every 6.1 children of the aver- age number in care. it will be noted that in most of the items above given these three institutions are very close together. In fact, together they constitute almost a standard for the denominational cottage or- phanage. All are strong, well-equipped, modern institutions, largely imbued with the family spirit, and giving to their wards the best type of institutional care. They are perhaps a little slow to send out their children to the normal conditions and develop- ment of family homes, but the high quality of care and training provided makes this objection less important than it is for insti- tutions of lower grade. The St. Paul's Orphans' Home, of the Pittsburgh Synod of the Reformed Church, is another typical institution. It began its work in 1867, at Butler, Pennsylvania, where the Home con- tinued until 1909. Then having felt the trend of the modern movement toward the "cottage" plan, it removed to its present location, near Greenville, Mercer County, and on a 300-acre farm established an excellent modern plant. The main building con- tains besides the administrative offices and some officers' quarters, accommodations for 20 children. There are two three-story brick cottages, with a capacity of 30 children each, and a farm house with beds for eight children. The total capacity is thus 88. The plant is valued at $\ 10,000, and two more cottages are to be erected in the near future. The present endowment is ^26,000. The salary expense for the year ending May 31, 191 2, was $3,208, or $38 per capita; the total expense for maintenance was $16,041, or an average per capita of $191. The Home has 13 workers, one for each 6.5 of the average in care. The fact that these four institutions have been so fully no- ticed must not be taken as implying that no others in the group are equally worthy. But for space limitations, at least two or three more would have special mention. The institutions of this group have a total capacity of 1,063, with an average of 810 in care, or only about 76 per cent of the capacity. All but one of the 19 institutions in this group care for dependents only. The one exception, the Catholic Boys' Home, at Harbour Creek, admits also delinquents. Two of them 180 GENERAL CHURCH ORPHANAGES AND HOMES receive girls only, three boys only, and the remainder care for chil- dren of both sexes. Eighteen receive white children only, — two of these confine their work to Jewish children, — and one has no color restrictions. For other matters of interest the four sections of Table 15, which immediately follow this chapter, will warrant careful stud\-. i8i w Dm > o < S u 1 m W Q^ CD w O < < cu Pi o u Pi D U 2 o H I c o ^ 1) c I o o • o o on aov CN O^ Ov O* 0\ Ot 0\ 0» 0\ 0\ 0^ 0» 0> Oi 0» 0» 04 Oi Oi w M w o O " t^ " o' O "to mm" mw" Om w roro ro rofOro N Mro r*5M fO f*^ (^rO ^ti S3 K^d a Sea ^d S^rto. g.Si S. So S c^ OiOO OO 0» CO O 0>CO 0» jlld :o25" w 5 0-5 z o 2 Ml i a.2 o o Sys oS.s woo -'*' Oh wo-cu u 182 OhJ fficM a ir»o t~oo 1 E c < ^ Public funds rec'd. (No public funds are re- ceived by these insti- tutions) g E < E i < 1 1 ^f < • si ■3 (2 1 1 ! 1 NO O O 10 fO O ■«foC o iTt POM o > > >>> >>> >> uo wet, oj ojiDcu ^ OJOJO; ojo o;^. oii roo •*«) !§ sss s:s ss ss -Sfc a D. a D. a QQ Q QQQ Q QQP QQ Q a a a a a a . QQ QQ QQ Q •s o >- S? z n « .2 > ^ < _• >« t^ ,, EaSgaSos HUB) Baptist Baptist ANGELIC . Peter's He th Orpha Grace A usky Orp Mb s-: Menn lETHODIS Methodi radley C th. 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S o «j rt 8 itJ m IJ" " S '^ e ■■ ^ -.__ „c c ac.2 ^ ■■s°ia--g-=g-sg2; ' 2 rt o u 00 197 CHAPTER XXI CATHOLIC ORPHANAGES AND HOMES Congregate Type THE 27 institutions in this group are located in 1 1 counties of the state, and in 13 different towns and cities. Five are in Pittsburgh and nine are in Philadelphia. The oldest of them, St. John's Orphan Asylum for boys, in Philadel- phia, was founded in 1797, and its counterpart, St. Joseph's Orphan Asylum for girls, in 1798. The Paradise Protectory at Abbotts- town, Adams County, was established in 191 1. They have an aggregate plant valuation of $4,332, 500 and an endowment of $400,000, the latter all held by three institutions. The combined capacity is 6,043, or a per capita plant cost of $717. Fourteen of the 27 institutions in this group received state aid, the aggregate amount being $47,376. This was, however, only 9 per cent of the group's current income and expense. One of these institutions cares for both dependent and delin- quent children, and the other 26 care for dependents only. One receives only colored or Indian children, 11 take only white chil- dren, and the remainder have no race or color restrictions. Eight of the 27 handle boys only, six confine their work to girls, and the other 14 care for both sexes. Owing to the fact that most of the workers in these institu- tions are Sisters and Brothers of the various Catholic orders, and receive no cash salaries, or at least merely nominal compensation, the amounts indicated for this kind of expense are very small. The aggregate for the entirfe group is only $69,600, or $13 per capita of the average number of children in care. The number of regular workers is given as 506, or one for each 1 1 .4 of the average number of children in care; which is nearly double the number of children per worker as compared with the institutions of other groups. Of the 3,688 children received during the year studied, which for many of them was the year ending May 31, 1912, about 72 per 198 St. Paul's Oki'han Asyi.lm, Idlewood, (See p. i()()) ■HMMMjMHMHMHBaBI^ ^ .M s ^^^^H tor- 1 s ^^B ■1 If ^ m ^^^^^¥f''-' — J^M^B mam^mm ■ W^ ■' ' CATHOLIC ORPHANAGES AND HOMES cent were received from relatives and friends of the ciiildren, and the remaining 28 per cent were received from courts and other agencies. The average in care was 5,772, or 96 per cent of the aggregate capacity. Several of the orphanages in this group are among the largest and most important child-caring institutions in the state. Mention should be made of St. Paul's Orphan Asylum, at Idle- wood, near Pittsburgh, which has a plant valued at $810,000 and an average of 1,144 children in care. The Holy Family Polish Orphan Asylum at Pittsburgh has property valued at $245,000 and cares for an average of 220 children. The Roselia Foundling Asylum, at Pittsburgh, values its plant at $230,000 and has an average of 186 in care, all babies and very young children, con- fessedly the hardest class to care for successfully in an institution. At Philadelphia are the three St. Vincent's homes, all impor- tant institutions with over half a century of history: St. Vincent's Orphan Asylum, at Tacony, founded in 1855, with a property valued at $100,000, caring for children of both sexes, and an average of 270 in care; St. Vincent's Home and Maternity, founded in 1858, with a property valued at $150,000, caring for babies and children up to four years, and an average of 336 in care; and St. Vincent's Home, founded in 1858, with a property valued at $350,- 000, caring for children of both sexes, and an average of 450 in care. And there are more Catholic institutions almost equally important and deserving of mention. It is greatly to be regretted that in many of the institutions of this group, as well as many others throughout the state, normal and defective children are mingled together, to the great detriment of all. The normal are depressed and injured by close association with the defective, and the defective evidently can not have the special care and training required. Very many of the plants occupied by the institutions of this group are old and lack the sanitary equipment and modern con- veniences found in those later erected. This fact, coupled with the inadequate number of workers, naturally leads to the inference that the standards of care for children in such institutions can not be in accord with modern ideas. Many of the institutions are in parts overcrowded, although 199 CHILD WELFARE WORK IN PENNSYLVANIA in other parts there may be room to spare. The dormitories are frequently badly ventilated; the dining rooms dingy and unat- tractive, the dishes and cutlery crude and coarse, the tables some- times bare boards, sometimes covered with oilcloth, seldom dressed with neat table cloths and napkins. The few exceptions, where a better type of buildings, furnishings, and service are found, only emphasize the many which still hold to the ways which seemed good enough half a century ago. There is a valid reason for the slow advance in methods and facilities in many of these institutions. It is the great pressure constantly brought to bear upon them by both church leaders and public officials to receive and care for large numbers of children. All of their available time, efforts, and finances are engaged to carry on the increasing work of child-care, and while toiling so diligently at practical every-day duties, some of their strongest executives may be excused for not keeping up with modern developments in institutional buildings and scientific methods. Even if they recognize the advantages of change from the old ways to the new, to adopt the new is often impracticable. The great investment in old-fashioned plants useless and valueless for any other purpose, the impossibility of raising funds to replace or even modernize them, and the necessity of providing for the never- ending army of needy children marching to their doors, seem to forbid any great changes in either buildings or methods. Under such circumstances indiscriminate criticism is not justified. Most of the executives in charge of these institutions, and leading Catholic laymen connected with their boards of manage- ment, recognize the validity of a call to all child-caring institutions for better work and more advanced methods. And as previously indicated, wherever to them it seems possible, the newer plans are being adopted, the buildings modernized, and the methods of care improved. One great reason for these progressive tendencies is the increased association of Catholic and non-Catholic social workers. The presence at and participation in the active work of the National Conferences of Charities and Correction of such Catholic social workers as Bishop Spaulding of Peoria, Illinois, Father Francis H. Gavisk of Indianapolis, Thomas M. Mulry and George B. Robin- 200 CATHOLIC ORPHANAGES AND HOMES son of New ^'ork, Brother Barnabas of Lincolndale. and David H. Tilly of Boston, have done much to break down the old walls of exclusion and enable Catholics and non-Catholics to learn from each other. Increased association and the mutual imparting of experiences will enable both to accomplish many things which now appear impossible. Because of space limitations, the reader is referred to the four sections of Table 17 for many interesting details in regard to this important group of institutions. 2 4) O -v X ^ Q 2 < en O < 12; < O u H; K r^OOr-ON'*OOt^f^C0Of0in>-i rc WOO Ov"1 O i/>vO MvO O ^^•a c3l- >. i«0r»500>*-00 WO OOi/)00OO00>flNOO0rci/)0 S >^ u .- C,w„Mr<c>ao>OM>o>aoao>ovo.o>o>ao.ac>2o.o>aoNO.o>o. .y c .2-2 MMM«„„««««««««M«MMMO"0"10WM« M M lO^O O in Oi r~ I q o_ o_ o_ q q q o_ q q q d ui o" o o o d oo" o d f«5 ooooooooo _ .ooooooooo q q q q q q q q q q q I pf o d d lii d d o' d d oo" d d ro ~v V V " •• V - CC OOOQOOO t^OO I "^ O w lis ■ m rt°^.S J3 O , o o Vta . o >,a o "2 . _ >•? c < to : ao • • O ^ D g , g 5J j; ..fe a aj3 j c c c :K^,S.£,S;;i2 5(2i J- ly^o t^co Oi O M I 202 S w B =^ a, pJ w > 1->«vO f~00 Oi O M N r-) Tt mo t^ 1 o Ug_a _g c 1 u.s 0) ^ > < ■q ' ft! 5i| o tS - ^ C Q, •o Sg ^ S- a, <= ■s c 3 ■g 3 1 g a. < o >> 3 ii.z: "^S s 1 ■1 1 1 E a u rt e S.li ^ ^^ £ s "{3 3 C C < 3 o H E c •o n g g 8 ►J 00 •* ~5 o t~ O 1- O-O O fO O r~ > O i- " NO Oi "S lO ■ f" o o ■ 00 o 00 o O de t^ ■J E2 51 ■2 go'" 2-^ Oi fO " O O i« o Tt • • O ^/^ OiOO r* • Oi • 0» ■ '^f ( ro • ■OmOOO -O -O -I^O lO I^^W OhO loo t^ Ot "O ' aooo o, oi o m-o o o. l:^ T pj r; M_ a-0_ r; Ooo O u "^ a dio 00 do d >o\d r^o O rO " O O O V . .< lis ■1^= > >> O. I- s e5P^|>|s<-"3-: ..S cg.S » S-i^"'' a -• ca _ S 2 2^ a, « t« > ) 0.0 203 •SI c g SB oo oofeogoj: . oji c V a a . .of, oooS .fco OO OOloO'no'rt'oOrtbOM bCbo'o'o O'^OOOrn'oy^O ZZ 22wZcuZU>ZU<(«<<>>Za,Z2;ZK>wZ fcQ. 22 § g2 g § §2222 g g g2 §2 g2 g g g g2 ■■^H •5)-Ttr-'*-0 TfOO I Sm Tf n « ^n OOvO o ■ (1, § (I, Ci, [I, . _§ [i, fe fe (I, fa (I. b fcfe d 0.5,5 dddddddg ddddddddddddddddd qpT PQQQPPQ^QQQQQPOQQQQDQQQQQ &2 'go: "■" no t 3 3 ao o tt. ;KffiO >.>■< 11.: r^< :5 l:-Sl'^c^^5|0-"-r>:-^5 § " .:2,=1n-."^ j= c' ; a D. ?J ?.; 4; . i J 5 S °.o o'> 3 M S C ifi 2 ,-; S ^" . 7; " K I c^ ^ T^lOsO t^OO Oi O I r<5 -^ifl^O >~00 O O I 204 dj c u kl ■o > 2 >• D3"o Us 111 E.S-a Ti-oNOO'ri-iooot^oowOfcwooiwooONor^NO !00 -tt-ooo Ttr O w O Oi ■ >c O ' >I^P0i^O OnO ^roi^sO r^X ) «>vO >n ^ ro fO'O ►-* "^O 00 • O O • O C*0 lo n M ^ 1 O " ■* -00 l~- OvO I MOO l/)00vO lOTt ^1 1-M i^ ^oc HOC r~inOir)r^r<:ot~ro aoo fO i 1 C T»0 O O O ro " ( Ti-Vil/^l/^O WOOOC O O M O »-t IAN li^vOOOO I^PCsO N ^'-' >A^ lO M M -3- 1«5 c c a a 2 2 K cs c a! a a: •< <->j'jsa:::, <^^ C M-S oS Willis cyj .t/3 ..E S^ b ^ j: 5 o ^ ^ gaS ^ .-^ c2 o a a S a: < ri w a -00 » O <.5£2 S 2 c. £■ d •C ^v, ° °5 "n* Z * 5 t: < S -i t: H g s PU « w > MNr0^lO>Or^00O«0'-*Nf0-^»/lOr^ m O O " C. rt rt 1) c 205 CHAPTER XXII GENERAL CHURCH ORPHANAGES AND HOMES— Congregate Type THIS group is composed of 30 institutions, representing 12 religious denominations. They are located in 1 5 different towns and cities in 1 1 counties of the state. The American Salvation Army has two small institutions, one at Erie and one at Allentown. The Christian Volunteers have one small home at Allentown. The Friends have two institutions in Philadelphia, one for white children of both sexes and one for Negro girls. The German Protestants have an orphan asylum at West Liberty, a suburb of Pittsburgh. The Hebrews have five institutions, one at Farm School, Bucks County, the rest in Phila- delphia. The Lutherans have seven institutions, located at Topton, Marwood, Mars, Zelienople, Loysville, and Philadelphia. The Mennonites have one home at Millersville. The Methodist Epis- copalians have one at Pittsburgh. The Protestant Episcopalians have six — one each at Pittsburgh, Rosemont, and Jonestown, and three at Philadelphia. The Reformed church ha;s one at Womels- dorf. The Salvation Army has one each at Pittsburgh and Phila- delphia, and the United Presbyterians one at Pittsburgh. The aggregate value of the plants is ^2,122,700. The com- bined capacity of these institutions is 2,427 and the cost of plant per bed, $908. Twenty of the 30 institutions are endowed, the aggregate of endowment being ^1,729,700. Only six receive aid from public funds, the aggregate received being ^24,574, which is only 7 per cent of the current expense. The number of regular employes was 338 and the average number in care, 1,998. This gave them one worker for every 5.9 children of the average in care. The amount expended for salaries was ^101,940, or ^51 per capita; the entire expense for mainte- nance was $332,800, or $167 per capita. All of the institutions care only for dependents. One re- 206 Plav and I'r Girls' LavaU)r\ Lutheran Orphans' Home, Topton. (See p. 207) The Home on Church Lane Girls' Baseball Team Jewish Foster Home and Orphan Asylum, Germantown, Philadelphia. (See p. 207) GENERAL CHURCH ORPHANAGES AND HOMES ceives boys onl\-; three devote their work to girls, and the other 26 care for both sexes. Two restrict their services to Negroes, five to Jewish dependents, 19 to white children, and nine have no race or color restrictions. Most of them are careless about investi- gation and supervision, depending with four exceptions upon pastors, voluntary committees, or their own superintendents for this work. The variation in per capita expense in this group extends from a minimum of ^36 to a maximum of $737. The former almost impossible figure is at the Lutheran Orphans' Home at Topton, and can be accounted for only on the basis of cash outlay, the farm produce and donations not being figured. The other is the Hebrew institution for large boys at Farm School, erected in 1896 to train Jewish youths in agriculture. It is perhaps more of a school than anything else, as they have 19 regular workers for an average of 63 boys and expend ^11,933 annually in salaries. Most of the homes in this group are of good quality and are doing successfully the usual work of such institutions. Some have long and creditable histories. One, the Shelter for Colored Or- phans, at Philadelphia, was founded in 1822. Their altruistic purpose is universally acknowledged, while some regret arises on account of the evidently limited financial means of several of the institutions, and the too conservative management of others. As a whole they are doing very creditable work and are caring for a large number of destitute and dependent children. The Jewish Foster Home and Orphan Asylum of Philadel- phia is pre-eminent in this group as an example of what is possible in the application of modern methods and individual care in spite of numbers and congregate equipment. The use of the public school, the close association of inmates with the children of the community, the stimulation of ambition and initiative, and the intimate home spirit of the institution, are points that might well be emulated by the less up-to-date ones of this group and other institutions throughout the state. It is clear that a number of these institutions are small and poor. They possess very inadequate plants and sadly insufficient incomes. In origin they are apparently the efforts of members or officials of minor sects or religious bodies to enter the field of social IS 207 CHILD WELFARE WORK IN PENNSYLVANIA service by the popular gate of child-care. With no experience, small means, a limited constituency, and the field already v/ell covered by other agencies, the chief result has been to add another name to the list, already too long, of struggling orphanages and homes appealing to the public for donations and to the authorities for a dole from the public treasury. It may be safely predicted that at least one or two of the members of this group described in the last paragraph, and having the most limited resources, soon will be abandoned, and their inmates provided for elsewhere. Perhaps as institutions they will be only names on the list by the time this report is published. The need of more adequate supervision, and a greater measure of au- thority in some central public body to raise the standard of insti- tutional service, is here again clearly indicated. For details concerning plant and endowment, current finance, workers and children, and other important matters, the reader is urged to carefully study the four sections of Table i8. 208 o o o o o o o o t^i/5 r>0 O O o o o o o o o o o o o o o o o o o o vq q o_ ■* q o_ N 6 6 4-\r>6 )O0oo oor^ow^oo ro O vO-O N ►"■ o z o u en O Z o o M m" M trt O C' o» o o* o> 0\ 0\ lO Ci " f^ O 'I- Tf --f o o. •* o o o\ o o» o> o» ll I, Iq Q §SI<< |;=qIs Oi OO » ^Jl=5 H cd O O -c q p w rtGE"^ «£MO-Si 'Ka,- 6 = w ^ b o " ^^ 5 rrio o -00 O O ' d a V . ^ « is jj p o o 0\ O w N "5 tWvO t^ MO. 209 c i. 1 l^o 1 u-^ S 3 •? t5 C 3" a u.s 2 rt m <; — 1 v M 5= o o 1' — rt <=' ^ ■2 d y> S£ ai I. (So "c 3 c .S 3 3 g &< "^ ^ S.3 cu 0. 0) in o i .a t3 3 a W E S < o « S.5 a ^s ■3 3 C < i3 o H 1 a -o CO c g o ^ C _o rt c 1 ■g o ?, vO Tf ro « -* fO o, re ^ t^ifl a« re O < vO a M O OO •M re r^ 0\ « (N cc ■ t^O ' r^ O i^ t-30 li^ 00 t^ r^ I )i/:ot^-^ Moot^'-'cofec^ reO'-'OvO'e (^ ^fe-'0 r^ Tf lo -^-o ^ >o re fe onnowo o o* &S5 ^ c wu o S o 3W ■5 ^ o 5-5 S-a < I I vS^^x illPflilllllipi § 51 S'S S- E 35 1.^ 3^ £0|3|^5-S g § Ki;5 z^;^ S^ ■OS •f,"o^£J taO • o ZK^ SE <'jiP ^ ^: I ot: ' ^ S i- "; ^ K Si S Z H b 2 E V K o o a S s g ^g^ a^aSiiE " >• tiling? kT a; - I OvO M 210 .-^ a .5- ^000 ;§C 01 -■ a Q, (/3 73 t^ >5 > Di»^ > ^2 Z i'a .ti .ti.ti.- Z! -:o O t~ o O O O -' v; N !M ■.d'^2 l^ro^O\ o ■ o> • a ■oo 00 N lo o Tf a •* • 1- ooc>Mvoo\Oi o I -^co MOO O O mwvOr^'^ro Ov IOO\ir)rON in >0 t^t^ incc CO 00 0\ OvO • Ov lOOiTf-OrO O sO ro M o in O mvO OOO"* O M 00>rOO in M inoo M on 0*0 ro »-< O m M* fO ro inoo r^ t^ j^uK mmhim •V c w h car s^kS'h: vaB g u o o §S j=U c 3 !; o — jUgO 25 ^ 3 ii - B. O ^ O ^ W 3 3 ? S £ °S£ 212 •2 n Z c; ^ S o c * " tj ^^ O f^ 3 Si. ^ fllillii 1^12 Ills :afc;&H: «i o « c 213 CHAPTER XXIII INSTITUTIONS FOR COMBINED CARE OF ADULTS AND CHILDREN THE institutions in this class are nearly all devoted to the combined care of mothers and children. The majority of the mothers are wayward and delinquent, and the children illegitimate. There are exceptions, and in some cases deserted wives or widows with children are included. A few in- stitutions care for all sorts of wayward girls from six or eight years up, with no definite discharge limit. It should also be noted that many of the mothers are under eighteen, some of them as young as fourteen years of age, and should, therefore, be counted as a part of those requiring mainte- nance as minors. When it was possible the visitors obtained the numbers of adults and minors cared for, and the amount spent on the minors. In other cases, by the help of the institution oificers, estimates were made of the proportion of work done for children, and the income and expenses in the tables are figured on that basis. For instance, if the estimate was that 50 per cent of the work done was for minors, one-half of the institution's income and expense is counted as related to children. While the tabulation figures are mainly estimates, they will vary but little from the real cost of the work. There are 22 of these homes in 10 different communities. Seven belong to the chain of Florence Crittenton Homes, which reaches across the entire nation. Thirteen of the homes are cottage institutions and nine are congregate in type. Five, all congregate, are Roman Catholic; one is Lutheran, one Protestant Episcopal, and the remainder are nonsectarian. Their capacity for adults is 406 and for children 1,173. The latter number contains several institutions caring for inmates of all ages from young children to adults, but without definite division into classes. The total capacity is 1,579. One 214 INSTITUTIONS FOR COMBINED CARE home is for colored inmates only, 1 1 for white only, and the re- mainder have no color restrictions. The value of the plants is $1,114,200; the endowments, $113,900; or a total in property investment of $1,228,100. The average cost of plant per capita of capacity is $706. The portion of the expense used for children is estimated at $152,163; the estimated amount of public funds used for children is $35,965, which is 24 per cent of the expense. During the year studied these institutions received 1,158 children and had a total of 2,116 in care. They placed 148 in family homes, returned 548 to kin, and had 931 children on hand at the close of the year. The amount expended for salaries for child-care was $29,- 253, or an average of $41 per capita; the total expense per capita averaged Si 61. The number of employes was 191 and the average number of children in care was 947; or one worker for each 4.4 of the average number on hand. The 191 employes are estimated to devote at least 60 per cent of their work to children. Most of these institutions are doing an excellent work for difficult classes of unfortunates. In some of the institutions the equipment is inadequate, and the dependents and the delinquents are not properly segregated. Some retain the old penal methods of reformation and should in some way be brought to accept more modern ideas and methods. The old idea that the public, and even the state, has no right to know what is done within a privately managed institution of this sort, still prevails to some extent among these institutions. For this reason it was difficult for the visitors to secure admission to some of them, and doubly difficult to secure adequate statistics. It is hoped that ultimately it will be realized that secretiveness arouses suspicion, while frankness and freedom open the way to the closest co-operation and the largest success. Society in general should consider and require several things in regard to such institutions and the unfortunates whose need calls for their establishment. I. By adequate supervision under state authority these institutions should be improved and standardized. All should be 215 CHILD WELFARE WORK IN PENNSYLVANIA required to have trained nurses and adequate facilities. Only thus can the welfare of the inmates be assured and excessive in- fant mortality prevented. 2. The inmates, most of whom have been weak and ignorant rather than wilfully vicious, should receive sympathetic moral and religious training and influence, free on the one extreme from a lax condonement of their wrongdoing, from an austere presentation of its penal and doctrinal aspects on the other. Kind treatment, wise teaching, and real sympathy will redeem many lives. Care- less indifference, Pharisaic drawing of skirts, and official threaten- ings or forced institutional confinement, usually kill hope, con- firm tendencies to evil, and result in utter ruin. 3. The present confused conditions should be changed, and the various institutions so constituted that only similar cases would be closely associated. Innocent children should not be located in the same building with delinquents. Poor but respect- able married women should have places of refuge where their reputation will not suffer from their institutional relations to those of the vicious classes. All of which calls for more of system and a larger measure of co-operation, 4. Standardization will not require absolute uniformity of method, only that the service rendered shall be of high quality. It matters little whether unmarried mothers are detained at the institution three months, six months, or a year. The number who shall nurse their own babies, and the length of time before weaning; and the number that shall be bottle-fed, and their food formulas, are matters for nurses and physicians to settle. Even the ques- tion whether the girl shall be compelled to face the world with the baby in her arms, or, on refusal of parents and relatives to allow her to return home with the child, whether she may be allowed to offer it for adoption through approved agencies, is beyond all general rules. 5. To supply high grade institutions and properly officer them in adequate numbers will require much larger funds than have heretofore been used in this work. If evil lying-in homes and death-trap baby farms are abolished, or reduced to the mini- mum, the capacity of these institutions of the better class must 216 The Home ^^^^PK- ^'wjJ^^MP^^^™ H Wm m^'-t *"*' •-•= "'--'-.^f-^. _;' '**■! ■■1 lUV^'rf^^i,^^ 4 Utt-^H ||r^*^**v^ Wm ^»"^^^- 1^1 * SB i Ih- l-;imilv Good Sni;i'nt-Ki) Homh, Allentown. (See Fable u), p. 218) 3">"^5^^iP-^'"--r ^^^iJ:^ " B^g^ljjB^^^^B INSTITUTIONS FOR COMBINED CARE be enlarged. Of course all possible preventive measures must be used; but the millennium is a long way off. Present conditions, and those probable for an indefinite future, demand service of this sort. It should be made good, and that means more money. While the four sections of Table 19 contain many estimates in regard to the work of the 22 institutions, it is believed that the facts are closely approximated. The reader is referred to them for many interesting facts and details, which can not be brought out in the text of this chapter. 217 >> t: & a o M > 5 1e 1 >> 5§ 3 < Statistics, yr. ending « fi M? S3 d o o in o -O vO N t^ t^ Tf ro vO O N O O OO r-O to rt > O ro OO rO " 001/>>OTf (NOO O O 00 -O O i-i O (N vO " Tf o m o r^ rfxnmo 0\ Ot Ov 0\ 0> 0> 0\ OvO\0\OnOs O^O* Ov 0» 0> 0» CN 0\ Oi On f*^ PQ ro M fO fO ro r*5 PO ro fO rO f*^ nororOrOPOrOfOro < s ;§ s -^ p p ppp:s:§ :§2s0 •*« 00 Ov 0\ t~ Z « Z P^ o o Z Z S 5 r?^ •Eg ■ ■aw ■(, ■28^: . gogc 218 '^<. U ogJ 5 •'-' li'ii : oJ c o II ^ ."Z 5 o o oj ^S WW 1 2 ° < ° ^ ^ P0-* lo o c E=. 1 •o u >• i s c j5 Si Cj.c (d b ^ isl S'k o a a ^ c d S2 |o a ■S s ■g c b 1 .a < S O. 5 o H , o^ li to (^1 1 .2 S 1 < 5 „ 5^ !r: ^ ^'a c. "13 £ 2 c _ < 1 ti-ii §M ■u^ o Si o ■3 •5^^ ^il 1 c ■3 5 1 j ) o o-O •n •* Ov O OO " o »oo a o o O " o o O-O Wrf O O r«5 vO fO t~ n fO ■■ri< oot~ o M • irtwt~-OM ooa o 4 « t~ (00-00> W" o inoo lo • o t" " N vo ■* q 1 O ■->" N CO ! r<5 to M o r«5 in O O O O r~ r- O O O O O. fO N O O 00 "" O 1-' :o« O 00 O O t^ ro O '2 2 ^ t S' Zft !C •^ Om 0\ O OO t^OO»>n^O coo 0\ O fO O -^l I^ o oo-*<-io,o t^oo >o o o m oof) -"t -v ro ooomtsOM i^Oi " 'f 00 o -"Tt n 00 M oO'Omr^^ t^*-" -^ r^ O O ■* to o o o „" oi >-." m" o t! T3 li o >> °X1 ^"E c ^ o o v._C a H "3 OT U2i Q Z < (/I u bi <; Q y _c E U *j Z 1 w CQ 4) ac < U d Z ^ o (S H U w ^' 1. ^ ■" rt V s IS u Cv " (d _) PQ < H i c •a G 1 ^ rt rt C O z z 2 z Sz z2 z;: 3 3 3 3-0 WW en w-a ^ .^ °S ^2 _g° SS S o > > S S S 2^ 2S 2(Se> z^ o o zz I I a II i3 U w .w I ^ z z^ ^z ^^ z •a Stj S " nj S cs UTD c « 1) 03 2 rt (U H « C rt 1' o rt cu o rt a;-- • E ■= H 14 yrs. up Inf.-i; older F no limi 10 yrs. up Inf.-i; older F no limit Infants born th older F no limit M inf. -2; F no limit ■g "2 -g^-S o^s'-^ o -^=^0- ^a Inf. up Infants a mothers Infants a mothers Inf.-i6 a needy ad Infants a mothers Inf. -6; older F n 12 yrs. u Inf.-3 m older F n Inf.-i; older F n Inf. -2; F 14 yrs Inf.-6 m F 13 yrs M inf.-i F no lim Inf.-i; F 14 yrs 12 yrs. u 3 b bb bbbb (x< IX. ^ ^ § ss ss^s,s b 2 fcS IS fa . dfeao. aa&ak--D. a ^, s ^, "3 -3 "3 P < Q •S fe-a -S 13 T) '^ 73 fa -O falS fa^ •O-O TJ Q QQ Q Q Q P Q P Q PQ QP QQ Q ■S'.q 5S g E O MgX! go m •§ O.ti I'm "OS 02 Ojfa - JO 3.2 Ofa S2: CO 3S-£ Z H O <; ' P:St)3 ^ ^ Orofnomoot'OO 0.-0 OvOOvi^ooooomfT)! g " ? ops lO^t -DTtrOMTf a; "^ ■•O 1/50 • f^ O.OOWOiO«3ONO00i-ifO"O00OP)f^r^i-'O> •w M 'tr^nwO loronoo 'tvO « « ro too r^ M w ^0OlC^r~^/)O^O•*^~00N"*^ ^gS rO lOQO N 0» "-I lO fO 0« t III S!^ Bk -21 J2 Sir " ?i ^ ■Eg5&|-o.2|^a-ng ° = i ;r a o ill' M C 3 _ • r; m !n fe e o o :^ 2 S K Si-ESsg.2£K^|g..zK5)« H ;5 ?• - - w N ro two t^W 0,0 " n ~5f>00 22 1 ■ 00 o o o-S o S c a 5; O— '-r- — . «^ S I ■= ml^.i: c^S o ' C.O ca c_ n! S el CHAPTER XXIV SUMMARY FOR PRIVATE INSTITUTIONS FOR DEPENDENTS IMPORTANT as are the groups of institutions related to the special classes, and the 53 child-caring agencies, treated in preceding parts of this book, they are entirely outclassed by the division now under consideration in at least three respects, — number of institutions, aggregate of children in care, and financial investments. Table 20, which is a summary of the six groups into which the 175 institutions have been divided for convenience in study and tabulation, presents a startling set of figures, almost unbelievable but for the fact that each item can be traced back to its original group, and then to the various individual reports of which it is the sum. In the 153 orphanages and homes, and the 22 institutions for combined care, there are invested in plants, which include grounds, buildings, and furnishings, §19,648,400. The endowment of these same institutions totals §42,052,300. This makes a total property investment in them of §61,700,700. The current expense for the year studied was §2,596,958. Even this one class of institutions shows its importance by the immensity of the finan- cial interests involved. The capacity of these 175 institutions aggregates 17,699 children, or an average of loi in each institution. The average number in care for the 175 institutions aggregates 14,952 children; thus, on the average, lacking 2,747 of being filled to capacity, or in other terms, only 84 per cent of the beds in the institutions are in regular use. This would indicate that, taking the state as a whole, there is no need for increased institutional provision for dependent children. Under the more varied methods developed in the care of this class of children, especially during the last decade, rapid changes of inmates take place in most of these institutions. We 222 SUMMARY FOR PRIVATE INSTITUTIONS find that there was a total of 25,389 children in care during the year. Of these, 1,258 were placed in family homes, 4,636 were re- turned to kin or friends, 343 died, and 3,965 were disposed of other- wise. At the close of the year there were 1 5, 187 children remain- ing in care. The 175 institutions had an aggregate of 2,384 employes, or an average of one employe for every 6.3 children. The average per capita for salaries ran from Si 3 in the Catholic institutions to ^95 in the group of nonsectarian cottage institutions. The aver- age for the 175 institutions was §45 per capita; the other expenses averaged S128 per child; and the total expense, found by adding these items, was $173 per capita. Owing to the very large endowments held by many of the institutions in this group, the average per cent of public funds to the total income is very low, running from nothing to 24 per cent. The entire group of the 175 institutions received $290,623 in public funds during the year, an average of Si, 661 per institution. As noted, many institutions received no public funds at all, while others received much more than is indicated by the average. From the extended tables which accompany this written sum- mary, let us construct a few suggestive tables of totals, including the above and other matters of interest. Oftentimes very impor- tant facts and deductions may be overlooked when the tables are TABLE I. — PROPERTY VALUES OF 1 75 INSTITUTIONS FOR DEPENDENTS Type of institution Institu- tions Value of plant Endowment Total value of property Value of plant per capita* Orphanages and homes Cottage .... Congregate . Institutions for com- bined care of adults and children . . 43 no 22 $3,134,500 15,399,700 1,114,200 $7,457,100 34,481,300 113,900 $10,591,600 49,881,000 1,228,100 $1,496 1,131 706 Total .... 175 $19,648,400 $42,052,300 $61,700,700 $1,136 " Based on capacity, institutions in rented property were not included. 16 223 CHILD WELFARE WORK IN PENNSYLVANIA large, which are plainly apparent when the vital figures are sepa- rated from the mass. Take first the large investments the people of Pennsylvania have made in erecting and endowing these orphanages and homes. As noted before, an idea of their importance is suggested by the financial values they represent. (See Table I, p. 223.) It has greatly surprised all who have seen the figures to learn what a large amount is annually raised and expended by these in- stitutions. Generally it has been supposed that a very large part of their support was derived from public funds. The fact that only 1 1 per cent of the annual expenses was from public sources and 89 per cent from private sources, is a revelation. (See Table J, below.) TABLE J.— MAINTENANCE EXPENSE: AMOUNT AND PER CENT DE- RIVED FROM PUBLIC FUNDS FOR I75 INSTITUTIONS FOR DEPENDENTS Type of institution Institu- tions Maintenance expense Total Per cent derived from pub- lic funds Per cent paid for salaries Per cent paid for other expenses Orphanages and homes Cottage .... 43 $475,334 9 28 7f Congregate . . . 110 1,969.461 11 24 76 Institutions for com- bined care of adults and children . . . 22 152,163 24 19 81 Total 175 $2,596,958 75 The next table shows the extent of work done, by giving capacity, numbers received and discharged, numbers placed in family homes, and on hand at the end of the year. (See Table K, p. 225.) A fourth table shows some important averages drawn from the totals given above. It will be noted that condensed from six groups to three, according to type, some different per capitas appear. To obtain a per capita average of permanent investment 224 SUMMARY FOR PRIVATE INSTITUTIONS TABLE K. — CAPACITY AND CHILDREN IN CARE FOR 1 75 INSTITU- TIONS FOR DEPENDENTS Type of institution Institu- tions Orphanages and homes Cottage Congregate Institutions for com- bined care of adults and children Capacity Children Received Placed n family homes Total number passed from care In institu- tion at close of year 2,273 1,046 13.S47 8,589 .579" 204 939 906 8,078 148 1,185 1,776 12,480 931 Total 175 17,699 10,793 1,258 10,202 15. '87 ■' Includes 406 adults. it is necessary to use as a base the average number of children in care. The average cost of plants based on capacity (see Table I, page 223), $1,136, is one thing; this is another. These institu- TABLE L. — PER CAPITAS FOR CURRENT EXPENSE AND PERMA- NENT INVESTMENT FOR 1 75 INSTITUTIONS FOR DEPENDENTS Type of institution Institu- tions Average number children in care Per capita expense for' Salaries Total mainte- nance Per capita value of plant and endow- ment'' Orphanages and homes Cottage .... 43 Congregate . . . 110 Institutions for com- bined care of adults and children ... 22 1.752 12,253 947 ^75 40 $271 161 ^5,064 3,664 Tot a 175 14,952 $45 174 $3,570 Based on average number of children in care. Based on capacity. 223 CHILD WELFARE WORK IN PENNSYLVANIA tions have a permanent investment in plant and endowment of ^3,570 for each child of the average number in care. (See Table L, p. 225.) The matter of salaries and wages is always important. The figures below are drawn or figured from the more general tables. It should be remembered that in addition to the cash salaries here indicated, the employes receive board and lodging. Also, that in the Catholic institutions the Sisters and Brothers receive no salaries, or at most those merely nominal; and that in all of the institutions most of the workers are women, who customarily re- ceive less than men for similar service. (See Table M, below.) TABLE M. — SALARIES OF EMPLOYES AND CHILDREN PER EMPLOYE FOR 175 INSTITUTIONS FOR DEPENDENTS Type of institution Institu- tions Regular employes Total salaries Average salary per em- ploye Average number of children per employe Orphanages and homes Cottage .... Congregate . Institutions for com- bined care of adults and children . 395 ^131,781 $334 1,798 478,111 272 29.253 168 4-4 6.9 4-4 Total 2,384 $639,145 $275 6.3 This condensed grouping and selection of points for study will call attention to matters otherwise likely to be overlooked, but should not take the place of a careful review of the more general sections of the summary. The importance of these 175 institu- tions in the child-caring system of the state is ample justification for this extended study of their statistics. 226 *^r^r^ rtrpiM^ Main Bni.niNG, Mhnnonite Children''- Home, Millersville. (See Table 18, p. 210) House oe nn Hoev Child, a Negro Orphanage, Philadelphia. (See I able 18, p. 209) Main Buildin'g, Friends' Homh for Childrkn, Philadelphia. (See Table i8, p. 209) View of Buildings, St. John's Lutheran Home, Mars. (See Table 18, p. 200) Home of the Good Shepherd, Rosemont. (See lable iS, p. 209) CD Z 9 - U go Q g O ^ Ui (U CA) rt Z .> 2 ^ H H en W < > O >^ < D r P 2:-- 2 o o •a « o o o o o o O 4? nl o "= Ifiil £13 C £t3 o s o 5 c s g s s g s Mr; QO tn -: O ri O rt M o^ o ^ o a 5 o 227 1 1 vO <« ** ^ '^. ci ° «i^ W Q •i- T oi 4 v^ w* ^, vO rO a V* to* o> Ov ^. " -N 2 T! ,c "rt •tJ c c c > 2 m 1 h ^g^. J3 f^ O o "1^ v x> E d i: 3 -o s C J= o 01 U c M 2 < OJ 1» — (S =^ ^ 1^ a T3 S£ V 1 £■= 3 ^ c y 3 O 3 3 E £ <; ^ oi'S. m o fe 229 CHAPTER XXV GENERAL SUMMARY FOR AGENCIES AND INSTITU- TIONS IN order to visualize at once, as a sort of composite picture, the 2IO institutions and the 46 agencies represented in Parts Two, Three, and Four of this study, a general summary is given. At some points, especially in the statistics of children, there are unavoidable duplications. But as the 3,000 children cared for in almshouses, and the hundreds indicated in the table for the special child-caring agencies, do not appear in the summaries, uncounted children will more than make up for duplications in final totals. These organizations cover more than a century of social work. One orphanage was established in 1797 and another in 1798. Others cover all decades of the nineteenth century and some were founded as late as 191 2. We have here no ephemeral impulse, but an increasing and permanent philanthropy. Some of it may be governmental and directly under the control of elected officers; but none the less, even this part is the expression of broth- erly kindness and a real love for humanity. The whole child- caring system gives visible and tangible evidence of sympathy, goodwill, and generous helpfulness. The 210 institutions have an aggregate capacity of 25,163 children, or an average of 120 children each. Deducting the ^261,400 belonging to the agencies, they have invested in plants the immense aggregate of $29,197,000. This allows an average investment in buildings and equipment of $139,033 to each insti- tution. The cost of plant per bed averaged $1,179.* These matters are exceedingly important, especially to any who are counting the cost of establishing child-caring institutions. The invested funds and endowments are even more remark- able. The aggregate of these funds is $47,198,800, of which $516,700 belong to some of the agencies. Deducting the agency * Omitting Girard College and Widener Memorial School, the average invest- ment was $1 10,889, an"^ the cost of plant per bed, $997. 230 GENERAL SUMMARY FOR AGENCIES funds, we find that the remainder divided among the 210 institu- tions would allow to each of them an endowment of over ^222,000. It should be remembered that the above aggregate includes the immense endowment of Girard College, probably the wealthiest orphanage in the world, which greatly increases the average. The totals of the investments in child-caring institutions are $76,657,200, of which $778, 100 belong to the agencies. Deduct- ing, as before, the agency funds, we have $75,879,100 invested in 2!0 institutions, or an average for each of $361,329.* These variations and averages are presented to emphasize the greatness of the state's financial investment in child-helping work. The current expense problem is proportionately important. We find a total of 3,670 regular employes, whose salaries aggregate $ J ,232,835 ; and a total average of 2 1 ,745 children in care, for whom, together with the salaries and board of the workers, the annual maintenance expense aggregates $4,478,589. As the entire possi- ble income from the above mentioned endowments is less than $2,000,000, it is plain that the people must contribute annually, either by taxation or voluntary gifts, about $2,500,000. Deducting, as before, the funds belonging to the agencies, as not exactly parallel with those of the institutions, we have several interesting facts. The 210 institutions paid an average of $55 per capita for salaries, and the average total cost of mainte- nence was $192 per capita. They received $1,520,817 from public funds, which was 34 per cent of their current expense. They employed 3,670 workers to care for an average of 21,745 wards, or an average of one worker to every 6.1 children. If the aggre- gate of experience can settle it, each ordinary child-caring institu- tion requires an average of one worker for every six children in care. Of course this ratio does not apply to special institutions, where there may be a worker needed for every two children. The extent of the child-caring work in the state of Pennsyl- vania is clearly brought out by Section D of this summary. There were on hand at the beginning of the year (approximately the calendar year 191 2) 21,476 children. During the year, 21,009 new and returned children came into care. This gives a total of ♦Omitting Girard College and Widener Memorial School, the average is $176,669. 231 CHILD WELFARE WORK IN PENNSYLVANIA 42,485 in care, or handled by the agencies and institutions during the year. As before stated, these numbers include some dupli- cations but these are balanced by the care of other children by institutions and agencies not represented in these summaries. The favor accorded to placing-out work is shown by the 3,193 placed in family homes. The change in family conditions, or rehabilitation accomplished, is shown by the 7,666 returned to kin or friends. Only i per cent, or 441, died in care during the year. Nearly half of these deaths occurred in a few institutions mainly caring for illegitimate and foundling babies. In various other ways, which include ordinary dismissal, coming of age, marriage, and so forth, 8,642 passed out of care. At the end of the year, 22,543 remained in direct care, in addition to whom there were 10,493 under supervision elsewhere, some in family homes and some in special institutions. The study of the reception sources from which this great army of children is annually drawn, while incomplete, is still exceedingly suggestive. While not tabulated, a summary is here given. Reports were made of 18,048 children. Of these, 4,210 were assigned to the agencies or institutions by the juvenile courts; the directors of the poor of the 67 counties placed in their care 1,191 ; relatives and friends handed over to the care of agencies and institutions 10,304, or 57 per cent of the entire number; other agencies, such as churches, settlement centers, or charity organiza- tion societies, arranged for the balance, 2,343. Put into percentage form, the four sources of supply furnished dependent children as follows: Juvenile courts, 23 per cent; county poor boards, 7 per cent; relatives and friends, 57 per cent; and other agencies, 13 per cent. The relational condition of these children is also important, and although not tabulated, some statistics are available. While the data obtained were not always exact for want of well-kept records, and reports are made for only 16,348 children, it is believed that the relative proportions of the various classes very nearly fit the facts. Of the 16,348 children reported by the various organizations, 9,368 were counted orphans or half-orphans, or over 57 per cent in this one class. Some children of separated or divorced parents are here included. The wilfully deserted 232 GENERAL SUMMARY FOR AGENCIES numbered 1,400. There were 2,210 neglect and cruelty cases. Those received on a general plea of destitution, or of some other parental disability, totaled 3,370. Put into percentage form we have as a statement of their relational condition: Orphans or half-orphans, 57 per cent; wilfully deserted, 9 per cent; neglect or cruelty cases, 14 per cent; and destitute or otherwise homeless, 20 per cent. The showing of these two untabulated summaries will be of special interest to many as a general classification of the sources and relational condition of dependents. As this review closes, the writer cannot help reflecting that in all these thousands of cases something was wrong. Their normal home life was disjointed or wholly lacking. The machin- ery of society related to them had broken wheels or sand in its bearings. Homeless children are results. What are the causes? Some of the causes may be implied from the results themselves; others by tracing back; others still by close observation of the social processes which continue to gather a never-ending multi- tude of recruits for this army of unfortunates. To change these social processes and dry up the sources of dependency is even a greater task than properly to provide for the dependents. 233 o . ■" o >*vO ^ ^ •S.sg J, o o o t^ lO o ■o t^ I- 6% tr% 1 § CO CO ^ '-'. f^ !« a O o o Tf co" o ^ fo ro w ^ •o , ON o> Oi 4 <»^ «.% rc V, 1 ^ « " t^ " " ^ ^ ^ .2 •o c o '% g H o w 'c ^ o ■~ E % 1 o m 1 3 i •3 c .S '•5 "J? 1 3 M .S-o 1 !i c.> |5 O H 234 a E. •s S^o O^a 1 s c- s 3 3 01 0_c bo 2 V u > til < 47 4) — Pi °' ^ y g^ b •o fn ° a 3 .H 3 o 3 S Oh ^ 1- 5 oj.t; f^rt „ i OJ s 1 3 § S < u, ■S. _ "i t. 5 (p Sh d. c. - 3 5 13 < o H sS 2 o T3 '^ 'm-^ — H tjC 3 rt \ .s'5-' o o o >. >, ^ 2." 235 E c IS S " « -s I -2 i°5 o — " " a -g - 4) is ■^ Vfl 5S -=12 "T « > a > ^^ p. o ".S S S £!-S O ^_§ ^"^ ;2 "£ a ^2oS-i= iliilliiPl! PART FIVE GENERAL AND LEGISLATIVE MATTERS It is not feasible to apply positive eugenics to the human race. Nega- tive eugenics, on the other hand, by the control of the unfit members of society, is entirely feasible at the present time. . . . The initial expense to provide adequate equipment to care for all the mental defectives in one of our larger states would not exceed the cost of a single battleship. — J. M. Murdoch. It may be true that religion is not social service; that charity or social service cannot take the place of religion. But you and I know that vital religion cannot exist without social service. ... I do not say that the church is to be substituted by social service, but I do maintain that religion today needs to be rehumanized, resocialized. And on the other hand, charity or social service needs the uplift of religion. — Rabbi Stephen S. Wise. The state cannot be indifferent to the welfare of two or three hundred children, for example, who are housed in a private institution where they are preparing for the battle of life, preparing to assume the responsibility of citizenship. The municipality where such an institution is found has the right at least to see that the buildings are in good sanitary condition, that nourishing food is given to the inmates, that adequate educational facilities are given the children. . . . The helplessness of its citizens is therefore a legitimate basis for the claim for supervision of private institutions by public authority. — Rev. Father William J. White, D. D. The juvenile court law, as you know, is plain and simple. No com- plicated, technical theories are involved in the statute. In short, it is but a substitution of the parental power of the state for that of the criminal branch. . . . The principal object of the law is to keep children in their own homes, or that they may be placed in approved foster homes. It is unfair to the child that it be reared and educated in a foster home with no right to inherit. To have the right to inherit it is essential that a proper decree of adoption be entered in the case. The adoption act was unknown to the common law. All proceedings of this nature are purely statutory. Hence the necessity of having the law strictly complied with. Many sad cases have come to my personal knowledge, where children were denied the right of inheritance because of defective records in juvenile and other courts. — T. D. Hurley, Esq. CHAPTER XXVI GENERAL SUGGESTIONS AND RECOMMENDATIONS AS stated in an early chapter of this commentary, the task of digesting and tabulating a study of this kind takes even more time and labor than to do the field work. While the preceding descriptive matter seems fairly complete, although necessarily brief, it is realized that many important matters have not been even touched in the review. Hence, it will probably be best to here give expression to some thoughts the study has suggested, in the hope that they may stimulate progressive action along the lines of greatest need. I. Records* At the very outset of this inquiry, and continually as it progressed in different parts of the state, there was encountered a difficulty due to a glaring and almost inexcusable fault, not peculiar to Pennsylvania, but very much accentuated there. In many cases there was an almost utter lack of any adequate system of records; and in even the best institutions there were many defi- ciencies. Also, the records as kept, differed so largely that it was almost impossible to get uniform lists of the children in care, to say nothing of recording their development and final disposition by the institution. It hardly seems conceivable that any institution could be so lax as not to record the names of the children, the date of reception, and the final disposition made of them; but such is the case in some instances. A few sheets of loose paper, on a shelf in a cupboard filled with odds and ends, is a trying example of the record appli- ances of one institution. Most of them had a so-called book of admission, in which was recorded not only the name and date of * See A Child Welfare Symposium, supplement to this volume, p. 14. Ar- ticle by J. Bruce Byall on Adequate Records of Dependent Children in Agencies and Institutions. 17 239 CHILD WELFARE WORK IN PENNSYLVANIA reception, but also a brief notation of the child's history and possibly a date of dismissal. The need of clear, full, and systematic records was the first thing impressed upon those engaged in the field work, and later emphasized as the work of tabulation and digestion progressed. For many reasons it is also very desirable that there should be some degree of uniformity of records among the institutions of the state. This it is believed can best be accomplished by the central super- vising agency requiring detailed reports on all lines, on special forms prepared by experts.* It may also be noted that the brief alleged facts so recorded were merely the statements of persons most interested in having the child admitted to the institution. Generally, when the ques- tion was asked, emphatic assurance was given that a careful inves- tigation was made of each applicant, and admission granted when the circumstances warranted it. But it was the rare exception when this investigation was made by a trained worker. Nearly always it was made by single members or committees of the board of managers, volunteers, ordinarily untrained for such delicate tasks, and usually unable to take the time to make the investiga- tion properly. Even when the inquiry was made by the superin- tendent, or a paid worker, it was often with little conception of the problems involved or of how it should be undertaken. This clearly indicates that there should be a much more extensive use of physical and psychological examinations by capable diagnos- ticians. 2. The Need of Special Investigation It should be recognized that at the threshold of every insti- tution there is needed the broadest social vision and the wisest judgment, lest injustice be done or the highest welfare of proposed wards ignored. Here should be asked the most searching ques- tions, to determine not merely whether or not there is genuine need which would class the child as a dependent, but also just how an ascertained need should be met. *A recent publication of the Russell Sage Foundation entitled Elements of Record Keeping for Child-Helping Organizations, by Georgia G. Ralph, of the Department of Child-Helping, will be invaluable as a guide to the best record forms used by the most progressive social workers in the United States. 240 GENERAL SUGGESTIONS AND RECOMMENDATIONS Rightly undertaken, such investigation often develops a sur- prising amount of resources, both financially and in latent ability, which, if not utilized for the child in question, would remain latent or be squandered in some other direction. Ready admission of a child to an orphanage has resulted all too often in the quick re- marriage of a widowed or divorced mother or father, and a future disregard of the child of the first marriage. A ready acceptance of an illegitimate child, with little or no definite inquiry, has too often left the door wide open for the carefreed mother to pass out to a life of degrading immorality. Often, also, there are bonds of kinship beyond those of the first degree which should be drawn upon before the child is placed in the hands of strangers or made a permanent inmate of an insti- tution. Relatives are generally willing to come to the relief of overburdened parents or homeless children, if the matter is properly and tactfully presented to them. If relatives are not willing to spend; and be spent willingly for those of their own blood, one of the finest inheritances of family life is ignored and nullified. It is a duty of the social worker to point out such opportunities and to urge aid to relatives up to the point of real sacrifice. The common custom of institutions and possibly of some agencies, to receive children readily, without previous investigation on this point, is greatly to be deprecated. Thorough investigation of applicants for admission to insti- tutions, as well as suitable supervision of children dismissed from them, by trained workers, are special requirements for efficient service. Both investigation and supervision are of great impor- tance, and standard work is impossible without them. 3. The Value of Systematic Study The lack of trained workers to acquire exact facts concerning institutional charges and of adequate records in which to register them for future use, prevents systematic study of causes and con- ditions. Everywhere today the question "why?" is being asked. Most of the children's homes and orphanages of Pennsylvania can give little response to the insistent query, "Why must we have this constant army of juvenile dependents and whence does it come?" 241 CHILD WELFARE WORK IN PENNSYLVANIA These deficiencies not only limit studies for the prevention of dependency, but also hinder the proper care of the children themselves. The results of scientific investigation and examina- tion are essential aids to the study of their present individual needs, and to all plans for their future welfare. There is also throughout the state a deplorable lack of under- standing as to the best methods of child-care, from the modern point of view. While a few of the officers and managers of most of the institutions are in sympathy with modern methods, there are so many conservatives in control that advance is very slow. The inevitable results of ancient ways and equipments are still plainly visible. Old-fashioned routine system and mass care in congregate institutions continue to suppress individual traits, and prevent a normal and proper development. Systematic and scientific study tend to the grading up of all institutions toward standardization. 4. False Economy* This leads naturally to the so-called economy of manage- ment which uses in some cases too few workers, and in many other cases workers untrained and unadapted to such service, simply to save a little money. Very few institutions are lacking in really altruistic spirit and intentions. The matrons and most of the subordinates are quite universally loving and sympathetic. Also, with few excep- tions, they are mentally and physically overtaxed, burdened with excessive strain and long hours, and sadly underpaid. Mothers may stand severe toil, nervous anxiety, long hours of responsibility, and the irritation of multiplied household details, without becoming cross and unreasonably dictatorial toward their children; but the hired toiler in an institution who can retain equanimity of spirit and sweetness of disposition while caring under such conditions for other people's children must be far above the average in maternal qualities and the higher characteristics of womanhood. There- fore, with hard work, heavy responsibilities, and low wages con- spiring against the institutional working forces, it is no wonder * For an extended discussion of tiiis and other points of similar importance see A Child Welfare Symposium, supplement to this volume, p. 78. Article by Frank D. Witherbee on Standardization of institutional Care. 242 GENERAL SUGGESTIONS AND RECOMMENDATIONS that it is difficult in many institutions to attract and retain efficient workers; and naturally the children receive inferior care and train- ing. Another reason for the unrest and frequent changes among institutional workers is the nagging supervision many of them receive from officials and managers. If a person is capable of filling the position of matron or superintendent, he or she should be given general instructions and then be held responsible for results. For a trustee or manager to come into the institution and countermand the executive's orders, or direct details naturally under the hand of the matron or superintendent, is unbearably humiliating. To force a supposed executive officer to appeal to a committee or await a meeting of the board before settling minor details of methods or management is mortifying to the officer, poor policy for the institution, and a hindrance to its proper adminis- tration. One of the advance movements to be promoted all over the state is a better understanding between institution officials and their managing boards, and higher average salaries and wages for both executives and subordinate workers. Only thus can higher types of men and women, and those better trained for their jobs, be obtained and retained in child welfare work. 5. Changes in Type and Location Institutions with cottage plants and country sites are as yet few in number as compared with those retaining congregate plants and methods, and city locations. It is a matter of great regret that several important institutions, forced to abandon plants that were crowded and inadequate, have rebuilt on ground that is either now surrounded by the city or that will cease to be country in a few years' time. Modern equipments can not altogether make up for confined locations; and when the old institutional type and the mass treatment of wards are retained, as in some cases, the regret is decidedly increased. 6. Physical Conditions The general average of physical care is good; some of it is excellent; very little of it is so neglectful and ignorant as to be 243 CHILD WELFARE WORK IN PENNSYLVANIA termed vicious. The faults are mostly due to custom and a con- servatism which fails to study modern ideas. When, however, such highly contagious diseases as scabies and impetigo, or ring-, worm of the scalp, are carelessly treated without segregation, and little understanding is shown of the communicable nature of tuber- culosis, as in some institutions, the need of authoritative inspection to enforce modern standards of health is clearly manifest. 7. Education The education of children in the homes and orphanages varies greatly in method and efficiency. Many send the children to the public schools, where, by mingling with other children who live in their own homes, they receive marked stimulus to progress, and in most instances a better education. In other cases, for religious or other reasons, schools are conducted more or less efficiently within the institutions. Those whose construction and conditions are most faulty and those whose physical and medical care of their wards is very imperfect, often find public school training impossi- ble because of frequent quarantine on account of contagious dis- eases. It is fair to say that the interior educational facilities of some institutions are of a high order, and their work apparently excellent. 8. Mentally Deficient Children* There are but few institutions that carefully study their wards to determine their mental powers; to learn whether or not they are normal and capable of real development. Even a casual observer, in visiting institutions, readily notes many children so distinctly of deficient mentality as to make their close association with other children a matter of grave concern. Those of this type, especially if viciously inclined, should not be housed in free rela- tions with normal children. Yet no serious effort has been made up to this time to secure their removal to institutions suited to their care. The main reason probably is the lack of appropriate institutions for the feeble-minded. * Chapter XXVIII, p. 266, is entirely devoted to a discussion of the care and segration of the feeble-minded; see also A Child Welfare Symposium, supple- ment to this volume, p. 32. Article by Mrs. .Martha P. Falconer on The Wayward Girl. 244 I'ordi i.f Mjin lUiilJini;, .in. I I ,ini Dairy Herd at St. Paul's St. Pall's Orpilvns' Ho.mi . (ireenville. (Soo p. 180) Two of the Cottages l|^^^«r k^jjkil iiif? 1^ "W^ — . ■ ^ ^^H|^vrMJlfliHHfiL_-L..^_- |H Bill 1 An Orphan Boy An Orphan Girl Presbyterian Orphanage of Pennsylvania, Philadelphia. (See p. 179) GENERAL SUGGESTIONS AND RECOMMENDATIONS The problem of the feeble-minded is vitally related to every agency executive and institution superintendent. Some agencies blind themselves carelessly or wilfully to constitutional mental deficiencies, and knowingly or ignorantly place morons and high grade imbeciles in foster homes, where only normal children are expected. Such children should not be placed in family homes without a frank and full understanding in the matter. The num- ber of mentally deficient children annually handled by the agencies or in care in the orphanages and homes must be counted in hun- dreds. Multitudes more, even counted in thousands, are in private homes, and are frequently found in the great army of families which call for the perennial ministration of the charity organizations. This subject is so important that an entire chapter is subjoined to elaborate the situation in Penns)ivania, and the prospects of future provision for these unfortunates. 9. State Aid* Financial aid is given by the state to a very large number of child-caring institutions. While the percentage of aid to the entire expense is usually below 50, and in most cases the aid is amply earned by service rendered, it is still true that there is no scientific basis for the appropriations. A small local hospital or home, possessing a pull, may and often does receive more than a state- wide agency caring for hundreds of children. The principles upon which a sound policy can be based have never been adequately set forth or made the grounds of action. The constitutional provi- sions affecting appropriations to charitable agencies of definite religious affiliations are constantly violated. The entire situation is clouded by the lobbying of institutional representatives, and it is claimed that appropriations to charitable institutions are fre- quently used to secure partisan advantage or political support, if aid is to be given by the state there should be a definite policy, with a scientific basis, and the funds should be distributed according to actual service rendered, and never because of per- sonal favor, or to influence political campaigns. * For a general discussion of state appropriations see A Child Welfare Symposium, supplement to this volume, pp. 118 and 125. Articles by Joseph A. Beck on Public Appropriations to Private Institutions, and by William Bradford Buck on Principles and Standards in Granting State Aid. 245 CHILD WELFARE WORK IN PENNSYLVANIA Roy Smith Wallace, general secretary of the Pennsylvania Society to Protect Children from Cruelty, states the position of many of the leading social workers of the state in these words: "The present system in this state for the care of dependent children is in some respects inadequate and in others unsatisfactory. It is my belief that the public should be responsible for at least the cost of their care. It matters little whether the cost is borne by the state or by the counties or by both. Probably it would be wisest to adopt a half-and-half policy, because the present system provides, although inadequately, for state and county responsi- bility. The present system allows the state to appropriate lump sums to child-caring agencies, among other state charities, and also allows the county poor officers and county commissioners, on court order, to pay for the care of dependent children. I should therefore say that for Pennsylvania a half-and-half system would fit best to already existing custom; but insist that it is essential that all public appropriations to private charities be made upon a per capita basis, and only for such wards as have been recognized as public charges by a proper public official." 10. Juvenile Court Work* It is deeply to be regretted that the juvenile court has not advanced in Pennsylvania as rapidly as in many states. The old formalities of criminal procedure are retained in nearly all the counties. In Pittsburgh there is still a rotation of judges which is one factor against the court's success; and in Philadelphia this was not remedied until January, 1914. The same judge should preside for at least an annual period. The mandatory clauses in the act of 1903, requiring the appointment of regular probation officers and the establishment in each county of a detention home other than the common jail, have been disobeyed in some cases and evaded in others. Only a few counties have suitable deten- tion homes, although it is now ten years since the passage of the law. It is hoped that each of the populous counties will soon assign to juvenile court work an able judge, who will always be * For present situation see Chapter V, page 66, and A Child Welfare Symposium, supplement to this volume, p. 51. Article by H. P. Richardson on The Juvenile Court in Pennsylvania. 246 GENERAL SUGGESTIONS AND RECOMMENDATIONS accessible, and high class probation officers, in sympathy with the principles involved, it has also been urged that a state probation commission be created, with large scope and powers to carry on the work in the sparsely populated parts of the state. II. Placing-out Work* One of the greatest needs of child welfare work in Pennsyl- vania is a rearrangement and a standardization of the placing-out of children in foster homes. This work is related to both agencies and institutions. During the year studied the agencies placed 1,171 children in family homes, while 175 private institutions placed 1,258. Therefore, all child welfare workers are personally interested in this important method of child-care. In many of the orphanages and children's homes the placing- out is seldom done until the boy or girl is of an age requiring such action, say fourteen to sixteen years. Such institutions often say that they do no placing-out work, but when pinned down con- fess that at the departure of their wards they secure homes, or jobs including homes, for them, so that such children are started in the outside world under the authority of their guardianship be- fore they are thrown entirely upon their own resources. Arrange- ments of this kind are as truly placing-out as though the work was done by a regular agency. It is not the numbers annually placed, but the fact and the method, that count. So practically all insti- tutions do some placing-out work. There are three principal defects in institutional placing-out work, as long experience has demonstrated. First, except in large and wealthy institutions, which are able to afford trained placing- out agents, there is generally only a superficial investigation of the applicant, his home, and its environment. Second, there is little intelligent effort to fit the child to the home and its location. Third, there is very little after-supervision of the home and the child. There is a tendency in many orphanages to retain children as long as they are doing well in the institution, and to get rid of * For a discussion of child-placing in families see A Child Welfare Sympo- sium, supplement to this volume, p. 95. Article by Edwin D. Solenberger on Standardization of Placing-out Work. 247 CHILD WELFARE WORK IN PENNSYLVANIA them by placing them out when they become restless, get discon- tented, or make trouble. Naturally, it is difficult to secure homes for these wayward children, and the results of such placements when known are usually unfavorable; hence, institution officials are frequently confirmed by them in their notion that placing-out is like a reform school — a last resort — and that it is best to keep their wards as long as possible. But placing-out under such conditions is unfair to the child, to the system, and to society. Placing-out work should not be done in any such way, and the system should not be judged by such apparent results. Ordinary institutions can not provide the trained agents to do this work wisely and well. It is a question whether even large and wealthy institutions can afford to provide suitable agents and do their own placing-out. The development of modern ideas and the increased demand for limitation of efforts and close co-operation have made the properly equipped placing- out agency a necessity. We should demand of the agencies a high quality of work and assurance of permanence of service. These being assured, practically all placing-out in families should be entrusted to them. To put the requirements of placing-out in a single sentence, it should be done by agencies or institutions only after thorough investigation of the applicant, his home and its environment; the child should be thoroughly studied and carefully fitted into the new relationships and location; and both the home and the child should be kept under personal and adequate supervision until the latter receives legal adoption or attains legal age. A few of the principal agencies are doing this work well and in accord with modern ideas and methods; some others need to be brought up to a standard, especially in regard to the investigation of offered homes and the supervision of placed-out children. There is a tendency to depend too much on volunteer effort and there is great need of co-operation, consolidation, and standardiza- tion. We recommend the greatly increased use of trained agents. We also urge a much larger degree of co-operation between the institutions for permanent care and the best agencies, which are equipped for the necessary investigation and supervision. Agency placing-out has two branches: the temporary care 248 GENERAL SUGGESTIONS AND RECOMMENDATIONS of children in families, their board being paid, until their homes can be rehabilitated, their relatives found, or delayed court action taken; and the permanent care of homeless or dependent children in free homes as regular members of families. It hardly need be said that, whether it be for a short time as a pay boarder or per- manently as one of the family, every home to receive a child should be studied as to its fitness for such service, and no home should be accepted contrary to the welfare of the child. W'e urge that special efforts be made to place in family homes all permanently homeless children who are physically and mentally normal. There may be some of normal mentality who will require temporary institutional care in order that they may receive special medical treatment or obtain needed surgical aid. Placement in family homes is much easier, and usually the results are much more satisfactory when the placement is made before the child is ten years of age. Nevertheless, many children above ten years of age may be safely placed in families if the families are properly selected, the children selected for them, and adequate super- vision given after the child is located in the home. This will leave in the care of the institutions those who are older and especially those in need of discipline, or who are physically or mentally abnormal. The placing-out in families of children classed as delinquent is a special problem. Frequently it happens that a so-called delinquent boy or girl proves wholly amenable to discipline and fits perfectly into normal family life when given opportunity in a well-selected home. The placeableness of a supposed delinquent should be determined by a trained social worker after a careful study of all available facts and conditions. 12. Misguided Benevolence Dr. Hastings H. Hart says: "The ordinary principles of com- mon sense would dictate that where such large and sacred interests are involved the proposition should be considered with great care and deliberation, and that information should be sought from every available source; yet it is a common thing for institutions to be established on impulse, without the aid of expert advice."* * Hart, Hastings H.: Cottage and Congregate Institutions for Children, p. I. Russell Sage Foundation Publication. New York, Charities Publication Committee, 1910. 249 CHILD WELFARE WORK IN PENNSYLVANIA Sometimes the plans have not been made upon impulse, but are none the less hampering and injudicious if they are not flexible enough to meet the needs of advancing civilization. Pennsylvania institutions show many examples of unwise eflForts to aid unfortunate children by the erection or endowment of homes to be occupied by a certain limited class. Without the least criticism of the intentions of such donors, a few examples may be given of such restrictions in otherwise magnificent benevolence. Girard College, which has a long and in the main excellent record of work done for orphan boys of Pennsylvania, is the most notable example. This institution, the wealthiest orphanage in the world, possessed in 191 1 assets amounting to $34,000,000. As there is a continued and rapid increase in the value of its prop- erties and endowment, it is probable that now (February, 191 5) the assets are about $38,000,000. These almost unlimited poten- tialities for practical beneficence, by the terms of the will of Stephen Girard, are confined to "poor white male orphans, between the ages of six and ten years." A court decision (Soohan vs. City, 33 Pa. State Reports, p. 9) by a liberal interpretation of the term "orphan" as used in this will, makes it "a fatherless child," so as to include both full orphans and boys with living mothers. Never- theless, the generous donor's restriction has greatly limited the work of the institution. The Thomson School for Girls, also of Philadelphia, has total assets amounting to nearly $2,000,000. The year of our study this strong organization devoted its entire benevolent activ- ity to 24 children because by the terms of the will the privileges of the school are only for the daughters of men who have been killed while in the discharge of their duties in the service of the Pennsyl- vania Railroad Company and its affiliated lines. Girls between four and ten years of age are preferred, but applications in behalf of older girls "will be received and considered by the board of trustees as vacancies may exist." The restrictions so imposed evidently greatly limit the possible good of this great endowment. Other existing institutions are also striking examples of unwisely limited benefactions. This sketch would be seriously incomplete did it not also mention two bequests of evidently 250 GENERAL SUGGESTIONS AND RECOMMENDATIONS altruistic character, founding and endowing new institutions, but narrowly limiting the beneficiaries they are to serve. The Carson College for Orphan Girls was established by the will of the late Robert N. Carson of Philadelphia. Of his large estate, after paying all other bequests, a residue amounting to about $5,000,000 was devoted to the above named institution. By the terms of the will there is set apart "not less than Si, 000,000 to be used, applied and expended in the erection of buildings for said college." The will locates the college on a tract of 100 acres, value $1 ,000,000, close to Chestnut Hill, Philadelphia. The remain- ing $3,000,000 are reserved as a perpetual endowment. The residential buildings of the institution are to be of the cottage type, the capacity of each cottage limited to 25 girls. The beneficiaries are, "poor, white, healthy girls, both of whose parents shall be deceased"; none shall be admitted "under the age of six years or over the age of ten years; and they shall be discharged from the said college at the age of 18 years or earlier." The restriction admitting only full orphan white girls, healthy, and "of at least average mental capacity," between six and ten years of age, limits too narrowly the service possible under this magnificent bequest. In a letter dated February 5, 191 5, the secretary of the board of trustees mentions the hampering restrictions of the will, and says: "It may be possible to make judicial changes which will give the institution the fullest scope demanded by experience." The Ellis College for Fatherless Girls was also established by will. Charles E. Ellis of Philadelphia, who died in 1909, left an estate of about §4,000,000 to found and endow an institution for girls, modeled somewhat after Girard College for boys. The trustees of the estate purchased in 19 12 a site of 231 acres near Langhorne, Bucks County. Buildings costing $250,000 will be erected in the near future. In outlining his plan for the establishment of the institution, Mr. Ellis said in his will that it is to be "a school for the purpose of educating and maintaining white fatherless girls who shall not be at the time of their admission more than 13 years of age, until they arrive at the age of 17 years, under the condition that such school shall be nonsectarian and that the admission of students therein shall be limited to white girls who at the time of their admission are bona fide residents of the city and 251 CHILD WELFARE WORK IN PENNSYLVANIA county of Philadelphia, or of the particular county in which the said institution or school shall be located." Here are double restrictions limiting the possible beneficiaries. They must be full or half orphan white girls under thirteen years of age, and must be residents of one of the two designated counties of Pennsylvania. The college is to be "a public charity, and no one except the officers and employes, and the trustees as such, shall receive compensation for their services." It is an unquestionable fact that small orphan girls are already well provided for, and that there is less need of new institutions for them than for any other class. Other examples might be given, but are not needed. We can only hope that in some way these and other funds similarly limited in their use may be released, so as to work at their full capacity for the uplift of humanity, accord- ing to the changing needs of the new era. 13. A Children's Code The statutes of Pennsylvania relating to children are numer- ous, involved, overlap each other, and in some cases are said to contradict each other. The social worker is frequently at a loss to know which law to invoke, or how to avoid conflict with workers in other welfare or legal departments. The much overworked word "chaotic" seems to apply better than any other to the unsys- tematic mass of laws now in force in Pennsylvania. The way out is by a carefully arranged children's code; that is, the codifying of all laws relating to children. Ohio has set a good example. The children's code recently adopted by that state would not fit the conditions in Pennsylvania perfectly, but a wise and able com- mission can make a clear, concise, and harmonious code for Penn- sylvania that will be a blessing to coming generations. Such a commission should be ordered by the legislature and appointed by the governor; and such a code should be carefully compiled and speedily adopted. 14. Public Charities Association A new organization to promote "efficient state charities for Pennsylvania" began its work January, 191 3, under the name of 252 I hr I'l.inl .in I'm,' Sirrri A Coiif^ru.nau- Dining Room St. Jost:i'n's Housk for Homhlhss I'.ovs, I'hiladclphia. (See lable 17, p. 202) I he Orphana.yc A ('.roup of Girls Twenty of the Boys St. Vincent's Orphan Asylum, Tacony, Philadelphia. (See p. 199) GENERAL SUGGESTIONS AND RECOMMENDATIONS the Public Charities Association. From their first annual report is quoted the following story of the origin and purposes of the organization. The organization of The Public Charities Association was the natural and inevitable outgrowth of an increasing public interest in the charitable problems of our state. For several years a feeling has been developing among citizens active in philanthropic work throughout the state that Pennsylvania's enormous annual expenditures for charities have not been justified by the actual results achieved. For years a persistent protest has been heard from medical conventions, women's club meetings, and social workers' conferences that the method of mak- ing charitable appropriations in Pennsylvania was unscientific and unjust and resulted in the neglect of the state's wards. From various and in- creasing sources the system of state appropriations to private charities has been discredited on five specific counts: (i) That it crippled our public institutions and prevented the fulfillment of our public obligations. (2) That it encouraged the development of unnecessary private charities. (3) That it discouraged private philanthropy. (4) That it confused public responsibility with private benevo- lence and hindered the development of a uniform and clear-cut s\'stem of charities. (5) That it carried our charities into politics and resulted in gross political abuses. This widespread but unorganized sentiment reached its climax at the Fourth Pennsylvania Conference of Charities and Correction at Wilkes-Barre in October, 1912. A Committee on Standards and Classi- fication in Granting State Aid reported to the Conference on the weak- nesses and incongruities of the present system of making appropriations, and declared that "appropriations from the state treasury should not be made to charities under private management until the reasonable needs of the state have been fully met and an adequate system of state insti- tutions fully developed." This report was signed by Mr. Allen T. Burns of Pittsburgh; Hon. Franklin B. McClain of Lancaster; Mr. William B. Buck of Philadelphia; Hon. Fred W. Fuller of Wilkes-Barre, and Dr. H. J. Sommer of Hollidaysburg. Mr. Bromley Wharton, a member of the Committee, was unwilling to sign the report, and Hon. Robert K. Young, though endorsing its conclusions emphatically, declined to sign 253 CHILD WELFARE WORK IN PENNSYLVANIA it on the grounds that public duties had prevented him from assisting materially in its preparation. Partly as a result of the report of this Committee, and partly as a result of a vigorous call from other sources, the Conference recommended the establishment of a State Public Charities Association to take the lead in working out a just and efficient system of charities in Pennsylvania. Messrs. William B. Buck, Riley M. Little, J. Byron Deacon and many other prominent social workers were active in making the plans for such an Association. The splendid success of the State Charities Aid Asso- ciation in New York was cited as an example of the good that could be accomplished by concerted action in the right direction. Simultaneously with the recommendation of the Conference the Committee on Municipal Charities of Philadelphia was completing its study of the public charities of that city. It had found that the chari- table responsibilities of the city were so confused with those of the state that state legislation was necessary to complement city action in working out a complete policy for local charities. Dr. Charles H. Frazier, Dr. George Woodward, Mr. George Vaux, Jr., Dr. D. J. McCarthy, and others who have been instrumental in the success of the Committee on Municipal Charities, advocated the establishment of a strong state organization to inquire into the needs of the state's charities and to stimulate and crystallize public sentiment in favor of legislation to meet these needs. At the same time prominent women in civic and philanthropic work were doing pioneer service in the launching of this important move- ment. Mrs. Louis C. Madeira, Mrs. Edward W. Biddle, Mrs. H. Gordon McCouch, Mrs. George Woodward and Mrs. Charles J. Rhodes, of Philadelphia; Mrs. Martha P. Falconer, of Darling; Mrs. Enoch Rauh, Mrs. William Thaw, Jr., and Miss Mary Flinn, of Pittsburgh, and others, early recognized the need of such an Association and helped materially in affecting its organization. At the legislative session of 191 3 the work of the Association was centered upon securing more efficient charitable legislation for Pennsylvania. Among others they secured the passage of several bills dealing with the care of dependent and delinquent children. The Association declares its ultimate aim to be "a system of state charities for Pennsylvania as effective as that in any state of the Union." 254 general suggestions and recommendations 15. Encouraging Features The most encouraging thing about the Pennsylvania situa- tion is the spirit of progress which has laid hold upon some of the executives and managers of leading agencies and institutions. They are seizing all possible means to improve the care and train- ing of their wards. They are employing many trained workers, have inaugurated good record and bookkeeping systems, make searching investigation of prospective wards, require careful physi- cal and mental examination of all actually in care, advocate gen- uine co-operation and division of effort, and are constantly enlarg- ing their social horizon. It is fairly inspiring to note what is being done by an elect few among the superintendents and managers of certain orphan- ages and homes. They are trying to work miracles by faith and a little help from the people. Most of them are burdened with old, ill-adapted plants, located in unfavorable neighborhoods, and their institutions generally handicapped by a lack of funds. Yet these workers have caught a vision of a new age, whose motto is "fair opportunities for everyone." They believe that every child should have not only a chance, but his chance — the one best and fairest for him. And they are utilizing all the resources within their reach to give their wards, whose natural sources of supply have failed, some part of nature's modicum of love and individual care. The iron is hot and the anvil is ready. Let all social toilers heave high their hammers and with strong and well-directed blows so shape the child welfare work of Pennsylvania that it shall have a future worthy of its splendid past. 255 CHAPTER XXVII STATE SUPERVISION OF CHILDREN'S INSTITUTIONS ONE thing greatly needed to aid in the improvement and standardization of all child-caring work is strictly non- sectarian and nonpartisan state supervision. It will greatly stimulate advance on all lines, and an elevation of the standard of service, if scientific and intensified supervision is given to all private child-caring institutions, Jewish, Catholic, and Protestant. It is not enough to have an agent or inspector call for an hour once a year, generally giving notice in advance of his coming so that the institution may be in trim to receive him. More frequent and lengthy visits at unexpected times, by a trained social worker vested with of authority, are a necessity of proper supervision of dependent children and the institutions. A single practical example is sufficient proof of the advan- tages of proper public supervision. The Illinois law for the super- vision of private institutions by the state board of charities* made it optional for institutions which did not receive children by com- mitment from the courts to accept or reject state supervision. After the system had been tested, several institutional boards, both Catholic and Protestant, voluntarily accepted state super- vision, finding that it would be a positive benefit to their in- stitutions. Practically all of the well-managed institutions of Illinois are now under state supervision, the quality of their work has been improved, and their methods have been standardized. The fact that they are under public supervision increases the con- fidence of contributors and of the general public in the institutions. Every group of institutions in this entire study would be greatly benefited by such visitation. To enforce the mandatory requirements of the law would not be its main purpose, but to extend the hand of friendship and to give wise counsel and co- operation. The writer has often found suggestions based on his * Now board of administration of state charities. 256 STATE SUPERVISION OF CHILDREN'S INSTITUTIONS own knowledge and experience very helpful to tried and puzzled executives who are wrestling in twilight with problems of finance and administration. The same would be true in a larger degree in the work of the non-political state visitor, selected on the basis of social and scientific training, and representing both the authority of the commonwealth and the best modern ideas and methods. All existing systems of state supervision, whether of public or private charities, have their imperfections and are properly subject to more or less of criticism. Under the searchlight of modern social knowledge, even those most recently enacted, and which may be supposed to have avoided previous mistakes, are deficient in various important respects. In fact, the only perfect systems are theoretical, and even then perfect only to their authors and advocates. However imperfect the practical application of the principle, the right and duty of governmental supervision of both public and private charities seem now to be almost universally conceded. The supervision of public charities has long been recognized as a proper governmental function, and within the last decade prac- tically all opposition to the principles upon which supervision of private charities are based has been withdrawn. There is still some bitter controversy over details of supervisory methods, but even that is dying out as social workers are drawn into closer association. At the National Conference of Charities and Correction in 1902, Hastings H. Hart, then superintendent of the Illinois Chil- dren's Home and Aid Society, laid down the four cardinal princi- ples upon which rest the right and duty of public supervision of private charities. They are as follows: 1. It is the duty of the state to follow funds appropriated from the public treasury, . . . and to see that they are eco- nomically and efficiently used. 2. It is the right and the duty of the state to supervise pri- vate charities in the exercise of its police powers, for the protection of the life and health of those who are under the care of voluntary organizations, as well as those who are employed in caring for them. 257 CHILD WELFARE WORK IN PENNSYLVANIA 3. It is the duty of the state to supervise private charities because of the helpless condition of their beneficiaries. 4. Public supervision is necessary in order to protect the benevolent public, including not only the givers, but also the institutions themselves and those who administer them.* At the same conference, the Rev. Father D. J. McMahon, general supervisor of Catholic charities of New York City, very suggestively said: "I do not think there is any private charity organization existing today that ought to exist which would fear inspection by any state board of charities. If it does fear it, then there is reason why it should have a reasonable inspection." f In the Conclusions of the White House Conference, called by President Roosevelt in 1909, occurs the following paragraph on state inspection: "The proper training of destitute children being essential to the well-being of the State, it is a sound public policy that the State through its duly authorized representatives should inspect the work of all agencies which care for dependent children, whether by institutional or by home-finding methods, and whether sup- ported by public or private funds. Such inspection should be made by trained agents, should be thorough, and the results thereof should be reported to the responsible authorities of the institution or agency concerned. The information so secured should be confidential— not to be disclosed except by competent authority."! At the National Conference of Charities and Correction in 1911, the Rev. Father Francis H. Gavisk of the Indiana State Board of Charities was chairman of the committee on state super- vision. In the course of his remarks he said, "The opposition to state supervision of private charity, once so decided, is gradually lessening, as the reasons for it are more sanely weighed. . . . That there is a growing sentiment in favor of some supervision is evident from the utterances at state conferences of many persons connected with private institutions of ♦National Conference of Charities and Corrections. Proceedings, 1902. pp. 130-132. t Ibid., p. 136. I Conference on the Care of Dependent Children. Proceedings, 1909, p. «94. 258 STATE SUPERVISION OF CHILDREN S INSTITUTIONS charit\-. They recognize the reasons for such supervision; the protection of dependents, the safeguarding of the purposes of donors, the protection of the benevolent from impostors, the pre- vention of abuses to inmates, and the encouragement of benevo- lence by throwing about it the guarantee of public authority that the wishes of the benefactors will be effectually carried out. Sev- eral states have authorized the supervision of the state over in- stitutions caring for dependents and defectives. "The success of such supervision of private charities will depend upon the spirit in which it is conducted. ... If irri- tating and mischievous, it will add to the burdens of the adminis- trators and the confusion of the institution; if kindly, tactful and wise, it will help forward the institution and encourage its admin- istrators." * These quotations represent the views of many students of this subject as to the principle of state supervision of public and private charities, and incidentally indicate some of the prob- lems involved. No set form or method of administration can be offered or recommended. Each commonwealth, having a distinct individuality, must evolve its own system of supervision suited to its special needs. In this as in all other social matters in a democrac}', it is necessary to compromise between extremes and obtain the best possible system that can win the favor of a majority. Action is almost always below the ideal. Of these facts the Pennsylvania situation in regard to state supervision of charities is an apt ex- ample. The system of visitation and inspection of charities by the state authorities centers in the board of public charities. This board was established in 1869, with full pov/er "at all times to look into and examine the condition of all charitable, reformatory or correctional institutions within the State." This was interpreted in the attorney general's report of 1890 to mean that its power "is not confined to institutions receiving State aid, but extends to all charitable institutions, whether ad- ministered by corporations or not, and without regard to the limitation of the class of persons received or relieved thereby." * National Conference of Charities and Correction. Proceedings, igii.p. 12. 259 CHILD WELFARE WORK IN PENNSYLVANIA Under the act creating the board, all charitable and correctional institutions receiving state aid were to be inspected annually. All jails and almshouses were to be inspected at least biennially. But it does not appear that private charitable institutions not receiving state aid were to be visited at any stated times or with any regu- larity. The records of almshouses and of charitable institutions receiving state aid were required to be kept in form as prescribed by the board; but so far as is known, there was and is no authority to require adequate records of other charitable institutions. In a later chapter,* sections 5 and 8 of the act creating the board of public charities, as revised by the legislature in 191 3, are quoted in full. As will be noted, there is no lack of general authority for supervision, but a failure in these and other sections to define certain essential things, if the supervision is to be both general and efficient. 1 . There is no definite or regular supervision provided for private charities other than those receiving state aid. Scores of orphanages and children's homes are either not visited at all, or only when it is convenient, or when rumors of misconduct are heard. 2. There is no definite restriction on the founding, organiz- ing, or management of private charities, whether of agency or in- stitutional character. Plans of county prisons or almshouses must be submitted to and approved by this board; but there is no such provision relating to private charitable institutions. 3. There is, as above noted, no method of compelling private charities to keep adequate and satisfactory records of their work and finance, except such as are necessary to provide material for the required reports. Their books and records must be open to the board's visitor, if one should happen to appear, but the board has no power to compel changes or improvements. 4. There is no method of licensing or of giving certificates of approval to worthy private charities, or of expressing disapproval by the refusal of such certificates. The public is left to its own resources in its effort to determine whether or not a so-called char- ity is really altruistic and worthy of support. *See Chapter XXX, Some Revised and Recent Statutes, pp. 288-290. 260 Main Building On the Playground Bftuksda CHiLUKfcN's Chkisiian HoMh, Philadelphia. (See I'ahle 14, p. 174) The Tots' Dormitory The I ots at Play Philadelphia Home for Infants, Philadelphia. (See Table i6, p. 190) STATE SUPERVISION OF CHILDREN S INSTITUTIONS 5. The direct authority of the board in rej^ard to private charities seems to end with its recommendation of certain amounts to be given in subsidies from the pubHc treasury. For known and manifest derehction, the board can doubtless appeal to the courts, but appears to have no special initiative other than to file com- plaints. As another has plainly put it: "The board of public char- ities has merely the power to investigate and to advise." 6. The board is limited in its supervisional service by the lack of adequate appropriations for the employment of trained inspectors and visitors. It is a physical impossibility for the force now employed to properly cover the fields included in the sphere of authorized supervision. Naturally the required supervision is done after a fashion, but the optional part, or that not definitely to be done within stated periods, is overlooked or neglected. These and other faults in the present system of state super- vision, and which indeed are common to many of the states, have led the more advanced social workers of the commonwealth to seek improvements. Various plans have been drawn, and some were presented to the legislature of 19 13, but without action by the law-making body. New efforts are to be made to secure general and adequate supervision of charitable agencies and in- stitutions, especially those under private management, when the legislature again assembles. The California system, which gives the main part of the work to the state board of charities, but leaves a portion to the state board of control, has been epitomized by the Honorable W. A. Gates of San Francisco, former secretary of the state board of chari- ties. His outline should perhaps be called the state program for the care of dependent, delinquent, and defective children. 1. Complete supervision by the state board of charities of all institutions and agencies engaged in caring for or handling dependent children; with three children's agents working under the direction of the state board of control. 2. The preservation of family ties and the maintenance of the child in the home of its living parents or relatives unless by a judgment of court they are declared to be immoral, cruel, or unfit. 3. Temporary care of children in institutions when essential to 261 CHILD WELFARE WORK IN PENNSYLVANIA tide over an emergency or re-establish a broken home; with state aid given on a per capita basis. 4. The placing in approved family homes of all children whose natural home for any cause has failed and can not be restored. 5. By moral and legal suasion compelling all responsible parents to meet their parental obligations. 6. Adequate aid for all dependent children, and such supervision as will secure to them the care, education, and training which is the natural birthright of every child. 7. A license or certificate of approval, renewable annually, to be issued after due examination to worthy agencies and institutions by the state board of charities. 8. Citizens and officials to wage a constant campaign to lessen the causes which produce dependency and delinquency. These items do not all directly belong to state supervision, but are intimately related to it. To successfully carry out the program requires the constant and intelligent aid of the state supervisory agency. This program is backed by definite legisla- tion, either in recent statutes or in old ones recently amended. The ground covered in regard to children is about the same as that now held by the Pennsylvania Board of Public Charities plus the six features noted above as lacking to make the board's supervision broadly effective. It is possible that a reinforcement of the scope and powers of the board of public charities would meet the main exigencies of Pennsylvania's child-caring work in the near future. It is conceded that the appointment of the board and of all its employes should be entirely removed from the domain of politics, and merit and fitness, rather than party pull, govern all selections for service. In Iowa and Wisconsin, and perhaps in other states, a single department called a state board of control has the management of all the state institutions for charity and correction, and in addi- tion a general supervision of all private charitable agencies and institutions. These boards have field agents whose duties are to visit the agencies and institutions at irregular and unexpected times, take note of their equipment, buildings, and methods of work, and obtain statistical reports of finance and inmates or de- pendents handled. So far as can be ascertained the Pennsylvania 262 STATE SUPERVISION OF CHILDREN S INSTITUTIONS social workers are not inclined to accept this plan as a satisfactory one for the state. Without entering upon the question of man- agement of state institutions by such a board, which seems to be successful in the states named and may be desirable elsewhere, the fact that supervision of private institutions is an incidental matter, a side issue, to a board whose main sphere is management, is sufficient in the minds of many to condemn the plan. Among certain Pennsylvania social workers in charities re- lated to children, there is apparently a desire for a state department of children's charities. This, as they have outlined the plan, is intended to be a strong central agency, reinforced by certain financial reforms and statutory requirements. The plan may briefly be outlined as follows: 1. A state agency, or department, perhaps called the board fo children's guardians. This board should possess large and well-defined powers in relation to all public and private agencies and institutions for the care of dependent, delinquent, and defective children. It should be headed by an able commissioner or executive secretary, with an adequate force of trained agents at command. 2. This board would have authority to receive children from any part of the state, and to distribute them among agencies and institu- tions, public and private, or to place such as are suitable directly in private family homes; and would have direct and definite supervision over all agencies and institutions, public or private, within the state, caring for dependent, delinquent, or defective children. 3. The board might or might not have at its option, and subject to the appropriation of funds by the legislature, one or more receiving homes for the temporary care and medical and psychological study of children, pending their location in institutions for more permanent care, or their placement in approved private family homes. 4. All courts and poor law officials would be required to place their dependent, delinquent, or defective children requiring care, tem- porary or permanent, either with the agents of this department or with agencies and institutions it had approved. 5. All agencies and institutions desiring to care for children of any of these classes, would be required to make application to this board, which would have authority to issue certificates of approval annually to such as met its requirements. To do such work without a board certi- ficate would be punishable as a misdemeanor. 6. All public funds, state, county, or city, intended for the relief of 263 CHILD WELFARE WORK IN PENNSYLVANIA needy children of these classes, whether they are in the care of the agencies or institutions, would be distributed strictly upon a per capita basis for actual service rendered. 7. The actual dependency of all children of these classes, for whom aid was asked from funds produced by taxation, would be offi- cially certified by a proper public officer, either a poor law official or some one connected with the courts; and public funds would be appro- priated only to such as were so listed. It is believed by many that such a separation of children's charities from the other charities of the state, and the creation of a children's board with scope and authority as outlined, and statu- tory requirements in regard to public finance as suggested, would meet present needs better than any other plan so far proposed. Another system has found favor in other quarters and may well receive mention here. It proposes a state department for all charities, only a section of it to be devoted to work for children. The main points of this more comprehensive plan are as follows: 1. The creation by statute of a department of charities, its execu- tive to be a single commissioner, supported by an expert staff of paid deputies, and its functions, powers, and duties to be clearly and fully defined. 2. An advisory board to aid the commissioner in the establish- ment of rules and regulations for the management and supervision of the charities of the state. This board to be an unpaid body of volun- teer citizens, who will represent the best thought of informed philan- thropic people. 3. The department would have an office force and inspection staff of trained men and women, divided into two or more sections, each with its chief clerk and special agents. 4. There would be a section or division of the department, with a chief clerk, or executive secretary, and a staff of trained workers to su- pervise all public or private organizations and institutions caring for dependent, delinquent, or defective children. 3. Satisfactory methods, under the authority of new statutes, if necessary, of enforcing the orders, rules, and recommendations of the department. 6. A fiscal bureau to effect economies and establish improved and more uniform standards of business administration in the institutions. 7. Control of the indiscriminate multiplication of charities by re- 264 STATE SUPERVISION OF CHILDREN S INSTITUTIONS quiring the department's approval of all charters, and the annual licens- ing of all organized charities. 8. The appropriation of public funds to institutions not complying with the rules of the department to be forbidden. 9. Lobb\ing to be forbidden under penalty, and the department made solely responsible for the recommendation of all appropriations to charitable institutions from public funds. 10. Provision in the statute creating the department to make it absolutely non partisan and nonsectarian in its personnel, methods, and action. Adequate and satisfactory state supervision of children's charities can be accomplished in at least four ways — by enlarging and strengthening the work of the state board of charities; by put- ting the work in as a section of the official duties of a state board of control; by a board of children's guardians, separating child- caring work from other charities; and by a general department of charities, with a children's section properly manned and equipped. From these different plans surely the combined wisdom of Pennsyl- vania's social forces can evolve a satisfactory system for the state. It is not our purpose to select or dictate, but simply to urge that as soon as possible advanced ground be taken on the important matter of state supervision. 265 CHAPTER XXVI II CARE AND SEGREGATION OF THE FEEBLE-MINDED DR. MARTIN W. BARR, chief physician of the Pennsyl- vania Training School for Feeble-minded Children, tersely describes this class in these words: "The victim, the scourge, and the inevitable procreator of a decadent humanity, is the imbecile of whatever grade." * The special study and attention now being given to the mentally defective and backward classes is one of the natural inci- dents of the present remarkable social cycle. While no extended review of causes and conditions leading to imbecility can here be attempted, and only an outline of existing and proposed preventive and remedial agencies is within the space limitations of this chapter, the importance of the theme and its intimate relation to the whole subject of adequate provision for needy and neglected children, require a somewhat extended presentation of the matter. First, to be briefly considered, are the causes of/eeble-minded- ness. Dr. Barr, above quoted, declares that of 4,050 cases per- sonally investigated he found 65.4 per cent traceable to causes acting before birth, 4.6 to those acting at the time of birth, and 30 per cent to those acting after the time of birth. f In general terms, two-thirds of all imbecility are due to direct inheritance from par- ents and one-third to causes connected with accident and disease. Dr. Walter S. Cornell, neurologist to the Division of School Inspection of Philadelphia, in a pamphlet on The Feeble-Minded World, says: "Actually 95 per cent of the feeble-minded are born so because of hereditary influences or injury to the head during labor."! If we subtract 5 per cent for the latter cause, which, as * Barr, Martin W.: The Feeble-minded a Sociological Problem. The Alienist and Neurologist, Vol. XXXIV, No. 3, August, 1913. t Barr, Martin W.: Some Notes on Causation of Mental Defect. Read at the Thirty-fourth Annual Convention of the Association of Directors of the Poor and Charities of Pennsylvania, West Chester, October 13, 1908. t Cornell, Walter S.: The Feeble-minded World, p. i. Department of Public Health and Charities. Bulletin. Philadelphia, 191 1. 266 CARE AND SEGREGATION OF THE FEEBLE-MINDED seen above, exceeds Dr. Barr's experimental results, we have an estimate of 90 per cent for prenatal parental causes. Averaging the estimates of Dr. Barr and Dr. Cornell, we have at least 80 per cent of imbecility due to parental defects or conditions; and the major part of these properly and practically preventable. Alcoholism, epilepsy, neurotic affections, a lowering of tone from indulgence in petty vices, scrofula, syphilis, attempted abortion, and lack of normal mentality, are the most prominent parental defects and conditions which cause imbecility in chil- dren. The causes operating at birth to produce feeble-mindedness are few. About 40 per cent of such cases are due to instrumental delivery; about 20 per cent to premature birth; about 20 per cent more to prolonged and difficult labor, and the rest to various accidents. The third class are those afflicted sometime after birth, and their condition is ascribed to the effects of accidents and diseases.* These facts and proportionate numbers should be generally known, and constitute the strongest possible argument for special preventive measures. Dr. Cornell, above quoted, says also: "We need laws which recognize feeble-mindedness and distinguish the condition from that of insanity. We need not only a legal definition of feeble- mindedness, but definite terms for the three principal grades of feeble-mindedness. ... At the present time such ignorance exists on the part of lawyers and even physicians that the 'expert testimony' given in lawsuits involving the subject is usually ab- surd. The lack of standard definitions adopted by the medical professions and the State adds to the chaos by making our judges not only medically ignorant, but helpless." f The need of accepted definitions and of a clear classifica- tion of the grades of mental defectives is especially felt by social workers. Therefore, it seems best to present here some definitions and a classification, drawn from the declarations of experts but purposely brief and untechnical. In Dr. A. F. Tredgold's recent work on Mental Deficiency is this definition of amentia or feeble-mindedness: " It is a state of * Barr, op. cit.p. 3. t Cornell, Walter S.: Public Provision for the Feeble-minded, p. 2. De- partment of Public Health and Charities. Bulletin. Philadelphia, 1911. 267 CHILD WELFARE WORK IN PENNSYLVANIA mental defect from birth, or from an early age, due to incomplete cerebral development, in consequence of which a person affected is unable to perform his duties as a member of society in the posi- tion in life to which he was born."* Another definition, formulated from the writings of Dr. Walter S. Cornell of Philadelphia, has the advantage of terseness, brevity, and clearness. " Feeble-mindedness may be defined as original lack of nor- mal mental capacity." Then, to explain the expression, he says: " By 'original' is meant before the end of the child period or about the twelfth year, although actually 95 per cent of. the feeble- minded are born so because of hereditary influences, or injury to the head during labor. By 'normal capacity' is meant approxi- mately the mental capacity of an 1 1 or 12 year old person." f The feeble-minded are usually classified into two groups, the degenerates and the accidental cases. Dr. Walter S. Cornell says: "Probably over one-half of all the feeble-minded, and cer- tainly three-fourths of all those found as State charges in our public institutions, are degenerates. They represent the running down of the human stock, and the poorly formed brain is paralleled by numerous defects of other organs of the body."| There seems to be no general rule for the classification of mental defectives according to the variation of cases from normal conditions. Yet as schools for the feeble-minded have multiplied, and their experience has increased, "individuals of similar apti- tudes have been massed, separating the trainable from the un- trainable, until a clear-cut grouping according to ability and with corresponding occupation has been formed." Taking the classification used by the English Parliamentary Commission in 1908 as a basis, and using the systems of Dr. Barr of Elwyn, Dr. Cornell of Philadelphia, and of Dr. Goddard of Vineland, New Jersey, to some extent, the following scheme is suggested as comprehensible to the layman and probably unob- jectionable to the expert: § * Report of the Commission on Segregation, Care and Treatment of Feeble- minded and Epileptic Persons in Pennsylvania, 19 13, p. 34. t Cornell, Walter S.: The Feeble-minded World, op. cit., p. i. J Ibid., p. 2. § Report of the Commission, op. cit., p. 36, gives a similar scheme, but less in detail. 268 CARE AND SEGREGATION OF THE FEEBLE-MINDED 1. Idiots. Those of the lowest class of mental defectives are termed idiots. These require asylum care, are very slightly im- provable, and none ever exceed the mental capacity of the aver- age child of about two years. 2. Idio-lmbeciles. Those of the next grade are called idio- imbeciles. They also require asylum care, are more improvable, in a limited way can be trained to assist others, and in mental capacity are equal to the average child of from three to five years. 3. Imbeciles. Those of the third grade are generally called imbeciles. They require custodial life and perpetual guardianship, are morall)' deficient, can be trained in some manual and industrial occupations, are often plotters of mischief with a genius for evil, and in mental capacity are equal to the average child of from six to nine years. 4. Morons. Those of the highest class of the constitutionally mentally defective recently have been called morons. They require long apprenticeship and colony life under protection, are trainable in the manual arts and many mental acquirements, lack mainly in will, balance, and judgment, and in mental capacity grade with the average child from ten to twelve years old. 5. Dullards. Another class, not distinctly defined, is that of the backward or mentally feeble. These are sometimes wrongfully included with the morons, from whom it is often difficult to distin- guish them. But morons are constitutionally defective and can never become normal in mentality. Dullards, however, are normal in their mental powers and processes, which have been enfeebled by disease or retarded by lack of opportunity. They require special training to develop their latent powers, and usually medical attention, scien- tific diet, and improved environment. The special schools for the backward in the principal cities are established partly to meet their needs, and partly to define and give adequate attention to the morons.* It will be seen that experts in the treatment of the feeble- minded require asylums and custodial care for all classes except the backward children. It is probable that most of those in the *See classification in Barr, Martin W.: The Feeble-minded a Sociological Problem, op. cit., p. 6, to which our classification closely conforms. 269 CHILD WELFARE WORK IN PENNSYLVANIA dullard class v/ould be benefited by care and training for months, perhaps even years, in special institutions. In many cases de- fective home life is the main cause of the backwardness. But the problems of adequate provision for the constitutionally deficient are so great, and their need so pressing, that it is scarcely worth while now to plan for more than a legitimate extension of schools for the backward to other communities. Defectives of the moron type are often capable of earning a living under favorable circumstances, especially after definite training. But owing to their mental defects, they are not able to compete on equal terms with normal associates, nor can they manage wages or property with ordinary prudence. A few exhibit a one-sided development, showing great ability in some special field, or aptitude for acquiring certain accomplishments. The delinquent feeble-minded mostly come from this group, which is described as not so much immoral or criminal as unmoral — incap- able of appreciating moral distinctions. The feeble-minded girl of child-bearing age, to whom so much attention is now being directed by social workers, is often of the moron class. In all of them mental development is arrested, the childlike type of mind continues through life, and custodial care, or at least careful guardianship, is a necessity for both their own welfare and the safety of society. The Pennsylvania situation in regard to the care and seg- regation of the feeble-minded has many interesting features. To some of these let us now address ourselves. In 191 1, in response to a joint resolution of the legislature, Governor John K. Tener appointed a commission consisting of the state commissioner of health, the director of health and charities of Philadelphia, and the members of the lunacy commission of the board of public charities, to "take into consideration the number and status of the feeble-minded and epileptic persons in the com- monwealth, and the increase of such persons, and to report to the General Assembly at its next session a plan or plans for the segre- gation, care and treatment of such defectives." * The report of this commission as made to the legislature in 1913 presents many carefully collected facts and some suggestive *Report of the Commission, op. cit., p. 4. 270 CARE AND SEGREGATION OF THE FEEBLE-MINDED conclusions. The commission first defined the term " feeble- minded'" b\- declaring amentia or feeble-mindedness "every form of mental defect except insanity,"* and upon this basis made its study of the Pennsylvania situation. From various statistics covering pages 9 to 23 of the report of the commission, the following table is made up, showing the numbers of the feeble-minded in Pensylvania now receiving in- stitutional care. TABLE N. — FEEBLE-MINDED PERSONS IN PENNSYLVANIA INSTITUTIONS, I913 Capacity Idiotic inmates Feeble-minded inmates Institution Under Over Total 16 years 16 years Appropriate institutions Polk 1,500 211 304 853 1.368 Spring City SCO 284 51 VI Elwyn 1 , 1 00 57 ■77 594 828 Total 3.100 268 765 1,498 2,531 Other institutions Almshouses 56 II 640 707 County care hospitals 74 18 624 716 Glen .Mills Schools 67 63 130 House of the Good Shep- herd I 3« 32 Jails and prisons 42 42 State Hospitals for I nsane 58 17 1,071 1,146 Western Pennsylvania In- stitute for Deaf and Dumb 9 I ID Total 188 123 2,472 2.783 Grand total 456 888 3.970 5.314 Therefore, at the time of the study by the commission there were a total of 5,314 idiots and other feeble-minded persons in *Report of the Commission, op. cit., p. 37. 19 271 CHILD WELFARE WORK IN PENNSYLVANIA Pennsylvania receiving institutional care, less than 50 per cent of whom were in appropriate institutions. It is perhaps needless to say that no one approves of the care of the feeble-minded in institutions for the delinquent, or even in the almshouses or ordinary hospitals. They are essentially chil- dren who can never come to mental maturity; they are not blame- worthy, but objects of pity and sympathy; therefore they should have care and training of kinds adapted to their condition and their several needs. The commission also secured data as to the numbers of epi- leptics in the state. It found 75 in the Epileptic Hospital at Oak- bourne; 68 in the Passavant Memorial Home at Rochester; 222 in the institution at Polk; 1 13 at Spring City; 246 at Elwyn; 661 in the State Hospital for the Insane; 482 in the county care hos- pitals; and 145 in other institutions. In all a total of 2,012 epilep- tics were receiving institutional care; but as many of them are also feeble-minded, and already had been included in the statistics for that class, all of this number can not be added to the 5,314 defectives previously noted. In round numbers this commission reports about 7,000 feeble-minded and epileptic persons now receiving institutional care, only about 3,000 of whom are in appropriate institutions. The commission also found on the waiting lists of the three principal institutions, at Polk, Spring City, and Elwyn, a total of approximately 1,000 who could not now be received for lack of room. Efforts were made to ascertain the numbers and locations of other unfortunates of these classes by correspondence with school superintendents and county medical societies; but such in- quiry was barren of results. Turning now to general estimates, based upon studies in Pennsylvania and in other states and countries, the commission embodied in its report on defectives three suggestions as to num- bers. In the city of Philadelphia there were in 191 2 a total of 187,405 children of school age. Of these, 1,600 were in the special classes for backward children. These classes include the truant and the incorrigible as well as the backward, but all are regarded as being mentally defective in a greater or less degree. Now, if 272 CARE AND SEGREGATION OF THE FEEBLE-MINDED the same ratio were carried out we would have out of the 1,448,- 000 school children of the state, an aggregate of 12,363 who should be in special schools or classes for the backward. Another line of investigation gave to the commission con- siderable evidence that among children between six and sixteen years in the state, an average of 2 per cent vv'ere feeble-minded. If so, of the 1,448,000 school children, no less than 28,960 are more or less mentally deficient. The morons are in some respects the most difficult and the most dangerous, as well as the most important class of mental defectives. In regard to them the commission says: "The exact number of the higher class of the moron type can not be computed, it may be that there are 18,000 at large in Pennsylvania, or there may be 15,000, or only 10,000; but the number is probably much greater than those who are now reported as receiving institutional care. . . . If all backward children, psychopathic personal- ities, cranks, and degenerates are to be included in the group of feeble-minded, the aggregates in Pennsylvania may be larger than the highest estimate mentioned." * There is an inclination throughout the country to accept one in every 300 as about the ratio of feeble-minded persons to the general population. The census of 1910 gave to Pennsylvania a population of 7,665,1 11. On this basis there are within the state about 25,550 feeble-minded persons of all ages and classes. Of these it is conservative to estimate that four-fifths, or in round numbers 20,000, should have custodial care, and the higher classes of them special training. The special provision for these in appropriate institutions is in round numbers 3,100. There is to be an enlargement of the institution at Spring City of perhaps 300 to 500 within the next few years. The city of Philadelphia is building an institution for imbeciles and morons at Byberry, and the capacity will be 500. The legislature of 1913 established the Village for Feeble-Minded Women; but as only $40,000 were appropriated for preliminary work, and funds for the erection of cottages must be appropriated by the next legislature, the possible capacity is too remote to be added. Proposed additions at Elwyn should not be counted until *Report of the Commission, op. cit., pp. 40-42. 273 CHILD WELFARE WORK IN PENNSYLVANIA erected. Thus there is now, or will be within a year or two, defi- nite and appropriate provision for 4,000 of the feeble-minded, when there are 20,000 who should have custodial care. All social workers will heartily agree with a quotation ap- provingly made by the commission from Thomas Holmes, secre- tary of the Howard Association: " Provision should be made by competent authority for all of the feeble-minded, and especially for the women of child- bearing age who are mentally defective. As there does not seem to be any other constituted authority of sufficient power and means to undertake this work, it is clearly a function which can be and should be assumed by the State." * What will it cost? An immense sum in the aggregate; but it is a work of tremendous importance, both to the present and future generations. As was shown, there is immediate provision for only 4,000 of the feeble-minded and 20,000 need institutional care. Divide the estimate, to be on the safe side, and say that there are 10,000 persons requiring it. Drop another 2,000 to be absolutely within conservative limits; and duty to society and to these unfortunates calls for new institutions with at least 4,000 more beds for the feeble-minded. The cost of plants per bed is estimated at about Si, 000, so to provide for 4,000 more will require about $4,000,000. If Pennsylvania would put, free from graft, a million a year for the next five years into institutions for the feeble- minded, it would be an investment to return high interest in the welfare of the people. As a partial state program on this important matter, the following items are suggested: 1. Enlarge and extend the system of medical inspection in schools and the registration of imbeciles. 2. Increase the number and enlarge the capacity of classes and schools for morons and backward children. 3. Give closer and more systematic supervision to factories, stores, and lodging houses, in the special interest of the endangered girl who may be mentally on the borderline of defectiveness. 4. Seek the coordination of all charity organizations, espe- *Report of the Commission, op. cit., p. 45. 274 CARE AND SEGREGATION OF THE FEEBLE-MINDED cially those caring for children, so as to form a state-wide agency to detect feeble-mindedness and protect all such unfortunates. 5. Carefully study the statutes and experiences of other states in regard to the sterilization or asexualization of certain classes before taking action. 6. In modernizing existing institutions or erecting new ones, the old congregate types should be decried, and the cottage and group type advocated. 7. Earnest and systematic efforts should be continued to ob- tain adequate and appropriate institutional provision for all classes of the feeble-minded. The urgency of the need for the seg- regation of the feeble-minded women of child-bearing age, of whom there are probably 7,000 in the state, should be made prom- inent, even though an institution has been ordered and probably will materialize within the next five years. 275 CHAPTER XXIX LAW OF 1913 FOR MOTHERS' ASSISTANCE IN the chapter on Revised and Recent Statutes will be found the essential features of the new law on Mothers' Assistance, commonly called Mothers' Pensions. Several things have con- spired to delay its active operation. Although signed by the governor in April, 191 3, it could only become effective in counties by favorable county action, for participation in state appropriations was dependent upon the agreement of the county to provide an amount equal to the state aid given for the assistance or pension funds. After such agreement, it was necessary to select and secure the governor's appointment of the five or seven women to act as trustees, provide a county headquarters, and appoint an investiga- tor and perhaps other workers. There also has been more or less of local opposition to the new law on various grounds. One leading social worker of Philadelphia has put his objec- tions to the law into such concrete form that an outline of them may well be given, for later reference, when the operation of the statute has proved or disproved their wisdom. 1. The popular agitation for the bill, under the name of "Mothers' Pensions," has been misleading and will eventually result in great harm. It is a misuse of the word "pension" and is particularly unsound when it creates the idea that mothers should be compensated for the rear- ing of their children. 2. The act itself is poorly drawn. Men who were endeavoring to catch popular favor for political purposes imitated the legislation of other states without having adequate knowledge of the problem with which they were attempting to deal. 3. A definite and serious fault is its lack of provision for the super- vision and guidance of mothers receiving the assistance. 4. The provision for administrative expense is absurdly low for the large cities. In Philadelphia County there will probably be at least 1,500 applications a year, and for equipment and administrative purposes the 276 LAW OF 1913 FOR MOTHERS ASSISTANCE law allows only $3,500. To do the necessary work on that sum is im- possible. 5. The amount of money allotted for administrative purposes being so small, the board of trustees will be unable to secure that expert trained service without which the public funds can not be efficiently administered. Poor administration and unfair investigation will inevitably result in a short time in great popular disapproval. Some of the problems under consideration are well shown by the following extract from a letter written by Virginia M. P. McCouch, chairman of the trustees of the Mothers' Assistance Fund of Philadelphia County. As you will see, the Bill gives to the Trustees great powers of dis- cretion; and one of the greatest problems before us is that of the deserted wife and mother. What period should elapse before aid should begin? And what efforts should be made to locate the recalcitrant husband? We hope to co-operate with the newly established municipal court, but our work and plans are still tentative. The attitude of the Trustees towards the Bill is expressed by a question mark. We hope for good results, but know nothing as yet. This letter was written in March, 19 14. If the attitude of the trustees themselves was then expressed by a question mark, and social workers were making statements like the one quoted above, it will be best to add no special comments or suggestions of our own. As one correspondent puts the matter: "The Act is now a law of the commonwealth. We wish to see the experi- ment tried under the most favorable auspices. While we do not believe the law is a good one, we do hope that its administration may be satisfactory. " At the close of 19 14 there were 14 counties organized under the law. Thirteen of these were named by the Honorable A. W. Powell, auditor general of the state, in a letter dated December 23, 1 9 14; and later information stated that Blair County had newly organized. The counties organized are Adams, .Allegheny, Beaver, Blair, Clearfield, Clinton, Columbia, Fayette, Luzerne, McKean, Philadelphia, Potter, Schuylkill, and Westmoreland. More than a year and a half after the enactment of the law 53 counties were still unorganized. Of the organized 14, a part had but recently taken advantage of the law; others had but a few 277 CHILD WELFARE WORK IN PENNSYLVANIA months of experience under its provisions, and real reports were available from only two— Allegheny and Philadelphia counties. From the report of the trustees of the Mothers' Assistance Fund of Allegheny County for the year 1914, the following inter- esting extracts are taken: The applications have indeed been numerous. The impression that any widowed mother was eligible for a "pension," regardless of any real need of public assistance, was a general belief of the public, and hun- dreds of applications were received in the first few days. The total num- ber of applications to date is 1,663. A ruling to only consider the families of aliens when the father had become a citizen, or had declared his intention of so doing, met with popu- lar approval. Another ruling was to consider only widowed mothers for treatment, and to refer others, if necessary, to logical agencies. There is a difference of opinion as to whether indigent mothers, other than those wid- owed or abandoned, were to be included in the law. The number of families actually aided during the year is 105, repre- senting 409 children. The funds appropriated by the county and state have been inadequate, especially the amount allowed for administrative purposes ($2,400). A larger sum is asked for administration and inves- tigation during the coming year. From the report of the trustees of the Mothers' Assistance Fund of Philadelphia County for the year 1914, a number of interesting paragraphs are extracted. The report, which is here somewhat abbreviated, includes a description and defense of the plan, and various recommendations for the improvement of the system. The legislature of Pennsylvania in the Act of April 29, 191 3, recog- nized for the first time as a distinct group to be the subject of social legis- lation, mothers requiring aid in the task of supporting families of young children. It had previously recognized "dependent, delinquent, incorri- gible, and neglected children," regarded as individuals, by establishing the juvenile court, March 21, 1901. The Mothers' Assistance Act has been in operation in this county only since February, 1914, and is in an experimental stage. There have been many applications from women ineligible under the terms of the law. But the appropriation has already proven too small to provide for large numbers who are eligible. The system of Mothers' Assistance rests upon the theory that a 278 LAW OF 1013 FOR MOTHERS ASSISTANCE competent child trainer is of greater value to the state than a woman wage earner handicapped by the care of young children; and provides a state- wide system to prevent the disruption or deterioration of widows' families because of poverty. One year's experience seems to show decided social and educational advantages. The state has established a certain standard of child welfare by laws compelling school attendance and regulating child labor. The poverty stricken widowed mother feels only the burden and not the ad- vantages of these laws. The same woman, assured of adequate assist- ance, has no reason to evade the laws made for the benefit of her children; and by this assistance is helped to better citizenship. The requirement of monthly reports from the County Boards of Trustees to the Auditor General, implies a supervision which is of great advantage to the families. A qualified agent visiting an assisted family every month, acts as an interpreter of and guide to the resources of the city in regard to health, recreation, education, employment, etc., and thus aids in the development of the family life. The aim of the trustees is to enable the mothers to give their chil- dren proper care. They are convinced that investigation and super- vision can not be too thorough; otherwise instead of helping the worthy mother to bring up useful citizens, a class of paupers is created. The family is under supervision not because of delinquency, but in order to learn better methods by gradually raising standards of skill in house management and the training of children. The mother who has lost her wage earner and partner in the rearing of the family is to receive from the state, in the place of the father, aid in money and aid in wise administration of that money for the children's support. In many cases this plan offers but a lame substitute for the father who has been taken from the family group; in some cases the situation of the mother and the hope for the future of the children are much better than they were under the care of the natural breadwinner. The mother has a dignified status among other citizens and is saved the humiliation of being classed with delinquents and paupers. She is secure from the danger that poverty will become pauperism, and is not subjected to the annoyance and hardships of court processes simply be- cause she is a widow in need of money for her children's upkeep. Some persons hold that, except to special classes, such as the in- sane or epileptic, all relief to the indigent should come from private sources rather than from public funds; and that the Mothers' Assistance Fund is wrong as a public policy because it encourages a new class of dependents. But this system may well be considered as primarily a part of the educa- 279 CHILD WELFARE WORK IN PENNSYLVANIA tional policy of the state, in that its aim is to find a method for the training of citizens when the normal family group is broken by the loss of a father. The disadvantages of the present law relate to details, such as the definition of eligible applicants, rules and methods of standardization, and some points of administration; and do not inhere in the principle of state assistance to widowed mothers during the school years of their chil- dren. The money given is not an alms, in the usual sense of this word, but the best and most economical investment the state can make to secure satisfactory returns in citizenship under the conditions present in the family so aided. The Philadelphia Trustees feel that criticisms in regard to delays in investigating applications are not warranted under present circum- stances. More rapid work is physically impossible with the small force now available. The allowance of ^3,000 a year for office expenses and salaries permits the regular employment of only two paid workers. But for much personal work by the Trustees themselves, and the aid of some 15 volunteer investigators, the work would have been even more retarded. As it now stands nearly 800 applications await investigation, clearly re- quiring additional appropriations for administrative purposes. The Mothers' Assistance Fund Trustees in Philadelphia County feel that the system would be improved by the following changes and additions: 1. A controlling and standardizing body is needed, acting for the state, to interpret the law and establish uniform rules of procedure state-wide in their application. They believe that this can be accom- plished through the State Department of Education, and suggest adding to the duties of the Department the task of, (a) formulat- ing rules for the guidance of county boards of trustees; (b) receiving reports from trustees on the social and educational conditions in as- sisted families; (c) supervising, through the staff of the State Com- missioner of Education, the carrying out of the rules in the various counties taking advantage of the law. 2. The above plan for supervision would require that the copy of the record of the family be forwarded to the State Commissioner of Education, instead of filing it with the Juvenile or Orphans' Courts. 3. The law should include as persons to be reached, (a) women whose husbands are dead or confined in hospitals for the insane; (b) children under fourteen years of age; (c) children between four- teen and sixteen years of age, if such are unable to earn wages, or are at school with satisfactory record of attendance and scholarship. 280 LAW OH 1913 FOR MOTHERS ASSISTANCE Women whoso husbands have deserted should not be included, for the reason that the solution of the problem of the deserting husband lies not in the state's supporting the abandoned family, but in its de- veloping effective machinery to bring the man back to his responsi- bility. 4. To insure stability in the work of county boards, the governor should appoint the trustees for terms expiring at different dates, as three to serve for one year, and two or four to serve for two or four years. After that the appointments to be made annually as the terms expire. 5. The administration fund in each county should be increased but not so as to exceed 10 per cent of the entire apportionment in such counties. 6. The maximum sum available in Philadelphia county under the appropriation of 191 3, for two years, from both sources, state and county, was $81,334, including $6,500 for equipment and adminis- tration. This amount is now (January 20, 191 5) providing assistance for 131 mothers. Probably the number of families in this county which should be so aided will approximate 500. To provide for grants and supervision for such a number would call for an appor- tionment of four times as much money as at present, or $326,000 to Philadelphia county for the next biennial period." Although it has been suggested that juvenile court judges be authorized to make orders directly upon these funds, the trus- tees apparently feel that because the work is experimental, and its future depends on unity of administration, they can not work out an adequate or safe method of assistance unless this kind of state aid is handled by one agency. The following condensation of some of the principal statistics of this work for Allegheny and Philadelphia counties, the most populous in the state, will be of interest. The figures are taken from their annual reports pre- pared for the legislatui'e of 1915. 281 CHILD WELFARE WORK IN PENNSYLVANIA TABLE O. — WORK UNDER MOTHERS' ASSISTANCE ACT IN ALLE- GHENY COUNTY AND PHILADELPHIA COUNTY DURING I914 Allegheny County Philadelphia County Total applications for aid Applications not yet investigated Applications investigated Investigated applications not recommended Families granted aid Children in families aided Average number children in families aided Religious affiliation of families Jewish Protestant Catholic Average assistance per family per month Administrative fund for year Maximum possible appropriation for year 1.663 1.358 993 788 670 570 565 442 105 128 409 551 3-9 4 7 5 46 38 52 85 $20 $24 $2,400 $3,000 $26,500 $40,500 282 CHAPTER XXX SOME REVISED AND RECENT STATUTES A NUMBER of Pennsylvania laws relating to children re- centl}' have been under review, and a few new ones of great importance were enacted by the legislature of 1913. Some of these which have to do with the classes of children considered in this volume are here noted. I. Detention Homes of Juvenile Courts The act of 1903 making mandatory provision for the special custody of children awaiting trial or hearing in the courts of the various counties, was amended by Act No. 420 of the General Assembly of 191 3, and approved by Governor John K. Tener July 21, 19 1 3. In its amended form the law reads as follows: It shall be the duty of the board of county commissioners, in each county of the Commonwealth, to provide, furnish and heat, within the county, a separate room, or rooms, or a suitable building, to be used exclusively for the confinement of any and all children, under the age of sixteen years, who may be in custody awaiting trial or hearing in the courts of the county, and to provide for the maintenance and care of such children while in custody. 2. Children on Probation Another of the acts of 1903, amended in 191 1, was still further amended in 191 3 in Act No. 469. It was an act "defining the powers of the several courts of quarter sessions . . . with reference to the care, treatment and control of dependent, neg- lected, incorrigible and delinquent children, under the age of six- teen years." The important amendment of this act is that of Section 6, which includes the latest legislative expression on proba- tion, having been approved by Governor John K. Tener July 25, 1913. The section reads as follows: 283 CHILD WELFARE WORK IN PENNSYLVANIA In the case of a delinquent, dependent, neglected or incorrigible child, the court may continue the hearing from time to time, and may commit the child to the care and guardianship of a probation officer, duly appointed by the court, and may allow said child to remain in its own home, subject to the visitation of the probation officer, — such child to report to the probation officer as often as may be required, and sub- ject to be returned to the court for further proceedings whenever such action may appear to be necessary,— or the court may commit the child to the care and guardianship of the probation officer, to be placed in a suitable family home, subject to the supervision of such probation officer; or it may authorize the said probation officer to board out the said child in some suitable family home, in case provision is made by voluntary contribution, or otherwise, for the payment of the board of such child, or may direct that the payment of the board of such child be made by the proper county, until a suitable provision may be made for the child in a home without such payment; or the court may com- mit the child to a suitable institution for the care of delinquent children, or to any society, duly incorporated, having for one of its objects the protection of dependent, neglected, or delinquent children, and may direct that the payment of the board of such child shall be made by the proper county. 3. Responsibility for Maintenance To define who shall be responsible for the maintenance of neglected or dependent children placed by the courts in the care and custody of any parties or association, the same legislature passed the following, known as Act No. 122, and approved by Governor John K. Tener May 8, 191 3. Where any neglected or dependent child is or shall be committed to the care and custody of any association, society, person, or family, by any court, and an order for the payment of the maintenance of the child and the expense of such commitment is made upon the proper county, in pursuance of the laws of this Commonwealth, the county from which such child has been committed to the said association, society, person, or family, shall be liable to the said association, society, person, or family for the maintenance of the said child and all expenses connected therewith: Provided, That the county shall in all cases have full recourse to recover all expenses incurred in behalf of said child so committed from the parties or persons or poor district properly charged therewith under the laws of this Commonwealth. 284 some revised and recent statutes 4. Mothers' Assistance An act of great importance is that passed b\- the legislature of 1913, to provide monthly payments "to indigent, widowed, or abandoned mothers, for partial support of their children in their own homes." The " Mothers' Pension Law," as it is commonly known, was Act No. 80, approved by Governor John K. Tener April 29, 19 1 3. The first section states that the chief executive "shall appoint not less than five and not more than seven women, residents of each county desiring to avail itself of the provisions of this Act, to act as trustees." The second section places the authority for the administration of the act "solely in the hands of the trustees appointed annually by the Governor," who are to serve without pay; arranges for investigators in every county and defines the maximum expense; and makes a preliminary appro- priation of $200,000 from state funds to cover two years' work, proportionately available to the various counties, provided "an equal amount has been provided by the government of such county desiring the benefits of this Act." Sections 3 and 5 which follow are quoted in full as being the central and essential features of the law. Section 3. The trustees shall in no case recommend payment to any widow or abandoned mother until they are thoroughly satisfied that the recipient is worthy in every way, and that, in order to keep her chil- dren in her own home, a monthly payment is necessary; and then only upon satisfactory reports from a teacher in the district school, stating that the child or children of the recipient of this fund are attending school, provided they are of proper age and physically able to do so. The combined total maximum payment shall not exceed twelve dollars per month for one child, twenty dollars per month for two children, twenty-six dollars per month for three children, and five dollars per month for each additional child. These payments to continue at the will of the trustees, but not beyond the time that the law will permit a child to secure employment. Section 5. No family shall be a beneficiary under this act unless the mother has been a continuous resident of the county in which she is applying for the benefits under this act, for a period of three years. As the act left it to the decision of the counties whether or not they would avail themselves of its provisions, and after deci- 285 CHILD WELFARE WORK IN PENNSYLVANIA sion to participate an appointment by the governor of the trustees was required, the actual apphcation of the law has been delayed. In February, 1914, trustees had been appointed in only a part of the counties. The reception accorded the plan, the number of applications received and the per cent approved, and the amounts found necessary to meet the pension payments, are matters of great interest in regard to which only time will provide answers.* 5. Desertion of Families The legislature of 191 3 in Act 330, approved by the governor June 12, 191 3, increased the powers of courts in summary proceed- ings "for desertion or non-support of wives, children, or aged parents, by directing that imprisonment in such cases be at hard labor, in such institution as the court shall name, with wages pay- able to the wives, children or parents." Section i of the act, which is followed by others detailing the proceedings in the matter of bail, if obtained, and arrangement for supervision by probation officers, is as follows: Whenever in any proceedings brought against any husband or father, wherein it is charged that he has without reasonable cause sep- arated himself from his wife or children, or from both, or has neglected to maintain his wife or children; or in any proceedings where any child of full age has neglected or shall neglect to maintain his or her parents, not able to work or of sufficient ability to maintain themselves; the court having jurisdiction shall commit the defendant to imprisonment, for want of a bond, with security or otherwise; the court may order the defend- ant to be imprisoned at hard labor, under existing laws, or laws that may hereafter be passed, in such penal or reformatory institution in this Com- monwealth as the court shall direct; or the court may discharge a de- fendant upon his own recognizance, in the custody of a desertion proba- tion officer, or other person, subject to such conditions as the court may in its discretion impose. 6. Village for Feeble-minded Women To increase the provision for the care of feeble-minded per- sons, Act No. 817 was passed by the legislature and approved by *See Chapter XXIX, p. 276, for additional details in regard to Mothers' Assistance; and A Child Welfare Symposium, supplement to this volume, p. 131. Article by Rabbi Rudolph 1. Coffee on Why Pennsylvania needs a Widows' Pension Law. 286 SOME REVISED AND RECENT STATUTES the governor Jul\' 25, 1913. This act estabHshes on a suitable tract of land, to be selected "on a portion of the state forest reserves," a state village for feeble-minded women, and provides for "the commitment thereto of feeble-minded females between the ages of sixteen and forty-five years." It is to be managed by a board of nine members appointed by the governor, and the sum of $40,000 was appropriated "for the preliminary clearing, im- provement and surveys of the land selected." The first section is of especial interest as it outlines the plan and purpose of the institution. A State village for feeble-minded women, for the care of feeble- minded women between the ages of sixteen and forty-five, is hereby con- stituted and established, the ground and buildings for which are hereby directed to be selected and constructed, which village shall be governed and maintained in the manner hereinafter provided, and shall be known as the Pennsylvania Village for Feeble-Minded Women. That this institution shall be entirely and specially devoted to the reception, seg- regation, detention, care and training of feeble-minded women of child- bearing age; and shall be so planned, in the beginning and construction, as shall provide separate classification of the numerous groups em- braced under the terms "idiotic," "imbecile," or "feeble-minded." It is specifically determined that the processes of an agricultural training shall be primarily considered in the educational department; and that the employment of the inmates in the care and raising of stock, and the cultivation of fruits, vegetables, roots, et cetera, shall be made tributary to the maintenance of the institution. 7. Boards of Visitation The recognized necessity for more careful supervision of all societies, associations, and institutions caring for dependent, neg- lected, or delinquent children, led to the enactment of a law providing for county boards of visitation. Act No. 301, approved by the governor June 6, 191 3, amends a former act, and its first and principal section now reads: It shall be the duty of the court of common pleas in each county within this Commonwealth to appoint a board, consisting of six or more reputable citizens, who shall serve without compensation, to constitute a Board of Visitors, whose duty it shall be to visit, at least once a year, all institutions, societies, and associations, within the county, into whose 287 CHILD WELFARE WORK IN PENNSYLVANIA care and custody dependent, neglected, or delinquent children shall be committed under the provisions of the laws of this Commonwealth; and all charitable, reformatory, or penal institutions, and all institutions, within the county, which receive their inmates from more than one county, and are supported or managed, in whole or in part, by the Com- monwealth, or any of the officers thereof; and all institutions, within the county, which are wholly supported and managed by any city, county, borough, or poor district of the commonwealth. Such visits shall be made monthly by not less than two of the members of the board, who shall report to the board. The said Board of Visitors shall make reports to the court, from time to time, on matters pertaining to the welfare of the institutions, particularly the treatment received by the inmates. A copy of such report shall be submitted by the Board to the persons in charge of such institutions, societies, and associations. The Board shall make an annual report to the Board of Public Charities. The said Board of Visitors shall be entitled to receive, from the counties in which they shall be appointed, such sum or sums of money for actual and necessary expenses as may be approved by the board of county commissioners in their respective counties. 8. State Supervision* The duty of oificial visitation and supervision of all charita- ble, reformatory, or correctional institutions within the state is vested in the board of public charities. The act of 1869 creating the board was amended by the legislature of 191 3, and its scope and powers in these respects greatly enlarged. The fifth and eighth sections of the act, approved by Governor John K. Tener May I, 191 3, are so comprehensive on some lines as to leave little to be desired, except the still deferred increased appropriation to enable the board to carry their provisions into effect. In spite of their length, the sections are so important that they are quoted in full. Section 5. The said commissioners shall have full power either by themselves or the general agent, at all times to look into and examine the condition of all charitable, reformatory, or correctional institutions within the State, financially and otherwise; to inquire and examine into their methods of instruction, the government and management of their inmates, the official conduct of trustees, directors, and other oificers and * Chapter XXVII, p. 256, is entirely devoted to the discussion of State Supervision of Children's Institutions. 288 SOME REVISED AND RECENT STATUTES employes of the same; the condition of the buildings, grounds, and other property connected therewith, and into all other matters pertaining to their usefulness and good management; and for these purposes they shall have free access to the grounds, buildings, and all books and papers re- lating to said institutions; and all persons now or hereafter connected with the same are hereby directed and required to give such information, and afford such facilities for inspection, as the said commissioners may require; and any neglect or refusal on the part of any oflficer or person connected with such institution to comply with any of the requirements of this act shall subject the offender to a penalty of one hundred dollars ($ioo), to be sued for and collected by the general agent in the name of the board. The commissioners shall also have power to employ such experts, clerks, stenographers, and other employes of all kinds as the business of the Board of Public Charities and that of the Committee on Lunacy may require. Whenever, upon the examination of any jail, prison, penitentiary, or almshouse, any condition shall be found to exist therein which, in the opinion of said commissioners, is unlawful or detrimental to the proper maintenance, discipline, and hygienic conditions of such institution, or to the proper care, maintenance, and custody of the inmates therein, the said commissioners shall have power to make such recommendation to the warden, inspectors, trustees, sheriff, commissioners, overseers of the poor, or other officer or officers charged by law with the government of such institution, as said commissioners may deem necessary and proper to correct the said objectionable condition; and in case of the neglect, failure, or refusal of such officer or officers to comply with such recommen- dation, or in case of his or their failure to make such attempt to comply therewith as shall be satisfactory to the said commissioners, within ninety days from the date of service of said recommendation upon them, the said commissioners shall certify the facts in the case, together with their recommendation, to the district attorney of the proper county, whose duty it shall be thereupon to proceed by indictment or otherwise, to rem- edy the said objectionable condition. Section 8. It shall be the duty of all persons having charge or oversight over the poor in any city or county of this State, or in any subdivision thereof, and all persons having charge or control of county jails or prisons or work-houses and all others having charge or control over other charitable, reformatory, or correctional institutions, not now by law required to make an annual report of the condition of the same, to make report annually to the said commissioners, at such time, upon such form, and in such manner as they may prescribe, of such facts and 289 CHILD WELFARE WORK IN PENNSYLVANIA Statements concerning the same as they may require; and all charitable, reformatory, and correctional institutions now required by law to make annual reports shall hereafter make and transmit the same to the said commissioners, on or before the first day of September in each year; and all such institutions now receiving or that may hereafter desire to receive State aid shall annually give notice to said commissioners, on or before the first day in September in each year, of the amount of any application for State aid which they may propose to make, and of the several purposes to which such aid, if granted, is to be applied. Any neglect or refusal on the part of any person having charge or oversight over the poor, or on the part of any persons having charge or control over any jail, prison, work- house, or charitable, reformatory or correctional institution, to make the report required by this act, or otherwise required by law, shall subject the oflfender to a penalty of one hundred dollars ($ioo), to be sued for and collected by the General Agent in the name of the board. 9. The Sixty-Day Law In the chapter on almshouses mention is made of the so- called Sixty-Day Law. When it was enacted in 1883 this law was an advanced and progressive measure. It is now out-of-date, and should be superseded by one absolutely forbidding the care of children in almshouses and poorhouses. Sections i and 2 of the act are as follows: Section i. It shall not be lawful for the overseers or guardians or directors of the poor in the several counties, cities, boroughs and town- ships of this Commonwealth, to receive into or retain in any almshouse or 'poor-house, any child between two and sixteen years of age, for a longer time than sixty days, unless such child be an unteachable idiot, an epilep- tic or a paralytic, or otherwise so disabled or deformed as to render it incapable of labor or service. (Act of June 13, 1883.) Section 2. It shall be the duty of said overseers or other per- sons having charge of the poor, to place all pauper children who are in their charge, and who are over two years of age (with the exception named in the first section of this act) in some respectable family in this State, or in some educational institution or home for children; and one of the said officers shall visit such children, in person or by agent, not less than once every six months, and make all needful inquiries as to their treatment and welfare, and shall report thereon to the board of overseers or other officers charged with the care of such children. (Act of June 13, 1883.) 290 some revised and recent statutes 10. State Appropriations The matter of state appropriations to private institutions is a live issue throughout the state. The legal provisions hedging such action are not statutory but constitutional. The following constitutional provisions, relative to appropriation of state money to charities, are quoted from a Digest of the Laws Relating to the Board of Public Charities.* No appropriation shall be made to any charitable or educational institution not under the absolute control of the Commonwealth, other than Normal Schools established by law for the professional training of teachers for the public schools, except by a vote of two-thirds of all the members elected to each House.— Section XVII, Art. Ill, Constitution of Pennsylvania. No appropriations, except for pensions or gratuities for military services, shall be made for charitable, educational or benevolent purposes, to any person or community, nor to any denominational or sectarian in- stitution, corporation or association. — Section XVIII, Art. Ill, Constitu- tion of Pennsylvania. The General Assembly may make appropriations of money to institutions wherein the widows of soldiers are supported or assisted, or the orphans of soldiers are maintained or educated; but such appropria- tions shall be applied exclusively to the support of such widows or or- phans.— Section XIX, Art. Ill, Constitution of Pennsylvania. It is necessary that many new laws be enacted to keep the statutes abreast of the times and of the social progress of the people. In this there is danger on the one hand of rushing into legislation beyond the danger point, and on the other, of being held back by conservatives who insist on letting old laws stand for fear of making things worse. There is a golden mean in law making as in all other important matters. The right attitude of the citizen and of the legislator is that of watchful receptiveness. When convinced that a law is needed and will be for the best interests of the people, it should be worked for and passed. But the waste-basket should be used freely for half-baked projects and the ill-balanced schemes of visionary cranks. The words of President Frank Tucker of New York, at the opening of the National Conference of Charities and Correction at *Digest of the Laws Relating to the Board of Public Charities, p. 26, 291 CHILD WELFARE WORK IN PENNSYLVANIA Seattle in 191 3, are so wise and suggestive that they are here quoted as expert advice on the subject of laws and law making: "Never before in our history has such a mass of legisla- tion, most of it ill thought out and badly drafted, been offered for the benefit of the people. It is the inevitable response to the cry for Social Justice offered by the fake reformer and the in- competent legislator, and with our national tendency to search for panaceas that will stop the pain and cure the disease at once, we are storing up for ourselves economic and social diseases that will become painfully apparent when the legislative narcotic has failed to work. Let me beg of the social workers of the country never to suggest or support a legislative bill until its language has been made exact and its effects have been studied to their minutest ramifications. We are insane for the act of legislation; we are feeble-minded in failing to realize that only the broadest legislation on human relations and conduct can be enforced, and to demand that the multifarious details of human relations and conduct shall be adjusted and carried on according to individual and community character and standards." * ♦National Conference of Charities and Corrections. Proceedings, 1913, pp 11-12, 292 CHAPTER XXXI TRANSITION AND PROGRESS TO most people the present is evidently an era of transition. It is called progress because most people believe the changes necessarily mean betterment. Many changes undoubtedly are improvements, but there are sufficient exceptions to make the most progressive anxious for strong and efficient hands upon the helm of events. In the realm of social work the times are especially character- ized by revision of old methods and the invention and adoption of new ones. A single decade has revolutionized the ideas of social workers and transformed the work of many agencies and institu- tions. At present a sifting process is going on, to separate the good wheat of wise methods and efficient agencies from the worth- less chaff of transient fads and useless experiments. Dr. Walter Rauschenbusch, in Christianity and the Social Crisis, very aptly says: "Western civilization is passing through a social revolution unparalleled in history for scope and power. Its coming was inevitable. The religious, political, and intellec- tual revolutions of the past five centuries, which together created the modern world, necessarily had to culminate in an economic and social revolution such as is now upon us."* This statement is the key to many things which have taken place in the last quarter century. That the social revolution of which Dr. Rauschenbusch wrote is a fact of today, every intelli- gent social and religious worker realizes. The philosophic student of social science can mark its periodic advance like the waves upon the shore when the tide comes in. Even the ordinary citizen can not help noting the accelerating changes in social and living conditions. All over the nation immense commercial, industrial, and *Rauschenbusch, Weaker: Christianity and the Social Crisis, p. xi. New York, Macmillan, 1907. 293 CHILD WELFARE WORK IN PENNSYLVANIA political problems are struggling for solution. In the world of thought millions of minds are absorbed in social and religious questions. All issues and methods are undergoing upheaval and realignment as the social movement progresses. A combined unrest and altruism permeates all classes of modern society. Special forces, new and old, civic and personal, tangibly evident, or, like electricity, potent but invisible, surcharge and inspire the people of America. The variations through which this generation is passing make new demands and impose new duties upon each individual and every community. What the future shall bring forth depends upon the spirit in which these demands are met and these duties performed. If the people of this age are wrongly dominated, our civilization may wane and our race degenerate. The philosophy of social service is each year more fully de- fined in the expressions of leading social workers. Some of the general ideas and principles now current may well find record here as starting points for the progressive thinkers and workers of the future. 1. As now employed, the terms "social service" and "social worker" are both distinctive and indefinite. They imply direct service of some sort in behalf of the constituents or the instru- mentalities of society, but leave unexpressed the lines of effort in which social servants are engaged. Yet a fairly satisfactory defi- nition of social service is: Altruistic efforts to uplift humanity. 2. Those who are called "social workers" are presumed to seek to remedy human ills and to advance the welfare of mankind. Therefore it is only proper and consistent for all such to set a noble personal example to their fellow citizens. 3. Social workers engaged in the care of dependent, defective, or delinquent children, should realize that in measure beyond most others in their hands are threads of destiny and upon them rest sacred obligations. 4. The philosophy of social service declares that he who is in need is our neighbor, indeed our brother, regardless of "race, color, or previous condition." 5. The sense of equality is the only right basis of social 294 TRANSITION AND PROGRESS service. This does not imply equality of education, culture, or financial standing, but equality of rights as a human being. 6. The general principles of social welfare and the pressing needs of practical work both demand the largest possible measure of co-operative effort. Isolation in social service in this age means incapacitation. Neither workers nor organizations can stand alone. To attempt social work without service associates is to invite failure and waste money and effort. 7. Co-operation is said to have three stages. The first is merel>' friendly intercourse; the second is where agencies recognize differences in function and begin to refer to its proper agency work that falls within its legitimate province; the third stage is where all the agencies do things together. The first stage already has been reached by a majority of social service organizations. The second stage has been attained by a small minority, and even among them much unnecessary waste and competition yet remain. Almost everywhere the third stage is yet a dream of the future. 8. The philosophy of social service goes beyond even the third stage of co-operation, and calls for the ultimate coordination of welfare agencies and institutions into related systems. Whether the management be public or private, and the support by taxation of all the people or the generous donations of individuals, all wel- fare work will ultimately be classified according to kinds, syste- matically arranged in groups, and administered according to approved principles of efficiency and economy. 9. The third stage of co-operation, and the ultimate coordi- nation into systems, can be accomplished only by the adoption of definite state programs, in which the needs of every dependent class are given adequate consideration and existing agencies and institutions accept limited responsibilities. 10. The most influential leaders in social service declare that true philosophy now demands distinct recognition everywhere of the part religion plays in the development of humanity. Individ- uals and communities rise or fall as they yield to the sanctions and accept the influences of religion. Welfare work in civilized lands is almost wholly due to its inspiration and maintained by its moral and financial support. Lacking religion's conserving and elevating 295 CHILD WELFARE WORK IN PENNSYLVANIA power, individual or community life would degenerate and the strongest civilization speedily decay. 1 1 . Social service in the present generation increasingly de- mands the spirit and power of religion to make it effective, and this spirit and power must be the dynamics behind all social move- ments. The various religious bodies must combine in federations, or unite in nonsectarian organizations, to obtain social results. Moral and material uplift for the multitudes must come from the united efforts of those who have received both social training and spiritual power. The elevation of the masses must come from forces above them. They may be drawn upward; history records no instance of people being lifted from below. 12. All agree that it is a great thing to be engaged in the task of making this world better. Yet it is beyond question true that the influence which moves most powerfully the hearts and lives of men is one which recognizes that the life we now live is prepara- tory to another. In other words, there is no hope that can be implanted in the hearts of men that will compare with the hope of immortality. It is the duty of those engaged in social service to make physical ministrations a John the Baptist in opening hearts to receive the higher and holier spiritual service which we denominate religion. The two should be conjoined. The build- ing of character, the planting of faith, and the stimulation of hope should go hand in hand with the giving of food and shelter and the amelioration of physical ills. The principles and ideals in these 12 paragraphs indicate in some degree the spirit and purposes of the Department of Child- Helping of the Russell Sage Foundation. It is believed that advancement along these lines in this era of transition will be true progress. An eminent social worker said as he was nearing the close of life: "My highest ambition has been to forge a few links to bind our people to a better future." The Department desires to accept as its own the ambition of the dying philanthropist. This study and its concomitants are such links in a great chain of betterment now being forged to "improve social and living conditions in the United States of America." 296 TRANSITION AND PROGRESS The attitude of the Department toward all child-caring agen- cies and institutions and their wards, their workers, and their work, is that of friendliness and impartial helpfulness. The Department has no axe to grind, no personal favors to secure or dispense, and no financial interest to seek or to serve. It is wholly interested in the welfare of needy, neglected, and dependent children of all classes, and the relations of these to the welfare of society in general and of our future national life. In doing what it can to promote the welfare of all concerned, the department advocates what it deems to be the best plans, methods, and principles now extant in child-caring work. Some- times such advocacy forces it to antagonize not the persons but the work of some of its best friends. It can not always approve of the institutional conditions that come under its observation, nor of the spirit shown by institution officers or managing boards. But such disapproval must not be thought to be proof of antag- onism to any real welfare work, but the opposite. Any criticisms in connection with this study have been made in a friendly spirit and with no animus toward any individual or institution. In most cases the criticisms apply to numerous in- stitutions or to the situation as a whole. In very few instances have persons or institutions received direct adverse mention. The effort has been always to make the statements general and impersonal. Probably it is wise to greatly limit adverse state- ments, as in this rapid age they may be nullified by reforms and proven untrue before they have time to influence the progress of events. In closing this commentary on Pennsylvania child-helping institutions, the writer desires to say, for himself and for the De- partment, that there has been only the most kindly and sympa- thetic feeling for all classes of Pennsylvania child-helping agencies and institutions, both in the field work and in the still more arduous duty of arranging, combining, tabulating, and formulating this report. To the many efficient social workers and officers of the various organizations, who so readily and sometimes self-sacrific- ingly aided in the study, sincere and appreciative thanks are tendered. May the newest and best ideals and methods of serv- 297 CHILD WELFARE WORK IN PENNSYLVANIA ice spread over the state as seed from the hand of the sower; and may the richest success crown, as with a harvest, the efforts of all who serve humanity through the child-helping agencies and insti- tutions of Pennsylvania. APPENDIX APPENDIX SAMPLES OF AGENCY FORMS To stimulate the keeping of adequate records of children in agencies and institutions, facsimiles of a few sample forms are here presented. They are in actual use by agencies in Philadelphia, and in large measure are also applicable to child-caring institu- tions. Those reproduced are but part of a complete set needed to properly register the work done. Enough are here given to enable other agency or institution officials to begin a good system. They must be considered as suggestions, and not forms to be slavishly followed, for most of them would probably require some modifications to fit the needs of other organizations.* Form Page No. 1 Preliminary Family Study 302 2 Report of Medical Examiner 304 3 Child's Sheet 305 4 Special Historical and Psychological Record . . . 306 5 Agent's Report on Applicant and Home .... 308 6 Card Record of Applicant and Home 310 7 Card Record of Child and Visitation 310 8 Agent's Report of Visit to a Child 311 * It is hoped that many agencies and institutions will avail themselves of the information given in a recent publication of the Russell Sage Foundation entitled Elements of Record Keeping for Child-Helping Organizations, by Georgia G. Ralph of the Department of Child-Helping. 301 CHILDREN'S BUREAU. PHILA., PA. No.. waor> CROSS REFERENCE AT HOME: r M Su-^ F SIB.M . Fi Rooo. S„bl.. Du. Ho». ud N=,hboHx«»i Caxiau. 16 18 19 20 C„.^„ ^. Co.«,»u,». A^ci« 23 24 R.Ut..« OoiJOlllOO K„^p Add.- 26 27 23 29 30 31 32 3J 1 2 3 SUK U.«» N.tmaliud Api>lkui ApplicAU aa« Du. Form No. i. — Preliminary Family Study To be made when aid is asked for children or family 302 The Family (Conchided) Ei«Jo,™ DMUioudu) Rd»««-Cfaw. Pt>r.ia«.. Et CW.cuoi.tioc bj Numbo : Moul Dd«. PI„«aJ CW«. H.b.B P.^u. R«d she a woman of good moral character ? fs she intelligent? Does she speak English? What is her disposition ? Is she inclined to be fault- finding ? Does she control her temper ? Is she neat and orderly? Is she too neat and orderly for the comfort of her child ? Does she seem to be painstaking in her work? If she i$ the support of the family, what is her occupation ? Income, $ Has she property in her own right? . Is she a member of any church ? if so, what church ? Does she attend with reasonable regularity and take any active part in the church work ? Do she and her husband live h.ipnilv toqi-iher? Is this her first husband? Was ^he ever divorced? if so, when, where, and by whom was the divorce procured, by herself or her husband? Do you consider that she will be a good foster parent ? What reputation does the family bear in the neighborhood ? The Home— Do they own the home, or other property? If so, value, $ Is it mortgaged? tf so. amount, S No. of acres in farm or premises? .. . . No. of rooms in house? C6ndition of the house as to: — Cleanliness? Order? Comfort?... Appearance of house, bam, yard, etc Where would the child sleep ? What newspapers taken ? Character of books? Pictures, etc Give general impressions and recommendations DaU oj Investigation 191 . . (Signed). Agent, Children's Aid Society of Pennsylvania F0R.M No. 5. — Agent's Report on Applicant and Home (Concluded) A personal visit to and study of home should always precede the placing-out of any child 309 Applicant's Name in Full Nearest R. R. Station Distance and Direction from R. R. Station Board Child's Name in Full Placed Returned Free Boy Girl White Colored Protestant Catholic Jewish Date References Completed Approved by Date Date Inspected by Rejected by Date PENN3VXVANIA CHILDREN'S a;d sociExy, Philadelphia Form No. 6. — Card Record of Applicant and Hoivie To show at a glance who, when, where, what child assigned to it, etc. Child's Name m Full Name of Caretaker Dis. and Dir. R. R. S. Placed Removed R. R. Station Post Office County State Railroad Erpress Co. Name of Caretaker DU. and Dir. R. R, S. Placed Removed R. R. Station Post Office County Sute Railroad Eipress Co. Name of Caretaker Dis. and Dir. R. R. S. Placed Removed R. R, Station Post Office County State Railroad Erpress Co. Name of Caretaker Dis. and Dir. R. R. S. Placed Removed R. R. Station Post Office County State Railroad Express Co. Name of Caretaker Dis. and Dir. R. R. S. Placed Removed R. R. Station Post Office County State Railroad Express Co. Date Received from Date P£ ssed from Care by Jewish pennsylvania children's aid society, philadelphia Form No. 7.— Card Record of Child and Visitation Children on board or in free homes. This is reverse of card. On face are name of child, location, name of visitor, and dates of visits 310 CHILDREN'S AID SOCIETY o..orv.. OF PENNSYLVANIA REPORT OF VISIT TO A CHILD Wilb whom placed N«me of Dearest and most convenieDl R. R. a Dis. and dir. of home from this siatioa Does child sleep alooe In separate room 7 Is the child happy? Was child seen alone? L does child do? Any bad habits? Condition of the home s order and comfort ? Appearance of house, bam, yard, « What newspapers taken ? 1 between child and foster parents affectionate : Has the child been visited by parents, r Is the home adapted to the child? Are foster pareuts pleased ^ I % child boarding, free or receiving wages ? » legally adopt child? Any new impressions as to f What suggestions, if i ; made to the foster parents ? Have you any recommendations to the Society? Form No. 8. — Agent's Report of Visit to a Child To such details of child's condition should be added *'stories" of any illnesses, school progress, church relations, etc. ALPHABETICAL LIST OF AGENCIES AND INSTITUTIONS ALPHABETICAL LIST OF AGENCIES AND INSTITUTIONS Explanation 1. The first reference is the number of the table in which the agency or institution is located; the second is the page of the book where that table, or the first section of its set appears. 2. In order to save space, only a portion of the agencies and institutions for which information is given in the general tables are mentioned in the text of the report. 3. Information concerning a given agency or institution which is mentioned in the text appears in the chapter immediately preceding the table in which the agency or institution is included. o" ! Name of agency or institution City or town County -\llegheny County Children's Aid Society .... ■Mlegheny institute (Avery College) Mlegheny Widows' Home As- sociation \merican Salvation .A.rmy Children's Home . \merican Salvation Army Temporary Home \rmstrong County Children's Aid Society .... \uburn and Rush Poor Asy- Baptist Orphanage . Baptist Orphanage of Western Pennsylvania Beacon Light Mission . Beaver County Children's Aid Society Beaver County Children's Home Berks County Humane Soci ety Pittsburgh Pittsburgh Pittsburgh Allentown Erie Kittanning Auburn Philadelphia West Newton Custer City Beaver New Brighton Reading Allegheny Allegheny Allegheny Lehigh Erie Armstrong Susquehanna Philadelphia Westmoreland McKean Beaver Beaver Berks 142 190 156 209 209 142 65 182 182 174 142 76 148 CHILD WELFARE WORK IN PENNSYLVANIA d Name of agency or institution City or town County 15 & Z (- a. •4 Bethany Orphans' Home . Philadelphia Philadelphia 14 174 15 Bethany Orphans' Home . Womelsdorf Berks 18 209 16 Bethesda Children's Christian I"*! Home Philadelphia Philadelphia 14 •74 •7 Bethesda Home .... Pittsburgh Allegheny »9 218 18 Beulah Anchorage Home . Reading Berks 16 190 '9 Blair County Industrial Train- ing Home .... Williamsburg Blair 3 76 20 Blakely Poorhouse . . . Blakely Lackawanna I 62 21 Bloom Poorhouse Bloomsburg Columbia I 61 22 B'nai Brith Orphanage Erie Erie 15 182 23 Borough Poorhouse . . Milton Northumberland I 64 24 Boys' Industrial Home Williamsport Lycoming 16 190 25 Boys' Industrial Home of Western Pennsylvania . Oakdale Allegheny 16 190 26 Bradley Children's Home . Pittsburgh Allegheny '5 182 27 Bucks County Children's Aid Society Doylestown Bucks 9 •35 28 Burd Industrial School Bedminster Bucks 16 190 29 Burd Orphan Asylum Philadelphia Philadelphia 18 209 30 Bureau for Jewish Children Philadelphia Philadelphia 12 156 31 Butler County Children's Aid Society Butler Butler 10 142 32 C Cameron County Children's Aid Society .... Emporium Cameron 10 142 33 Carbondale Poorhouse Greenfield Lackawanna I 63 34 Catholic Boys' Home . . Harbour Creek Erie 15 182 35 Catholic Home for Destitute Children Philadelphia Philadelphia 17 202 36 Center County Almshouse Bellefonte Center I 61 37 Center County Children's Aid Society Bellefonte Center 10 142 38 Central Poorhouse . . . Wilkes- Barre Luzerne I 63 39 Centralia and Conyngham Poorhouse Centralia Columbia I 61 40 Chester County Children's Aid Society .... Westchester Chester 9 135 41 Children's Aid Society of Pennsylvania . . . Philadelphia Philadelphia 8 129 42 Children's Aid Society of Western Pennsylvania . Pittsburgh Allegheny' 8 129 43 Children's Bureau . . . Philadelphia Philadelphia 12 156 44 Children's Home of South Bethlehem .... South Bethlehem Northampton 16 190 45 Children's Home of York . York York 16 190 46 Children's Home Society of Pennsylvania . . Pittsburgh Allegheny 8 129 47 Children's House of the Home for Incurables . . . Philadelphia Philadelphia 6 no 48 Children's Industrial Home Harrisburg Dauphin 16 190 316 LIST OF AGENCIES AND INSTITUTIONS d Z Name of agency or institution City or town County ^ £ 49 Child Welfare Association of Allegheny County Pittsburgh Allegheny 12 136 50 Christian Home .... Johnstown Cambria 16 190 $1 Christ's Home for Homeless and Destitute Children . Warminster Bucks >4 174 52 Christ's Methodist Episcopal Home for Babies . . Pittsburgh Allegheny 13 182 53 Church Home and Orphanage Jonestown Lebanon 18 209 54 Church Home for Children . Philadelphia Philadelphia 18 209 55 City Home (Almshouse) . New Castle Lawrence I 63 56 City Poorhouse . . . Williamsport Lycoming I 63 57 Clarion County Children's Aid Society Clarion Clarion 10 142 58 Clearfield County Children's .Aid Society .... Clearfield Clearfield 10 142 59 Clinton County Children's Aid Society .... Lockhaven Clinton 10 142 60 Coal Township Poorhouse . Shamokin Northumberland I 64 61 Coleman Industrial Home for Colored Boys .... Pittsburgh Allegheny 14 •74 62 Colored Women's Relief Asso- ciation Home .... Pittsburgh Allegheny 16 190 63 Commonwealth Humane Soci- ety Bradford Bradford 1 1 148 64 Corry Humane Society Corry Erie 1 1 148 65 County Almshouse . . . Beaver Beaver 60 66 County Almshouse . . . Bedford Bedford 60 67 County Almshouse . . . Burlington Bradford 61 68 County Almshouse . . . Butler Butler 61 69 County Almshouse . . . Carlisle Cumberland 61 70 County Almshouse . Chambersburg Franklin 62 71 County Almshouse . . . Clarion Clarion 61 72 County Almshouse . . . Coudersport Potter ^4 73 County Almshouse . . . Doylestown Bucks 61 74 County Almshouse . . . Embreeville Chester 61 73 County Almshouse . . . Erie Erie 62 76 County Almshouse . . . Gettysburg Adams 60 77 County Almshouse . . Harrisburg Dauphin 61 78 County Almshouse . . . Hollidaysburg Blair 60 79 County Almshouse . . . Lancaster Lancaster 63 80 County Almshouse . . . Lebanon Lebanon P 81 County Almshouse . . . Lewistown Mifflin ^^ 82 County Almshouse . . . Loysville Perry 64 83 County Almshouse . . . Mercer Mercer ^^ 84 County Almshouse . . . Nazareth Northampton 63 83 County Almshouse . . . Pottsville Schuylkill 64 86 County Almshouse . . . Royersford Montgomery 63 87 County Almshouse . . . Saegerstown Crawford 6i 88 County Almshouse . . . St. Mary's Elk 62 89 County Almshouse . . . Shillington Berks 60 90 County Almshouse . . . Smethport McKean ^5 9' County .Almshouse . . . Somerset Somerset 65 317 CHILD WELFARE WORK IN PENNSYLVANIA o 2 Name of agency or institution City or town County 1 g: County Almshouse . . . Tionesta Forest 62 93 County Almshouse . Uniontown Fayette 62 9A County Almshouse . Washington Washington 65 95 County Almshouse . Waynesburg Greene 62 9e County Almshouse . Wecosville Lehigh 63 97 County Almshouse . York York 65 95 County Home (Almshouse) Brookville Jefferson 62 99 County Home (Almshouse) Clearfield Clearfield 61 IOC County Home (Almshouse) Ebensburg Cambria 61 lOI County Home (Almshouse) Greensburg Westmoreland 65 102 County Home (Almshouse) Indiana Indiana 62 103 County Home (Almshouse) Lima Delaware 62 1 04 County Home (Almshouse) Sherleysburg Huntingdon 62 105 County Home (Almshouse) Woodville Allegheny 60 106 County Poorhouse . . . Sugar Creek Venango 65 107 County Poorhouse . . . Wellsboro Tioga 65 108 Crawford County Children's Aid Society .... Titusville Crawford 142 109 Curtis Home for Women and Children Pittsburgh Allegheny 19 218 no D Danville and Mahoning Poor- house Danville .Montour , 63 ill Dauphin County Children's Aid Society .... Harrisburg Dauphin 9 •35 112 Day Nursery and Children's Home Allentown Lehigh 18 209 113 Delaware County Children's Aid Society .... Media Delaware 9 135 114 Detention Farm House Somerset Somerset 2 69 •15 Detention Home Erie Erie 2 69 116 Detention Home . . . Scranton Lackawanna 2 69 117 Detention Home . . . Washington Washington 2 69 118 Detention Room . . . lohnstown Cambria 2 69 119 Detention Rooms . . . ^arrisburg Dauphin 2 69 120 Downingtown Industrial and Agricultural School . . Downingtown Chester 16 190 121 Drexmor Home . . . Philadelphia Philadelphia '7 202 122 E Eastbrook Home for Destitute Negro Children . . . Eastbrook Lawrence •4 •74 123 Eastern Pennsylvania Insti- tution for Feeble-Minded Spring City Chester 5 lOI 124 East Stroudsburg Poorhouse last Stroudsburg Monroe 63 125 Elk County Children's Aid Society Ridgeway Elk 10 142 126 Elkins Masonic Orphanage for Girls Philadelphia Philadelphia 16 1 Erie 4 j 190 9^ 127 Elmwood Home . . . No. Springfield 318 LIST OF AGENCIES AND INSTITUTIONS d z Name of agency or institution Citv or town County 128 Emmaus Orphan House . Middletown Dauphin 16 190 129 Episcopal Church Home . Pittsburgh Allegheny 18 209 130 Evangelical Lutheran Con- cordia Home .... Vlarwood Butler 18 209 >3' F -^airfax Baby Home Pittsburgh Allegheny •4 •74 132 Fayette County Children's Aid Society .... Jniontown Fayette 10 142 •33 First Allegheny Temporary 16 Home Pittsburgh Allegheny 190 '34 Florence Crittenton Home hlarrisburg Dauphin 19 218 135 Florence Crittenton Home Philadelphia Philadelphia 19 218 136 Florence Crittenton Home Pittsburgh Mlegheny '9 218 137 138 Florence Crittenton Home Erie Erie •9 218 Florence Crittenton Mission Scranton Lackawanna ■9 218 •39 Florence Crittenton Mission Williamsport Lycoming >9 218 140 Florence Crittenton Shelter and Nursery .... Wilkes-Barre Luzerne 19 218 141 Foster Home Philadelphia Philadelphia 16 190 142 Fouike and Long Institute for Girls Langhorne Bucks 16 190 • 43 Franklin County Children's Aid Society .... Chambersburg Franklin 9 135 •44 Friends' Home for Children Philadelphia Philadelphia 18 209 •45 G George Junior Republic of Western Pennsylvania . Grove City Mercer 4 9^ 146 German Protestant Orphan Asylum .... West Liberty Allegheny 18 209 '47 Germantown Poorhouse Philadelphia Philadelphia I 64 148 Girard College .... Philadelphia Philadelphia 16 190 149 Girls' Industrial School. . Indiana Indiana 14 •74 150 Girls' Training Home . Williamsport Lycoming 14 •74 •5' Glen Mills Schools— Boys' Department .... Glen Mills Delaware 4 9^ 152 Glen Mills Schools— Girls' Department .... Darling Delaware 4 9' 153 Goldy Home Society of Ly- coming County . Williamsport Lycoming 14 '.]t i'JA Good Shepherd Home . Allentown Lehigh ■9 •5' Gonzaga Memorial Home . Philadelphia Philadelphia •7 202 •5( Grace Aguilar Home Philadelphia Philadelphia 15 182 T Greene County Children's Aid Society Waynesburg Greene 10 142 •5' Greene County Children's f Home Waynesburg Greene 3 ' 5' ) Gusky Orphanage and Homt Pittsburgh Allegheny 15 182 16 H 3 Haddock Memorial Home fo r Babies Philadelphia Philadelphia \j 182 319 CHILD WELFARE WORK IN PENNSYLVANIA d Name of agency or institution City or town County 1 i6i Hebrew Orphans' Home . Philadelphia Philadelphia 18 209 162 Hebrew Sheltering Home . Philadelphia Philadelphia 18 209 163 Hershey Industrial School . Hershey Dauphin 14 174 164 Hillside Home (Almshouse) Clark's Summit Lackawanna 62 165 Hoffman Orphanage . . Littlestown Adams 15 182 166 Holy Family Children's Home New Castle Lawrence 16 190 167 Holy Family Polish Orphan Asylum Pittsburgh Allegheny 17 202 168 Holy Provident House . Cornwells Bucks 17 202 169 Home for Colored Children Pittsburgh Allegheny 16 190 170 Home for Destitute Colored Children Philadelphia Philadelphia 16 190 171 Home for Friendless Children Easton Northampton 16 190 172 Home for Friendless Children Lancaster Lancaster 16 190 173 Home for Friendless Children Reading Berks 16 190 174 Home for Friendless Children Wilkes-Barre Luzerne 16 190 •75 Home for the Friendless . Erie Erie 16 190 176 Home for the Friendless . Harrisburg Dauphin 16 190 177 Home for the Friendless . Pittsburgh Allegheny 16 190 178 Home for the Friendless Scranton Lackawanna 16 190 Home for the Friendless . Williamsport Lycoming 16 190 180 Home for the Homeless Philadelphia Philadelphia 14 174 181 Home for Orphans of Odd Fellows Philadelphia Philadelphia 16 190 182 Home for Orphans of Odd Fellows Pittsburgh Allegheny 16 190 183 Home Missionary Society of Philadelphia .... Philadelphia Philadelphia 8 129 184 Home of Association for Col- ored Women .... Philadelphia Philadelphia 19 218 185 Home of the Good Shepherd Rosemont Delaware 18 209 186 Home of the Merciful Saviour for Crippled Children Philadelphia Philadelphia 6 no 187 Home of the United Charities Hazleton Luzerne 19 218 188 Honesdale Poorhouse . Honesdale Wayne 65 189 House of Detention Philadelphia Philadelphia 2 69 190 House of Detention . . Norristown Montgomery 2 69 191 House of Industry . Philadelphia Philadelphia 16 190 192 House of St. Michael and All Angels Philadelphia Philadelphia 6 1 10 193 House of the Good Shepherd Philadelphia Philadelphia 19 218 194 House of the Good Shepherd Pittsburgh (Allegheny) Allegheny 19 218 195 House of the Good Shepherd Pittsburgh Allegheny 19 218 196 House of the Good Shepherd Reading Berks 19 218 197 House of the Good Shepherd Scranton Lackawanna 19 218 198 House of the Holy Child . Philadelphia Philadelphia 18 209 199 Howard Institution . . Philadelphia Philadelphia- 16 190 20c Humane Association and United Charities . Wilkes-Barre Luzerne 1 1 148 201 Humane Society and Associ- ated Charities . . Scranton Lackawanna 1 1 148 320 LIST OF AGENCIES AND INSTITUTIONS d Z Name of agency or institution City or town County Xi bO H £. 202 I ImprovementChildren'sHome Pittsburgh Allegheny 16 190 203 Indiana County Children's Aid Society .... Indiana Indiana 10 142 204 Industrial Home for Crippled Children Jefferson County Children's Pittsburgh Allegheny 6 no 205 Aid Society .... Brookville Jefferson 10 142 206 Jewish Foster Home and Or- phan Asylum .... Philadelphia Philadelphia 18 209 207 Joint Shelter for Children . Philadelphia Philadelphia 16 190 208 Juniata Valley Children's Aid Society Huntingdon Huntingdon 8 129 209 Juvenile .Aid Society (Jewish) K Kittanning Poorhouse . Philadelphia Philadelphia 12 .56 210 Kittanning Armstrong . 60 21 1 L Lakeview Poorhouse Clark's Summit Lackawanna , 63 212 Lawrence County Children's Aid Society .... New Castle Lawrence 10 142 213 Lehigh County Children's Aid Society Allentown Lehigh 9 13^ 214 Lehigh County Humane Soci- ety .Mlentown Lehigh Philadelphia 1 1 t 215 Lincoln Institution . . . Philadelphia 15 216 Lockhaven Poorhouse . Lockhaven Clinton 61 217 Lutheran Orphans' Home . Philadelphia Philadelphia 18 209 218 Lutheran Orphans' Home . Topton Berks 18 209 219 Luzerne County Jewish Or- phan Society .... Wilkes- Barre Luzerne 9 '35 220 Lycoming County Children's Aid Society .... M McKean County Children's W'illiamsport Lycoming 9 135 22 1 Aid Society .... Bradford McKean 10 142 222 Madison Poorhouse MadisonTownship Armstrong I 60 223 .Madison Poorhouse MadisonTownship Columbia I 61 224 Magdalen Society of Philadel- phia Philadelphia Philadelphia 4 9' 225 Manor Township Poorhouse Manorville Armstrong 60 226 Meadville Children's Aid Soci- ety and Home Meadville Crawford '4 '74 227 Mennonite Children's Home Association .... Millersville Lancaster 18 209 228 Mennonite Orphanage and Home Center Valley Lehigh 15 182 229 Mercer County Children's Aid Society Mercer Mercer 10 142 230 Messiah Home Orphanage Harrisburg Dauphin 16 190 321 CHILD WELFARE WORK IN PENNSYLVANIA d Z Name of agency or institution City or town County 15 231 Methodist Episcopal Orphan- age Philadelphia Philadelphia '5 182 232 Middle Coal Field Poorhouse Rockport Carbon I 61 233 Midnight Mission . Philadelphia Philadelphia 19 218 234 Montgomery County Chil- dren's Aid Society Norristown Montgomery 9 '^5 235 Montrose Poor Asylum. .Montrose Susquehanna ' 65 236 N National Farm School . Farm School Bucks 18 209 237 New Milford Poor Asylum. New Milford Susquehanna 1 65 238 Northern Home for Friendless Children Philadelphia Philadelphia 16 190 239 North Side City Home (Alms- house) Warner Allegheny I 60 240 North Side Temporary Home Pittsburgh Allegheny 18 209 241 Northumberland Poorhouse Northumberland Northumberland 1 64 242 Northwestern Pennsylvania Humane Society . . Erie Erie 11 148 243 Nursery Home .... Harrisburg Dauphin 16 190 244 Oakland Township Poor Asy- lum Susquehanna Susquehanna I 65 245 Odd Fellows' Home of Central Pennsylvania Sunbury Northumberland 16 190 246 Odd Fellows' Home of Western Pennsylvania .... .Meadville Crawford 16 190 247 Orange Home .... Hatboro Montgomery 16 190 248 Orphans' Home and Farm School Zelienople Butler 18 209 249 Orphan Society of Philadel- phia Home .... Wallingford Delaware 16 190 250 Oxford Poorhouse . . . Holmesburg Philadelphia ' 64 251 P Paradise Protectory. . . Abbottstown Adams >7 202 252 Parker Foundation . . Carlisle Cumberland 14 174 253 Passavant Memorial Home for Epileptics .... Rochester Beaver 5 lOI 254 Patriotic Sons of America Or- phanage Creasy Columbia 16 190 255 Pennsylvania Industrial School Eagleville Montgomery 16 190 256 Pennsylvania Society to Pro- tect Children from Cruelty Philadelphia Philadelphia 1 1 148 257 Pennsylvania Training School Morganza Washington 4 91 258 Pennsylvania Training School for Feeble-Minded Children Elwyn Delaware 5 lOI 259 Philadelphia Almshouse (Blockley) .... Philadelphia Philadelphia I 64 260 Philadelphia Home for Infants Philadelphia Philadelphia 16 190 261 Philadelphia Protectory for Boys Protectory Sta. Montgomery 4 91 322 LIST OF AGENCIES AND INSTITUTIONS d Z Name of agency or institution City or town County XI s 262 Pittsburgh City Farm (Alms- house) Marshalsea Allegheny I 60 263 Pittsburgh Home for Babies Pittsburgh Allegheny >4 '74 264 Pittsburgh Home for Girls Pittsburgh Allegheny >4 174 265 Pittsburgh Newsboys' Home Pittsburgh Allegheny 16 190 266 Pittsburgh Sunshine Chil- dren's Home .... Pittsburgh Allegheny 16 190 267 Potter County Children's Aid Society Galeton Potter 10 142 268 Pottsville Benevolent Asso- ciation Pottsville Schuylkill 16 190 269 Presbyterian Orphanage of Pennsylvania Philadelphia Philadelphia 15 182 270 Probation Offices and Deten- tion Rooms .... Pittsburgh Allegheny 2 69 271 Protestant Home for Boys Pittsburgh Allegheny '4 174 272 Protestant Orphan Asylum Pittsburgh Allegheny 16 190 273 Providence Mission and Res- cue Home Pittsburgh .Allegheny 19 218 274 Pruner Home for Friendless Children Bellefonte Center 14 174 275 R Ransom Poorhouse . Ransom Lackawanna , 63 276 Roseiia Foundling Asylum Pittsburgh Allegheny '7 202 277 Rosine Association . Philadelphia Philadelphia 19 218 278 Rouse Hospital (Almshouse) Warren Warren 65 279 Roxboro Poorhouse Roxboro Philadelphia ' 64 280 S St. Catherine's Orphan Asy- lum for Girls .... Reading Berks n 202 281 St. Francis' Industrial School Eddington Bucks '7 202 282 St. John's Lutheran Home Mars Butler 18 209 283 St. John's Orphan Asylum Cresson Cambria 17 202 284 St. John's Orphan .Asylum Philadelphia Philadelphia 17 202 285 St. Joseph's Foundling Home Scranton Lackawanna '7 202 286 St. Joseph's House for Home- less Boys .... Philadelphia Philadelphia 17 202 287 St. Joseph's Orphanage for Girls Philadelphia Philadelphia 17 202 288 St. Joseph's Orphan Asylum Erie Erie 17 202 289 St. Joseph's Orphan Asylum Pittsburgh Allegheny '7 202 290 St. Joseph's Protectory for Boys Pittsburgh .Allegheny >7 202 291 St. Joseph's Protectory for Girls Norristown Montgomery Philadelphia 4 15 91 292 St. Martin's College Philadelphia 182 293 St. Mary Magdalen de Pazzi Orphanage Philadelphia Philadelphia 15 182 294 St. Mary Magdalen Asylum for Colored Girls . Philadelphia Philadelphia 4 9' 323 CHILD WELFARE WORK IN PENNSYLVANIA i Name of agency or institution City or town County 295 St. Mary's Orphan Asylum Villa Maria Lawrence 17 202 296 St. Michael's Orphan Asylum Pittsburgh Allegheny 17 202 297 St. Patrick's Orphan Asylum Scranton Lackawanna 17 202 298 St. Paul's Orphan Asylum . Idlewood .Mlegheny 17 202 299 St. Paul's Orphan Asylum for Boys Reading Berks 17 202 300 St. Paul's Orphans' Home . Greenville Mercer 13 182 301 St. Peter's Evangelical Lu- theran Orphanage Pittsburgh Allegheny 15 182 302 St. Vincent's Home Philadelphia Philadelphia 17 202 303 St. Vincent's Home and Ma- ternity Philadelphia Philadelphia 17 202 304 St. Vincent's Orphan Asylum (Tacony) Philadelphia Philadelphia 17 202 305 Salvation Army Rescue Home Philadelphia Philadelphia 18 209 306 Salvation Army Rescue Home Pittsburgh Allegheny 18 209 307 Seraphic Work of Charity Home New Derry Westmoreland 17 202 308 Seybert Institution for Poor Boys and Girls Philadelphia Philadelphia 14 174 309 Sewickley Fresh Air Home Sewickley Allegheny 6 1 10 310 Shelter for Colored Orphans Philadelphia Philadelphia 18 209 311 Sheltering Arms Philadelphia Philadelphia 19 218 312 Society for the Care of Jewish Orphans Wilkes-Barre Luzerne 12 156 3>3 Somerset County Children's Aid Society .... Somerset Somerset 10 142 314 Soldiers' Orphans' Industrial School Scotland Franklin 3 76 315 Southern Home for Destitute Children Philadelphia Philadelphia 16 190 316 Sunbury Poorhouse Sunbury Northumberland I 64 3'7 Sylvan Heights Home for Or- phan Girls .... Harrisburg Dauphin 17 202 318 T Tabor Home for Children . Philadelphia Bucks 18 209 319 Thaddeus Stevens Industrial School Lancaster Lancaster 14 174 320 Thomson (John Edgar) School for Girls . . . Philadelphia Philadelphia ■4 174 321 Thorn Hill School . . . Warrendale Allegheny 4 91 322 Tressler Orphans' Home . Loysville Perry 18 209 323 U United Brethren Orphanage and Home .... Quincy Franklin 15 182 324 United Presbyterian Orphans' Home Pittsburgh Allegheny 18 209 325 V Valley Township Poorhouse Danville Montour I 63 326 Venango County Children's Aid Society .... Oil City Venango lO 142 324 LIST OF AGENCIES AND INSTITUTIONS d Name of agency or institution City or town County Ji jn & ^1 H Qu W 327 Warren Children's Home . Warren Warren '4 '74 328 Warren County Children's Aid Society Warren Warren 10 142 329 Washington County Children's Aid Society .... Washington Washington 10 142 330 Washington County Chil- dren's Home .... Washington Washington 3 76 33 > Western Home for Poor Chil- dren Philadelphia Philadelphia 16 190 332 Western Pennsylvania Hu- mane Society Pittsburgh Allegheny 1 1 148 333 Western Pennsylvania Insti- tution for Feebie-Minded Polk Venango 5 lOI 334 Western Temporary Home Philadelphia Philadelphia 16 190 335 Westmoreland Children's Aid Society Home Greensburg Westmoreland 16 190 336 Widener Memorial School . Philadelphia Philadelphia 6 no 337 Williamson Trade School . Williamson School Delaware '4 •74 338 William T. Carter Junior Re- public Redington Northampton 4 9' 339 Women's Association Chris- tian Home .... Pittsburgh Allegheny 19 218 340 Women's Directory Philadelphia Philadelphia 12 156 341 Y York Society to Protect Chil- dren York York 14 174 342 Young Women's Union. . Philadelphia Philadelphia 18 209 343 Z Zerbe Township Poorhouse Zerbe Township Northumberland ■ 64 325 NDEX NDEX Actuary: employed by county chil- dren's aid societies, 20 Adequate Records of Dependent Children in Agencies and In- stitutions: by J. Bruce Byali, 239 Admission: dangers of too ready, 241; desirability of physical and psycho- logical examinations for, 240; in- vestigation for, by trained workers desirable, 240,241, important, 240, 241 ; methods pursued in investiga- tions for admission, 240 Adults and Children. See Institu- tions for Combined Care of Adults and Children After-care. See Supervision Agencies: placing-out by, 247, 248. See also Child-caring Agencies Agencies and Institutions, General Summary For, 230-236; capacity, 230; children in care, 231, 232; children placed out, 232; employes, 231; expenses, 231; plants and en- dowments, 230, 231; public funds received, 231; relational condition of children, 232, 233; sources of supply furnishing dependent chil- dren, 232; statistics, 234-236. See also General Summary for Agencies and Institutions Agency: definition of term as used in the study, 42 Agency Forms: samples of, 301 Agents. See Workers Agricultural Training: for children in institutions, 18, 170-171; neg- lected, 18-19 Allegheny City Home: sixty-day law enforced by, 57 Allegheny County: children in alms- houses of, 56-58; home for de- Allegheny County {continued) pendent children contemplated by, 74. See also Children's Aid Society of Allegheny County; Child Welfare Association of Allegheny County Allegheny County Industrial School for Boys, Warrendale, Pa. See Thorn Hill School Allegheny Widows' Home Associa- tion OF Pittsburgh, 154 Almshouse: Charles Dickens on plac- ing child in, 58; conditions de- scribed by Charles R. Henderson, 58; Florence L. Lattimore quoted on children in Pittsburgh, 57 Almshouses: children cared for in, number of, 55; cruelty of confining children in, 58; detention of chil- dren in, 44-45; disposition of chil- dren by, 56; feeble-minded children in, 55; Pennsylvania, physical con- ditions in, 55-56. See also Sixty- day Law Almshouses and Poorhouses, 55-65; reasons for omitting from general summary, 114; statistical tables concerning, 60-65 Amalgamation: of separate child-car- ing agencies recommended, 127, 128. See also Coordination Amentia. See Feehle-mindedness American Salvation Army: institu- tions at Erie and Allentown, 206 Appropriation: state supervision lim- ited by lack of adequate, 261 Appropriation of Public Funds to Private Institutions. See Pub- lic Funds Associated Charities: scope of work of various agencies known as, 147 329 INDEX Associated Charities, Scranton: union of, with Lackawanna County Humane Society in child-caring worii, 145. See also State Board of Public Charities Avery College, 24 Babies: institutional care of, 172 Backward Children. See Dullards Bacon, Albion Fellows: quoted, 2 Baptist Orphanages, 178, 179 Barnabas, Brother: at National Con- ferences of Charities and Correc- tion, 200 Barr, Martin W. : quoted, 266, 269 Beaver County Children's Home, New Brighton, Pa., 72, 76-78. Beck, Joseph A., 243 Beneficiaries and Methods: con- tents of tables concerning, 49 Bethesda Children's Christian Home: affiliated with Children's Bureau of Philadelphia, 152 Biddle, Mrs. Edward W., 254 Blair County Industrial Training Home, Williamsburg, Pa.: descrip- tion and statistics, 72-73, 76-78 Blockley Almshouse: children kept in, 55; Philadelphia, separate chil- dren's building of, 71 Board of Children's Guardians: es- tablishment of proposed, 75 Board of Public Charities, Penn- sylvania. See State Board of Charities Boards of Visitation: act providing for, 287, 288 Buck, William Bradford, 245, 253, 254 Bucks County Children's Aid Soci- ety: children placed out by, 132; scope of work, 132 Burd Orphan Asylum, Philadelphia, 5'. "52 Bureau for Jewish Children of Philadelphia: branch of United Bureau for Jewish Children of Philadelphia (continued) Hebrew Charities, 151; children placed out by, 152; children in care and under supervision of, 151, 152; scope of work, 151, 152 Burns, Allen T., 253 Byall, J. Bruce, 239 Cabot, Richard C: quoted, 2 California Children's Institutions: current expense of, 4; investment and numbers in, 4; state super- vision in, 261; statistics for, com- pared with three states, 13-16; sub- sidy system for, 22, 23-25 Capacity: agencies and institutions (general summary), 230; Baptist Orphanage, 179; Catholic orphan- ages and homes, congregate type, 198; Children's Village at Mead- owbrook, 171, 172; general church orphanages and homes, congregate type, 206, cottage type, 179, 180; Girard College, 187; Girls' Indus- trial School, 170; Hershey Indus- trial School, 170; Home for the Friendless at Pittsburgh, 187; in- stitutions for combined care of adults and children, 214; J. Edgar Thomson School for Girls, 172; Joint Shelter for Children, 188; Methodist Episcopal Orphanage, 179; nonsectarian orphanages and homes, congregate type, 188, cot- tage type, 169, 173; of private in- stitutions for dependents defined, 166; per cent of, used, 188, 199, 222; Pittsburgh Home for Babies, 172; Presbyterian Orphanage, 179; Pruner Home for Friendless Chil- dren, 170; St. Paul's Orphans' Home of the Pittsburgh Synod of the Reformed Church, 180; sta- tistics of, in institutions, 225;Thad- deus Stevens Industrial School, 171 Capital. See Investments; Property Valuation Care and Segregation of the Feeble- minded, 266-275 Carson College for Orphan Girls: donor's restriction limiting work of, 251; not yet in operation, 3 330 Carstens, C. C: quoted, 2 Catholic; increased association of, and non-Catholic social workers tend- ing toward progress, 200, 201 Catholic Institutions: explanation of lower expenditure of, 23; for combined care of adults and chil- dren, 214; statistics of in four states, 22, 23-26; type of, 178 Catholic Orphanages and Homes, Congregate Type, 198-205; ca- pacity, 198, 199; employes or workers in, 198; expenses, 198; j Holy Family Polish Orphan Asy- \ lum, 199; lack of progress in meth- j ods and facilities, 199, 200; number | and location, 167, 198; number of children in care, 199; Para- j dise Protectory, 198; plants and ! endowments, 198; public funds re- j ceived, 198; Roseiia Foundling Asylum, 199; St. John's Orphan Asylum, 198; St. Joseph's Orphan ; Asylum, 198; St. Paul's Orphan Asylum, 199; St. Vincent's Home, 199; St. Vincent's Home and Ma- ternity, 199; St. Vincent's Orphan [ Asylum, 199; scope of work, 198; 1 statistics, 202-203 I Changes in Type and Location, 243 Charity Boards. See Associated Char- ities; Public Charities Association; State Board of Public Charities. Chester County Children's Aid So- ciety; children placed out, 132; scope of work, 132 Child-bearing .Age. See IV'omen of Child-bearing Age Child-care: lack of understanding of best methods of, 242 Child-caring .Agencies, 121-162; amalgamation of separate, recom- mended, 127, 128; combined re- sults of, 127, 128; county chil- dren's aid societies of Eastern I^ennsylvania, 132-137; county children's aid societies of Western Pennsylvania, 138-144; expenses, 133, compared, 137; general, 123- 131; humane societies for children, 145-150; number and grouping of, 46, 157, in Pennsylvania, 19; num- Child-caring Agencies {continued) ber of children in care and under supervision, 127, 155, 137, 138; paid workers in, 137; placing-out work, 133, 138, summary, 127, 128; plant and endowment, 155, 157; scope of work, 151, 137, 158; special, 1 51-156; statistics, 156; summary, 133, 157-161; supervis- ion of located wards by, i 58 Child-caring Institutions; better un- derstanding between officials and managing boards necessary, 243; co-operation of, with county chil- dren's aid societies of Eastern Pennsylvania, 133; groups of, in-" eluded in the study, 44; kinds and number, in Pennsylvania, 44-47; number and management, 48; num- ber of children placed out, 247; of Eastern and Western Pennsyl- vania, 6; standards of care in, 30; statistics, 225-229; subsidy system in, 21-32; summary for private, 222-229. See also Agencies and Institutions; Institutions for Com- bined Care of Adults and Children Child-caring Work: extent of, 231, 232, 233 Child-placing Societies: number in Pennsylvania, 19; of Eastern and Western Pennsylvania compared, 20-2 1 . See also Child-caring Agen- cies; Placing-out Child Welfare: a state program of, 31-34; provision for a state prob- lem, 31-32 Child Welfare Association of Al- legheny County: children placed out by, 154; expenses, 154; formed by merger of Children's Bureau and Juvenile Court Association of Alle- gheny County, 154; investigation of children in county almshouse by, 58; merger of, with Allegheny County Children's Aid Society, 141, 155; number of children in care and under supervision, 134; paid workers employed, 154; scope of work, 134 Child Welfare Organizations: Penn- sylvania, number recorded, 3 Child Welfare Work: definition of term as used in the study, 43 INDEX Children: in almshouses, 55-58; in care of agencies and institutions (general summary), 231, 232; in care of institutions, statistics giv- ing number of, 225 Children on Probation: revised statute affecting, 283, 284. See also Probation Children's Aid Societies: receive children from almshouses, 56. See also Child-caring Agencies; County Children's Aid Societies Children's Aid Society of Alle- gheny County: merged with Child Welfare Association of Alle- gheny County, 141; paid worker employed by, 138; policy of, con- cerning paid trained workers and volunteer workers, 155; terms of merger of, with Child Welfare As- sociation of Allegheny County, 155 Children's Aid Society of Pennsyl- vania: children placed out by, 75, 123, 133, 152; Children's Bureau agent of, 124, 152; co-operation of county children's aid societies of Eastern Pennsylvania with, 132; co-operation of with other chil- dren's agencies, 32; expense of the study shared by, 35; expenses, 123; number of children in care and un- der supervision, 123; plant and en- dowment, 123; territory and scope of work, 123, 124; working alliance of, with Pennsylvania Society to Protect Children from Cruelty at Philadelphia, 146 Children's Aid Society of Western Pennsylvania: expenses, 125; Girls' Industrial School at Indiana owned by, 125; incorporated fed- eration of county aid societies, 125, 138; number of children in care and under supervision, 125; plant, 125; territory and scope of work, 125, 126; unendowed, 125; vol- unteer workers, 125 Children's Bureau of Philadelphia: Bethesda Children's Christian Home, Burd Orphan Asylum, Houseof St. Michael and All Angels, House of the Holy Child, Howard Institution, Lincoln Institution and Home for Destitute Colored Chil- Children's Bureau of Philadelphia {continued) dren. Northern Home for Friend- less Children, Shelter for Colored Orphans, Society for Organizing Charity, affiliated with, 152; Con- ference of Institutions for the Care and Training of Children organized under, 152; example of effective co-operation, 152, 153; investiga- tions by, for other organizations, 152; joint agency of Children's Aid Society of Pennsylvania, Sey- bert Institution, and Pennsylvania Society to Protect Children from Cruelty, 124, 152; Joint Shelter under management of, 124, 152; placing-out by, handled by Chil- dren's Aid Society of Pennsylvania, 152; Round Table Conference of Colored Institutions organized un- der, 152; scope of work, 152 Children's Bureau of Pittsburgh: merged with Juvenile Court Asso- ciation of Allegheny County, 154 Children's Charities: separation of, from other charities favored, 264 Children's Code, A, 252; necessity for, 252; of Ohio, 252; recommenda- tion for state commission to pre- pare, 32-33. See also Juvenile Court tVork; Legislation Children's Home Society of Penn- sylvania: statistics concerning, 126 Children's Homes: efforts to obtain legislation for establishing, 56 Children's House of the Home for Incurables, Philadelphia: class of cripples received by, 105; for crippled white children, description and statistics, 105-106, 110-113 Children's Institutions. See Insti- tutions for Children Children's Law of 1883: concerning children in almshouses, 57 Children's Village: Chauncey, New York, 18; Meadowbrook, Pennsyl- vania, 171. See also Seyhert Insti- tution for Poor Boys and Girls Christian Volunteer Home, 206 332 Christianity and the Social Crisis: by Dr. Walter Rauschenbusch, 293 Christ's Home for Homeless and Destitute Children, 169 Church Management: congregate in- stitutions under, 167; cottage in- stitutions under, 167. See also Catholic Orphanages and Homes; General Church Orphanages and Homes Classification: of public and private institutions, 44 Coffee, Rabbi Rudolph !., 286 Colored: crippled children, institu- tions for, 106-107; epileptics, 98; feeble-minded, institutions for, 98; institutions for, 87-88, 89, 98, 106- 107, 152, 169 Colored Institutions: Round Table Conference of, 1 52 Commission on Segregation, Care and Treatment of Feeble- minded and Epileptic Persons: appointed by Governor John K. Tener, 270, report of, 268, 271-274 Comparative Statistics. See Statis- tics, Comparative Comparisons: in provision for children in sections of Pennsylvania, 31 Conference of Charities and Cor- rection, National: participation of Catholic workers in, 200; quoted, 258, 259 Conference of Colored Institu- tions: Round Table, 132 Conference of Institutions for the Care and Training of Children: organized under Children's Bureau of Philadelphia, 132 Conference on the Care of Depend- ent Children: conclusions of, on placing-out, 122; quoted, 258 Congregate Institutions: for de- pendent children, number and sta- tistics of, 9-10; number of, 167; predominate, 243 Congregate Plan: undesirable, 243 Co-operation: between agencies and institutions in placing-out, 248; Co-operation (continued) Children's Bureau of Philadelphia example of effective, 132, 153; im- portance of in child welfare work, 32, 33-34; in social service, 293; of county children's aid societies of Eastern Pennsylvania with child- caring institutions, 133; with Chil- dren's Aid Society of Pennsylvania, 132 Coordination: of existing institutions needed, 188, 189. See also Amal- gamation Cornell, Dr. Walter S.: quoted, 266, 267, 268 Cost: approximate, of adequate pro- vision for feeble-minded, 274 Cottage and Congregate Institu- tions for Children: by Hastings H. Hart, 173, 249 Cottage Institutions: for defectives, 93, 97, 98; for delinquents, 81, 82, 83, 85, 86; for dependent children, 8-9; nonsectarian, 167 Cottage Plan: advantages of for children's institutions, 17-18 County .Agencies: arrangement of tables concerning, 49-50 County Care Hospitals: number of epileptics in, 272 County Children's Aid Societies: employment of volunteers by, 20. See also Children's Aid Society County Children's Aid Societies of Eastern Pennsylvania, 132-137; children placed out by, 134; co-op- eration of, with child-caring insti- tutions, 133; Edwin D. Solcnberger on, 132; expenses of, 133; number of children in care and under super- vision of, 134; paid workers for, recommended, 134; placing-out children favored by, 133; plants and endowments of, 133; statis- tics, 135-137; summary concern- ing plant, valuation, financial statement, and scope of work of, 133, 134; volunteer workers of, 134 County Children's .^id Societies of Western Pennsylvania, 138-144; amalgamation of adjacent counties 333 County Children's Aid Societies of Western Pennsylvania (con- tinued) into working district with paid worker recommended, 140; chil- dren placed out by, 141; Children's Aid Society of Western Pennsylva- nia incorporated federation of, 125; expenses of, 141; number of chil- dren in care and under supervision of, 141; plants and endowments of, 141; public subsidies not a benefit to, 139, 140; statistics, 142-144; summary concerning plant, valua- tion, financial statement, and scope of work of, 141 ; volunteer workers in, 138. See also Children's Aid Societies County Children's Homes, 45 Crippled Children: institutions for, 105-1 13, comparative statistics for four states, i 5, general statistics of, 109; in Pennsylvania, 105, number and grouping of, 45, 46, number and statistics of, 12-13, statistical tables concerning, 110-113; provi- sion for in proposed children's code, 33; Widener Memorial School for, 3 Criticism: general, of private orphan- ages and homes, 169 Current Expense: comparative, for children's institutions in four states, 13-16 Current Statistics, Comparative: contents of tables concerning, 49 Custodial Care: for dullards, 269, 270; for feeble-minded women of child-bearing age, 270, 274, 275; for morons, 270 Dauphin County Children's Aid So- ciety: children placed out by, 132; scope of work of, 132 Deacon, J. Byron, 254 Defectives: general comments on in- stitutions for, 99-100; general sta- tistics of institutions for, 99; group- ing of institutions for care of, 45; homes and training schools for, 95- 104; in county homes, 71; J. M. Murdoch on care of, 238; mingling of normal children with, a detri- Defectives {continued) ment to both, 199. See also Feeble- minded; Mentally Deficient Definition: need of accepted, for feeble-mindedness, 267 Definitions of Terms, 42-43; agency, 42; capacity, 166; child welfare work, 43; cottage and congregate type, 165, 166; dullard, 269; feeble- mindedness, 267, 268, 269, 271; idio-imbecile, 269; idiot, 269; im- becile, 269; institution, 42; moron, 269; placing-out, 166, 167; private funds, 42, 43; public funds, 42, 43; social service, 294; social workers, 294; used in the report, 42-43 Delaware County Children's Aid Society: children placed out by, 132; scope of work, 132 Delinquents: homes and training schools for, 80-94, 180, general comments and statistics, 90, 91-94; institutions for, comparative sta- tistics for four states, 15, grouping of, 45, number and statistics of, lo-ii; placing-out of, a special problem, 249 Department of Child-Helping, Russell Sage Foundation: atti- tude of, toward all child-caring work, 297; criticisms friendly, 297; investigation by, 35; spirit and purposes of, 296 Dependency OF Children: sources of, 232, 233 Dependents : institutions for, compara- tive statistics for four states, 13- 15; private institutions for, 163- 236; state and county homes for care of, 45, 71-79 Desertion of Families: act increas- ing powers of courts in proceedings for, 286 Detention Home: rooms in Harris- burg almshouse used as, 55 Detention Homes: additional data in summary tables, 114; law for es- tablishment not generally com- plied with, 66, 246; need for, 11- 12; number and children cared for in, 11; number studied, 45; Phil- adelphia, 68; records of inadequate. 334 INDEX Detention Homes [contimicd) 66; statistical tables concerning, 69-70; substitutes provided for, 66; valuation of three, 66 Detention Homes of Juvenile Courts, 66-70; revised statute providing for, 283 Devine, Edward T.: quoted, 2 Dickens, Charles: on crime of placing child in an almshouse, 58 Digest of the Laws Relating to the Board of Public Charities, 291 Discharged Wards: placing-out of, 247. See also Placing-out Dismissed by Agencies and Institu- tions: summary showing number and destination of children, 232 District of Columbia: children's in- stitutions, 4. Dullards: custodial care for, 269, 270; definition of term, 269. See also Feeble-minded Eastbrook Home for Destitute Negro Children, 169 Eastern Pennsylvania Children's Aid Societies. See County Chil- dren's Aid Societies of Eastern Petm- sylvania Eastern Pennsylvania Institution for Feeble-Minded, Spring City: description and statistics of, 96- 97, 101-104 Economy, False, 242, 243 Education, 244; advantages of pub- lic school, 244 Elements of Record Keeping for Child-Helping Organizations: by Georgia G. Ralph, 240 Ellis College for Fatherless Girls: donor's restriction limiting work of, 231,252; not yet in operation, 3 Elmwood Home, North Springfield, Pa.: for delinquent boys, description and statistics of, 86, 91-94 Elwyn School for Feeble-minded, 32, 97, 98; number of epileptics, 272 Emmert, Professor David: founder of Juniata Valley Children's Aid So- ciety, 127 Employe: children per, 226 Employes: Baptist Orphanage, 179; Children's Village at Meadowbrook, 171, 172; Girard College, 187; Girls' Industrial School, 170; Her- shey Industrial School, 170; Home for the Friendless at Pittsburgh, 187; J. Edgar Thomson School for Girls, 172; Joint Shelter for Chil- dren, 188; Methodist Episcopal Orphanage, 179; Pittsburgh Home for Babies, 172; Presbyterian Or- phanage, 179; Pruner Home for Friendless Children, 170; St. Paul's Orphans' Home of the Pitts- burgh Synod of the Reformed Church, 180; salaries, 226; Thad- deus Stevens Industrial School, 171. See also IVorkers Encouraging Features, 235 Endowed, Not: Children's Aid So- ciety of Western Pennsylvania, 123; Juniata Valley Children's Aid So- ciety, 126 Endowments: agencies and institu- tions, general summary, 230, 231; aggregate, general church orphan- ages and homes, cottage type, 179; Catholic orphanages and homes, congregate type, 198; child-caring agencies, 137; children's aid socie- ties of Pennsylvania, 123; Chil- dren's Home Society of Pennsylva- nia, 126; Children's Village at Meadowbrook, 171, 172; county children's aid societies of Eastern Pennsylvania, 133; county chil- dren's aid societies of Western Pennsylvania, 141; general church orphanages, and homes, congregate type, 206; Girard College, 187,231; Girls' Industrial School, 170; Her- shey Industrial School, 170; Home for the Friendless at Pittsburgh, 187; Home Missionary Society of Philadelphia, 124; humane f'so- cieties for children, 146; institu- tions for combined care of adults and children, 215; J. Edgar Thom- son School for Girls, 172; Joint Shelter for Children, 188; non- 335 Endowments (continued) sectarian orphanages and homes, congregate type, i88; Pennsylva- nia Society to Protect Children from Cruelty, 146; Pittsburgh Home for Babies, 172; private in- stitutions for dependents, 222; Pruner Home for Friendless Chil- dren, 170; statistics of, to institu- tions, 223; Thaddeus Stevens In- dustrial School, 171. See also Property Valuation Epileptic Hospital and Colony Farm, Oakbourne, Pa.: description and statistics of, 99, 272 Epileptics: commission on segregation and care of, appointed, 270, report of, 268, 271-274; number of, in different institutions, 272; provi- sion for in proposed children's code, 33 Epileptics, Passavant Memorial i Home for: description and statis- tics of, 98-99, 1 01-104, 272 Episcopal. See Protestant Episcopal Equipment: Baptist Orphanage, 179; Methodist Episcopal Orphanage, 179; Presbyterian Orphanage, 179; St. Paul's Orphans' Home of the Pittsburgh Synod of the Reformed Church, 180 Erie County: excellent detention home of, 66-67 Expenditure: of children's institu- tions, comparison for four states, 24, 25-26 Expense: average, of state and county homes, 75; comparison of current, in child-caring agencies, 157, in groups of children's institutions in Eastern and Western Pennsylvania, 7-13; current, of children's insti- tutions in Eastern Pennsylvania, 7, in eight states, 4, of state and county homes for children in Penn- sylvania, 8; for maintenance, statute concerning, 284; statistics of maintenance, of institutions, 224, per capita, 225; variations in data concerning maintenance, 51 Expenses: Baptist Orphanage, 179; Catholic orphanages and homes, Expenses (continued) congregate type, 198; Child Wel- fare Association of Allegheny County, 154; Children's Aid So- ciety of Pennsylvania, 123; Chil- dren's Aid Society of Western Pennsylvania, 125; Children's Home Society of Pennsylvania, 126; Children's Village at Meadow- brook, 171, 172; county children's aid societies of Eastern Pennsylva- nia, 133; county children's aid so- cieties of Western Pennsylvania, 141; general church orphanages and homes, congregate type, 206, 207; Girard College, 187; Girls' Industrial School, 170; Hershey Industrial School, 170; Home for the Friendless at Pittsburgh, 187; Home Missionary Society of Phil- adelphia, 124; Humane Society for Children, 147; institutions for com- bined care of adults and children, 215; J. Edgar Thomson School for Girls, 172; Joint Shelter for Children, 188; Juniata Valley Children's Aid Society, 126; Ju- venile Aid Society of Philadelphia, 153; Methodist Episcopal Orphan- age, 179; nonsectarian orphanages and homes, congregate type, 187, 188, cottage type, 172, 173; Penn- sylvania Society to Protect Chil- dren from Cruelty, 146; Pitts- burgh Home for Babies, 172; Pres- byterian Orphanage, 179; Pruner Home for Friendless Children, 170; St. Paul's Orphans' Home of the Pittsburgh Synod of the Reformed Church, 180; Society for the Care of Jewish Orphans, 155; special child-caring agencies, 155; sum- mary of, by agencies and institu- tions, 231, for private institutions for dependents, 222, 223; Thad- deus Stevens Industrial School, 171; Women's Directory of Phil- adelphia, 153 Falconer, Martha P., 244, 254 Faulkner, C. E.: quoted, 164 Feeble-minded: adequate provision for, approximate cost of, 274, 275; care and segregation of, 266-275; care of, in almshouses, hospitals. 336 Feeble-minded [continued) and institutions for delinquents, disapproved, 272; care required for, 269, 270; children in almshouses, 55; classification of groups, 268, 269; commission on segregation and care of, appointed, 270; East- ern Pennsylvania Institution for, description and statistics of, 96-97, 101-104; general estimates as to number of, 272, 273; homes and training schools for, 95-104; insti- tutions for, comparative statistics for four states, 15; law for estab- lishment of village for, women, 100, 286, 287; number and statistics of, 12; number of, not in appropriate institutions, 272, on waiting lists of institutions, 272; per cent of, defi- nitely and appropriately provided for, 274; placed out, 245; provi- sion for, in proposed children's code, 33; provision for, inadequate at present, 244, 245, 272; report of Pennsylvania commission on, 15; segregation of, important, 244, 245; situation in regard to care and segregation of, 270-274; special study now given, 266; statistics of, in Pennsylvania institutions, 271; suggestions for state program rela- tive to, 274, 275; Western Penn- sylvania Institution for, description and statistics of, 95^6, 101-104; women of child-bearing age, cus- todial care urgently needed for, 270, 274, 275. See also Mentally Deficient Feeble-Minded a Sociological Prob- lem, The: by Martin \V. Barr, 266, 269 Feeble-Minded, Pennsylvania Train- ing School for, Elwyn: descrip- tion and statistics of, 97-98, loi- 104 Feeble-Minded World, The: by Walter S. Cornell, 266, 268 Feeble-Mindedness: causes, 266, 267, 268; defined by Pennsylvania commission, 271; definitions, 267, 268, 269, 271; need of accepted definitions, 267 Field Work: aims and difficulties, 41 Financial Statistics: contents of ta- bles concerning, 48-49; county children's aid societies of Eastern Pennsylvania, 133, 134; county children's aid societies of Western Pennsylvania, 141; humane socie- ties for children, 146, 147; Penn- sylvania Society to Protect Chil- dren from Cruelty, 146 Flinn, Miss Mary, 254 Florence Crittenton Homes, 214 Forms, Samples of Agency, 301 Foundlings: care of in Philadelphia, 75 Franklin County Children's Aid So- ciety: scope of work, 133 Frazier, Dr. Charles H., 254 Friends' Orphanages, 206 Fuller, Fred W., 253 Funds. See Private Funds; Public Funds Gates, W. .\.: quoted, 261; state pro- gram outlined by, 261, 262 Gavisk, Father Francis H.: at Na- tional Conference of Charities and Correction, 200; on state super- vision, 258, 259 General and Legislative Matters, 237-298 General Child-caring Agencies. See Child-caring Agencies, General General Church Orphanages and Homes: Baptist, 278; Hebrews, 178; Lutheran, 178; Mennonites, 178; Methodist Episcopal, 178; Presbyterian, 178; Protestant Epis- copal, 178; Reformed, 178; Roman Catholic, 178; statistics, 209-213; United Brethren, 179 General Church Orphanages and Homes, Congregate Type, 206- 213; American Salvation Army, 206; capacity, 206; Christian Vol- unteers, 206; employes or workers, 206; expenses, 206, 207; Friends, 206; general character, 207, 208; German Protestants, 206; Hebrew Farm School, 206, 207; Jewish Fos- 337 INDEX General Church Orphanages and Homes, Congregate Type {con- tinued) ter Home and Orphan Asylum, 207; Lutheran Orphans' Home, 206, 207; Mennonites, 206; Methodist Epis- copalians, 206; methods of investi- gation and supervision of cases, 207; number of children in care, 206; number, religious denomina- tions, and locations, 206; plants and endowments, 206; Protes- tant Episcopalians, 206; public funds received, 206; Reformed church, 206; Salvation Army, 206; scope of work, 206, 207; Shelter for Colored Orphans, 207; United Presbyterians, 206 General Church Orphanages and Homes, Cottage Type, 178-185; capacity, 179, 180; endowment, 179; number of children in care, 180; scope of work, 180, 181; statistics, 182-185; value of plants, 179 General Comments: concerning insti- tutions for crippled children, 109 General Suggestions and Recom- mendations, 239-255 General Summary for Agencies and Institutions, 230-236. See also Agencies and Institutions George Junior Republic of Wes- tern Pennsylvania: description and statistics, 84-85, 91-94 German Protestant Orphanage, 206 GiRARD College for Orphan Boys: agricultural training, provision for neglected, 18-19; amount of in- vestment, 3; assets not fully used, 17; description, 16-19; donor's re- striction limiting work, 250; en- dowment, 231; statistics, 16-19, 187, reasons for differentiating, 5, 7; suggestions regarding, 17-18 Girls' Industrial School, 125; sta- tistics, 170 Glen Mills Schools: boys' depart- ment, description and statistics, 83- 84, 91-94; girls' department, de- scription and statistics, 82-83, 91-94; semi-public institutions, 80, 83 Good Will Farm, Hinckley, Maine, 17 Greene County Children's Home: description and statistics, 73-74, 76-79 Grouping: of data gathered in the study, 42 Harrisburg Almshouse: detention home located in, 55 Hart, Dr. Hastings H.: Cottage and Congregate Institutions, quoted, 173; on misguided benevolence, 249; quoted, 164 Health : authoritative inspection to en- force standards of, needed, 244. See also Physical Conditions Hebrew Farm School, 207 Hebrew Institutions, 178, 206 Hebrew Sheltering Guardian Or- phan Asylum, New York: occupa- tional training, 18 Henderson, Charles R.: almshouse conditions described by, 58; on placing-out children, 122 Hershey Industrial School, 170 Holmes, Thomas: quoted, 274 Holy Family Polish Orphan Asylum, 199 Home for the Friendless, Pittsburgh, 187 Home Missionary Society, Philadel- phia: children placed out, 125; ex- penses, 124; number of children in care and under supervision, 125; plant and endowment of, 124; scope of work, 124, 125 Home of the Merciful Saviour for Crippled Children, Philadelphia: description and statistics, 106, 1 10- 113; class of children received, 106 Homeless Children: care of, 233 Homes: for dependents, state and county, 71-79. See also Catholic Orphanages and Homes; General Church Orphanages and Homes; Nonseclarian Orphanages and Homes 338 Homes and Training Schools: for de- linquents, 80-94 Homes, County: for dependent chil- dren, capital and expense, 8 Homes, State: for dependent children, capital and expense, 8 House of Detention. See Detention Homes House of St. Michael and All An- gels: for crippled Negro children, aflTiliated with Children's Bureau of Philadelphia, 152; description and statistics, 106-107, •10-113 House of the Holy Child: affiliated with Children's Bureau of Philadel- phia, 132 Housing: provided for widows and children, 154 Howard Institution: affiliated with Children's Bureau of Philadelphia, 152 Humane Societies for Children, 145- 150; arrangement of tables con- cerning, 49-30; children placed out, 147; expenses, 147; number in Pennsylvania, 19; number of children in care and under super- vision, 147; of Eastern and West- ern Pennsylvania compared, 20- 21; plants and endowments, 146; statistics, 148-150; summary con- cerning plant, valuation, financial statement, and scope of work, 146 '47 Hurley, T. D.: on juvenile court law, 238 Idio-imbeciles: definition of term, 269. See also Feeble-minded Idiots: definition of term, 269. See also Feeble-minded Illinois: state supervision in, 236 Imbeciles: definition of term, 269. See also Feeble-minded Inception of the Study, 33 Industrial Home for Crippled Chil- dren, Pittsburgh: for crippled white children, description and sta- tistics, 108, iio-i 13 Industrial Training: at Thorn Hill School, 82; state and county homes having, 71-72, 72-73. See also Blair County Industrial Training Home; Girls' Industrial School; Hershey Industrial School; Indus- trial School for Soldiers' Orphans'; Thaddeus Stevens Industrial School; Thorn Hill School Inspection. See Supervision Institution: definition of term as used in the study, 42 Institution of Protestant Deacon- esses: in charge of home for epi- leptics, 98 Institutional: care of babies, 172; de- fects in, placing-out, 247 Institutions for Combined Care of Adults and Children, 214-221; capacity, 214; children placed out, 215; congregate type, 214; cottage type, 214; employes or workers, 213; expenses, 213; Florence Crit- tenton Homes, 214; general char- acter, 213; Lutheran, 214; non- sectarian, 214; number of, 168; number of children in care, 213; plants and endowments, 215; Prot- estant Episcopal, 214; public funds received by, 213; Roman Catholic, 214;- scope of work, 214; secretiveness of certain, 213; sta- tistics, 218-221; suggestions and recommendations for improve- ment of, 213, 216, 217; type, num- ber, religious denominations, and locations, 214 Institutions. See also Agencies and Institutions Investigation: need of special, 240, 241 Investigations: before placing-out, 249; by Children's Bureau of Phil- adelphia for other organizations, 152; of cases by general church orphanages and homes of congre- gate type, 207. See also Admission, Investigation for Investment: comparative, in groups of children's institutions of Eastern and Western Pennsylvania, 7-13, of eight states, 4; in state and 339 Investment (continued) county homes for children, Penn- sylvania, 8; per capita in institu- tions, 225. See also Property f^al- uations Iowa: state supervision in, 262 J. Edgar Thomson School for Girls, 172 Jewish Foster Home and Orphan Asylum, 207 Joint Shelter for Children, 188; managed by Children's Bureau of Philadelphia, 124, 152 Juniata Valley Children's Aid So- ciety; children placed out by, 126; expenses, 126; number of children in care and under supervision, 126; plant, 126; Professor David Em- mert founder of, 127; territory and scopeofwork, 126, 127; unendowed, 126 Juvenile Aid Society, Philadelphia: children placed out by, 153; ex- penses, 153; number of children in care and under supervision, 153; scope of work, 153 Juvenile Court: H. P. Richardson on, 67, 68, 246; Philadelphia, excellent features of, 68; improvements in conditions, 67-68 Juvenile Court Association of Alle- gheny County: merged with Chil- dren's Bureau, 134 Juvenile Court Law: contrasts in en- forcement of, 31; T. D. Hurley on, 238. See also Children's Code Juvenile Court Work, 246, 247; suc- cess of, retarded by rotation of judges, 246 Juvenile Courts: detention homes of, statistics, 11-12. See also Deten- tion Homes Kingsley, Sherman C: quoted, 2 Lackawanna County Humane So- ciety: union of, with Associated Charities at Scranton, 145 Lattimore, Florence L.: report of children in Pittsburgh almshouses, quoted, 57 Law of 1913 for Mothers' Assist- ance, 276-282, 285, 286 Laws: contradiction of existing, rela- ting to children, 252. See also Legislation; Statutes Legislation: concerning children in almshouses, 56, 57, 59, 290, chil- dren on probation, 283, 284, deser- tion of families, 286, establishment of detention homes, 66, 283, state appropriations, 291; defining re- sponsibility for maintenance of de- pendent children, 284; Digest of the Laws Relating to the Board of Public Charities, 209; new, a neces- sity, 291, 292; secured by Public Charities Association, 254; for es- tablishing children's homes de- sired, 36; village for feeble-minded women, 100, 286, 287; ill-consid- ered, dangerous, 291, 292; neces- sity for children's code, 252; pro- vided in proposed children's code, 33; providing for boards of visita- tion, 287, 288; providing for state supervision, 261, 288, 289. See also Children's Code; Laws; Statutes Legislative Matters, General and: 237-298 Licensing: no method of, private char- ities, 260 Lincoln Institution and Home for Destitute Colored Children: affiliated with Children's Bureau of Philadelphia, 132 Little, Riley M., 254 Location: changes in type and, 243; of Catholic orphanages and homes, congregate type, 198; general church orphanages and homes of congregate type, 206; institutions for combined care of adults and children, 214; nonsectarian orphan- ages and homes, congregate type, 187 Locations: confined, undesirable, 243 Lutheran Institutions, 178, 206, 207 340 INDEX Luzerne County Humane Society: union of, with United Charities at W'ilkes-Barre, 145 Lycoming Children's Aid Society: scope of work, 133 Madeira, Mrs. Louis C, 254 Magdalen Society, Philadelphia: for delinquent white girls, description and statistics, 86-87, 9'~94 Maintenance Expense. See Expense Management: economy of, 242; of nonsectarian orphanages and homes, 169; type of, the index for classification as public or private, 44, 168 Managing Boards: necessity for bet- ter understanding between, and institution officers, 243 Maryland: children's institutions, cur- rent expense, 4, investment and numbers in, 4, statistics of, com- pared with three states, 13-16, sub- sidy system for, 22, 23-25 Massachusetts: children's institu- tions, current expense, 4, invest- ment and numbers in, 4, children's visitors employed by, 30 McCarthy, Dr. D. J., 254 McClain, Franklin B., 253 McCoucH, Mrs. H. Gordon, 254 McCoucH, Virginia M. P.: quoted, 277 McMahon, Rev. Father D. J.: on state supervision, 258 Meadowbrook. See Children's tillage at Meadowbrook; Seyhert Institu- tion Mennonite Orphanages, 178, 206 Mental Defectives: in county homes, 71 Mentally Deficient Children, 244, 245. See also Feeble-minded Mercer County Children's Aid So- ciety: paid worker employed by, 138 Methodist Episcopal Orphanages: 178, 179, 206 Miscellaneous Institutions for Children: dealt with in Part Two, 53-119; summary for, 114- 119 Misguided Benevolence, 249-252 Montgomery County: excellent de- tention home, 66-67 Montgomery County Children's Aid Society: children placed out by, 133; scope of work, 133 Morganza. See Pennsylvania Training School Morons: custodial care for, 270; definition of term, 269. See also Feeble-minded Mothers' Assistance Law of 1913, 276-282, 285, 286; attitude of trustees toward, 277; counties or- ganized under, 277; delays in ac- tive operation of, 276: objections to, 276, 277; opposition to, 276; statistics of work under, in Alle- gheny County and Philadelphia County, 282; unity of administra- tion of, desirable, 281 Mothers' .Assistance Fund Trustees OF Allegheny County: report of, quoted, 278 Mothers' Assistance Fund Trustees OF Philadelphia County: changes in system suggested by, 280; re- port of, quoted, 278 Mulry, Thomas M.: at National Con- ference of Charities and Correc- tion, 200 Municipalities: can not deal ade- quately with child welfare prob- lems, 31-32 Murdoch, J. M.: on care of defectives, 238 National Conference of Charities AND Correction: participation of Catholic social workers in, 200; quoted, 258, 259 Negroes. See Colored 341 New Hampshire: children's institu- tions, current expense, 4, invest- ment and numbers in, 4 New York: child welfare organizations, number of, 3; children's institu- tions, current expense, 4, invest- ment and numbers, 4, ratio of chil- dren in, to population, 6, size, 5, statistics, compared with three states, 13-16, subsidy system, 22, 23-25 New York State Agricultural and Industrial School, Industry, N. Y., 18 Non-Catholic Institutions: statis- tics of in four states, 22, 23-26 Nonsectarian Institutions: for com- bined care of adults and children, 214; number of congregate, 167; number of cottage, 167 Nonsectarian Orphanages and Homes: management, 169; sta- tistics concerning, 174-177, 190^ 197 Nonsectarian Orphanages and Homes, Congregate Type, 186- 197; capacity, 188; employes, 188; expenses, 187, 188; Girard College, 187; Home for the Friendless, 187; Joint Shelter for Children, 188; number and location, 187; number of children in care, 188; Orphan Society of Philadelphia, 187; per cent of capacity used, 188; per cent of children in, reported as orphans, 18^^; plants and endow- ments, 188; progress, 186; public funds received, 188; visits of trained inspectors to, desirable, 186 Nonsectarian Orphanages and Homes, Cottage Type, 169- 177; capacity, 169, 173; Children's Village, 171; Christ's Home for Homeless and Destitute Children, 169; Eastbrook Home for Destitute Negro Children, 169; employes, 173; expenses, 172, 173; Girls' In- dustrial School, 170; Hershey In- dustrial School, 170; J. Edgar Thomson School for Girls, 172; number, 169; number of children in care, 173; Pittsburgh Home for Babies, 172; Pruner Home for Nonsectarian Orphanages and Homes, Cottage Type (continued) Friendless Children, 170; Thad- deus Stevens Industrial School, 170; value of plant, 173 Northern Home for Friendless Children, 51; affiliated with Chil- dren's Bureau of Philadelphia, 132 Notes on Causation of Mental Defect: by Martin W. Barr, 266 Number: of private institutions for dependents, 165 Number of Children in Care and Under Supervision: of Baptist Orphanage, 179; Bureau for Jewish Children, 151, 152; Catholic or- phanages and homes, congregate type, 199; child-caring agencies, 157, 158; Child Welfare Associa- tion of Allegheny County, 154; Children's Aid Society of Penn- sylvania, 123; Children's Aid So- ciety of Western Pennsylvania, 125; children's institutions in eight states, compared, 4; Children's Village, 171, 172; county children's aid societies of Eastern Pennsyl- vania, 134; county children's aid societies of Western Pennsylvania, 141; general child-caring agencies, 127; general church orphanages and homes, congregate type, 206, cottage type, 180; Girard College, 187; Girls' Industrial School, 170; Hershey Industrial School, 170; Holy Family Polish Orphan Asy- lum, 199; Home for the Friendless, 187; Home Missionary Society of Philadelphia, 125; humane socie- ties for children, 147; institutions for combined care of .adults and children, 215; J. Edgar Thomson School for Girls, 172; Joint Shelter for Children, 188; Juniat Valley Children's Aid Society, 126; Juve- nile Aid Society, 153; Methodist Episcopal Orphanage, 179; non- sectarian orphanages and homes, congregate type, 188, cottage type, 173; Pennsylvania Society to Pro- tect Children from Cruelty, 146; Pittsburgh Home for Babies, 172; Presbyterian Orphanage, 179; pri- vate institutions for dependents, 222; Pruner Home for Friendless 342 INDEX Number of Children in Care and Under Supervision {continued) Children, 170; Roselia Foundling Asylum, 199; St. Paul's Orphan Asylum, 199; St. Paul's Orphans' Home, 180; St. Vincent's Home. 199; St. Vincent's Home and Maternity, 199; St. Vincent's Or- phan .Asylum, 199; Society for the Care of Jewish Orphans, 135; spe- cial child-caring agencies, 155; Thaddeus Stevens Industrial School, 171; Western Pennsylvania Humane Society, 146; Women's Directory, 133 Occupational Training: at Gir.ird College, 16; at Hebrew Sheltering Guardian Asylum, New York, 18 Ohio: children's code in, 232; children's institutions, current expense, 4, in- vestment and numbers in, 4 Orphan Society of Philadelphia, 187 Orphanages and Homes: private, general criticism of, 169, number and grouping of, 46. See also Catholic Orphanages and Homes; General Church Orphanages and Homes; Nonseciarian Orphanages and Homes Orphans: per cent of children cared for reported as, 188 Paid Workers. See IVorkers, Paid Paradise Protectory, 198 Parental Schools: suggestions con- cerning establishment of, 90 Parents: treatment of by children's societies, 21 Passavant Memorial Home for Epileptics, Rochester, Pa.: de- scription and statistics of, 98-99, 10 1 -104, 272 Penn, W. F. : superintendent of Penn- sylvania Training School, excellent work of, 8 1 Pennsylvania: amount invested in children's institutions, 3; child wel- fare organizations, number of, 3; Pennsylvania (continued) Eastern, counties and population of, 6; Eastern, current expenses of children's institutions in, 7; gen- erosity of provision for needy children, 5; investment for chil- dren, magnitude of, 3; ratio of children in institutions to popula- tion, 6; size of children's institu- tions, 5; state supervision, 239- 261; statistics of children's insti- tutions compared with three states, 13-16; Western, counties and popu- lation of, 6; Western, current ex- penses of children's institutions in, 7 Pennsylvania Associates: co-opera- tion of in the study, 35 Pennsylvania Epileptic Hospital AND Colony Farm: description and statistics of, 99 Pennsylvania Railroad Employes: home for daughters of, killed in service, 172 Pennsylvania Society to Protect Children from Cruelty, 19; I children placed out by, 146; Chil- dren's Bureau, agent of, 124, 132; expenses, 146; number of children in care and under supervision, 146; paid workers employed, 145, 146; plant and endowment, 146; scope of work, 143, 146; valuation and financial statement, 146; working alliance of, with Children's .^id Society of Pennsylvania, 146 Pennsylvania State Board of Charities. See State Board of Chariti.'s Pennsylvania State Conference of Charities. See State Confer- ence of Charities Pennsylvania Training School for Feeble-Minded Children, E1- wyn: description and statistics, 97-98, 101-104 Pennsylvania Training School, Morganza: a state institution for wayward boys and girls, 80-81; description and statistics, 80-81, 91-94 Pensions, Mothers'. See Mothers' Assistance Law 343 Philadelphia: county courts commit needy children of, 75; department of public health and charities, needy children committed to, 75; juvenile court work in, 68, im- provement of conditions in, 67-68 Philadelphia County Almshouses: children kept in, 55 Philadelphia County Detention Home: description and statistics, 67; excellent work, 66-67 Philadelphia Protectory for Boys, Protectory Station: description and statistics of, 88-89, 9'~94 Physical and Psychological Exam- inations: desirability of, for ad- mission, 240 Physical Conditions, 243-244. See also Health Pittsburgh City Home: children cared for in, 57 Pittsburgh Home for Babies, 172 Placed Out: number of children, by agencies, 247, by institutions, 247 Placing-Out: a last resort in some institutions, 247, 248; advantages of, to child, 128; agencies, co-opera- tion, consolidation and standardi- zation of, 248; agency a necessity, 248; before ten years of age recom- mended, 249; by agencies and in- stitutions (general summary), 232, Bucks County Children's Aid Society, 132, Bureau for Jewish Children, 152, Chester County Children's Aid Society, 132, child- caring agencies, 127, 128, 158, Child Welfare Association of Alle- gheny County, 154, Children's Aid Society of Pennsylvania, 75, 123, 124, 133, Children's Aid Society of Western Pennsylvania, 125, 126, Children's Bureau of Philadelphia, 152, Children's Home Society of Pennsylvania, 126, county chil- dren's aid societies of Eastern Pennsylvania, 134, county chil- dren's aid societies of Western Pennsylvania, 141, Dauphin County Children's Aid Society, 132, Delaware County Children's Aid Society, 132, general child- Placing-Out (continued) caring agencies, 127, Home Mis- sionary Society of Philadelphia, 124, 125, humane societies for children, 147, institutions for com- bined care of adults and children, 215, Juniata Valley Children's Aid Society, 126, 127, Juvenile Aid Society, 153, Montgomery County Children's Aid Society, 133, Penn- sylvania Society to Protect Chil- dren from Cruelty, 146, private institutions for dependents (general summary), 223, special child-caring agencies, 155, Western Pennsylva- nia Humane Society, 146, Women's Directory, 153; Charles R. Hen- derson on, 122; conclusions of White House Conference on, quoted, 122; co-operation between agencies and institutions, 248; de- fects in institutional, 247; definition of term, 166, 167; delinquents a special problem, 249; discharged wards, 247; favored by county children's aid societies of Eastern Pennsylvania, 133; feeble-minded, 245; from county homes, 71, 72, 73, 74; investigation before, 248, 249; normal children urged, 249; selection in, 29, 30; standardiza- tion of, needed, 247; state super- vision of, 30; supervision after, 248; two branches of agency, 248, 249; use of trained agents in, 248. See also Child-placing Societies Placing-Out Work, 247, 248, 249 Plants. See Property Valuations PooRHOUSES. See Almshouses Population: of children's institutions, comparison for four states, 24 Presbyterian Orphanages, 178, 179 Principles and Standards in Granting State Aid: by William Bradford Buck, 245 Private Funds: definition of term as used in the study, 42-43 Private Institutions: classification, 44; number and grouping of, 46 Private Institutions for Depend- ents, 163-236; capacity of, de- fined, 166; children in care, 222; 344 INDEX Private Institutions for Depend- ents (continued) children placed out by, 223; cottage and congregate type of, defined, 165, 166; expenses, 222, 223; items covered by stories of, included in study. 167; number of, 165; num- ber of, combining care of adults and children, 168; per cent of ca- pacity used, 222; plants and en- dowments, 222; property values, 166; public funds received, 223; statistics, 227-229; summary, 222- 229; type of, 165, 166. See also Institutions Probation: revised statute affecting, 283, 284; state, commission sug- gested, 247; work of in Philadel- phia juvenile court, 68 Probation Officers: provision affect- ing, violated, 246 Progress: in nonsectarian orphanages and homes of congregate type, 186; transition and, 293-298 Progressive Spirit: in leading insti- tutions and agencies, 255 Property: of special child-caring agen- cies, 155 Property Valuations (including plants and endowments): agencies and institutions, 230, 231; Alle- gheny Widows' Home Association, 154; Baptist Orphanage, 179; Catholic orphanages and homes, congregate type, 198; child-caring agencies, 157; Children's Aid So- ciety of Pennsylvania, 123; Chil- dren's Aid Society of Western Pennsylvania, 125; Children's Home Society of Pennsylvania, 126; Children's Village, 171, 172; county children's aid societies of Eastern Pennsylvania, 133, 134; county children's aid societies of Wester. 1 Pennsylvania, 141; gen- eral church orphanages and homes, congregat ' type, 206; general church orphanages and homes, cottage type, 179; Girard College, 187; Girls' Industrial School, 170; Hershey Industrial School, 170; Holy Family Polish Orphan Asy- lum, 199; Home for the Friendless, 187; Home Missionary Society of Property Valuations {continued) Philadelphia, 124; humane societies for children, 146, 147; institutions for combined care of adults and children, 215; J. Edgar Thomson School for Girls, 172; Joint Shelter for Children, 188; Juniata Valley Children's Aid Society, 126; Metho- dist Episcopal Orphanage, 179; nonsectarian orphanages and homes, 173, congregate type, 188; Pennsylvania Society to Protect Children from Cruelty, 146; Pitts- burgh Home for Babies, 172; Pres- byterian Orphanage, 179; private institutions for dependents, 166, 222; Pruner Home for Friendless Children, 170; Roselia Foundling Asylum, 199; St. Paul's Orphan Asylum, 199; St. Paul's Orphan Home, 180; St. Vincent's Home and Maternity, 199; St. Vincent's Orphan Asylum, 199; special child- caring agencies, 155; statistics of, of institutions, 223; Thaddeus Stevens Industrial School, 171; variations in data concerning, 51 Protestant Episcopal Institutions, 178, 206, 214 Pruner Home for Friendless Children, 170 Psychological Examination: desira- bility of, for admission, 240 Public Appropriations to Private Institutions: by Joseph .\. Beck, 245. See also Public Funds; State Aid; Subsidy System Public Charities Association, 252- 254; enactment of legislation se- cured by, 234; first annunl report of, quoted, 253; investigation of children in Allegheny County almshouse by, 58; origin and pur- poses of, 253, 254 Public Funds: appropriation of, to Catholic and non-Catholic insti- tutions in four states compared, 23-26; constitutional pro\ision re- lating to appropriation of, 291, violated, 243; definition of term as used in the study, 42-43; dis- tribution of, by state, recommenda- tions concerning, 29-30, in lump sum less satisfactory than per 345 INDEX Public Funds (continued) capita basis, 29, no governing principle for, 26-27, on scientific basis desirable, 245; not a benefit to children's aid societies of West- ern Pennsylvania, 139, 140; num- ber of private organizations receiv- ing, in Pennsylvania, 21, 23, com- parison for four states, 22, 23-26; Public Charities report on distribu- tion of, quoted, 253; received by agencies and institutions, 23 1 , Cath- olic orphanages and homes, con- gregate type, 198, children's insti- tutions in Eastern Pennsylvania, 7-8, in Western Pennsylvania, 7-8, general church orphanages and homes, congregate type, 206, insti- tutions for combined care of adults and children, 215, nonsectarian orphanages and homes, congregate type, 188, private institutions for dependents, 223; recommendation that appropriation of, be made dependent on maintenance of standards in institution, 30; small expenditure of, not always econ- omy, 20; statistics showing per cent of expenses of institutions paid from appropriations of, 224; to Pennsylvania children's institu- tions, statistics concerning, 26-27; to private institutions, 21-32, 245, 246 Public Institutions: classification, 44 Public Provision for the Feeble- minded: by Walter S. Cornell, 267 Public School. See Education Public School Training: advantages of, 244 Ralph, Georgia C, 240 Ratio: of children in institutions to population of New York, 6, of Pennsylvania, 6 Rauh, Mrs. Enoch, 254 Rauschenbusch, Dr. Walter: quoted, 293 Recommendations: concerning a state program of child-care and super- vision, 32-33; concerning county care of children, 75; enlarging Recommendations (continued) powers of state board of charities, 75; establishment of homes for defectives, 99-100; establishment of parental schools, 90; general, 239-255; homes and training schools for delinquents, 90; im- provement of conditions in alms- houses, 59; state supervision of children, 29-30 Records, 239, 240; lack of adequate, 20, 239, 241, 242; legal requirements concerning, 260; need of adequate and uniform, 240; of detention homes inadequate, 66; private charities not compelled to keep adequate, 260; suggestion for pro- curing uniform, 240 Reformed Church Homes, 178, 206 Relational Condition: of children, 232, 233 Relatives: duty of urging aid to, 241 Religion: the power behind social service, 295, 296 Religion and Social Service: Rabbi Stephen S. Wise on, 238 Religious Denominations: of general church orphanages and homes, congregate type, 206; of institu- tions for combined care of adults and children, 214 Report of the Commission on Segregation, Care and Treat- ment OF Feeble-minded and Epileptic Persons in Pennsyl- vania: quoted, 268, 271-274 Responsibility for Maintenance: statute defining, of dependent chil- dren, 284 Restrictions: donor's, limiting work of institutions, 250-252; no, on founding, organizing or manage- ment of private charities, 260 Results: combined, of general child- caring agencies, 127, 128 Rhodes, Mrs. Charles J., 254 Richardson, H. P., 246; quoted con- cerning Philadelphia juvenile court, 67, 68 346 INDEX Robinson, George B.: at National Conference of Charities and Cor- rection, 200 Roman Catholic. See Catholic RosELiA Foundling Asylum, 199 Round Table Conference of Colored Institutions: organized under Children's Bureau of Phila- delphia, 132 Rural Districts: need benefit of chil- dren's institutions, 32 Russell Sage Foundation: investi- gations of Pennsylvania children's organizations by, 35- See also Department of Child Helping of the Russell Sage Foundation St. John's Orphan Asylum, 198 St. Joseph's Orphan .Asylum, 198 St. Joseph's Protectory for Girls, Norristown, Pa.: description and statistics of, 85, 91-94 St. Mary Magdalen Society for Colored Girls, Germantown, Pa.: description and statistics of, 87-88 St. Paul's Orphans' Home, 180, 199 St. Vincent's Home, 199 St. Vincent's Home and Maternity, •99 St. Vincent's Orphan .Asylum, 199 Salaries: higher, for workers recom- mended, 243; of employes, 226. See also Expenses Salvation .Army Homes, 206 Samples of .Agency Forms, 301 Schedule, The: facsimiles of, 37-40; used in the investigation, 36 School. See Public School Scope of the Study, 35-36 Scope of Work of Agencies and Institutions: Allegheny Widows' Home Association, 154; associated charities, 147; Bucks County Chil- dren's Aid Society, 132; Bureau for Jewish Children, 151, 152; Scope of Work of Agencies and Institutions (continued) Catholic orphanages and homes, congregate type, 198; Chester County Children's Aid Society, 132; child-caring agencies, 151, 157, 158; Child Welfare Associa- tion of Allegheny County, 154; Children's Aid Society of Penn- sylvania, 123, 124; Children's Aid Society of Western Pennsylvania, 125, 126; Children's Bureau of Philadelphia, 1 52; Children's Home Society of Pennsylvania, 126; Chil- dren's Village, 171, 172; county children's aid societies of Eastern Pennsylvania, 133, 134; county children's aid societies of Western Pennsylvania, 138; Dauphin County Children's Aid Society, 132; Delaware County Children's Aid Society, 132; Franklin County Children's Aid Society, 133; general church orphanages and homes, con- gregate type, 206, 207, cottage type, 180, 181; Girls' Industrial School, 170; Hershey Industrial School, 170; Home Missionary Society of Philadelphia, 124, 125; humane societies for children, 146, 147; in- stitutions for combined care of adults and children, 214; J. Edgar Thomson School for Girls, 172; Juniata Valley Children's Aid Society, 126, 127; Juvenile Aid Society, 153; Lycoming Children's Aid Society, 133; Montgomery County Children's Aid Society, 133; Pennsylvania Society to Pro- tect Children from Cruelty, 145, 146; Pittsburgh Home for Babies, 172; Pruner Home for Friendless Children, 170; Society for the Care of Jewish Orphans, 154, i55;'rhad- deus Stevens Industrial School, 171 ; Western Pennsylvania Humane Society, i46;Women's Directory, 1 53 Scranton Associated Charities: de- tention home in building of, 66 Segregation and Care: commission appointed on, of feeble-minded and epileptics, 270; of feeble-minded, 244, 245, 266-275; of normal chil- dren and defectives desirable, 199; situation in regard to, feeble- minded, 270-274 347 INDEX Selection: in placing of children, 2^30 Sewickley Fresh Air Home, Se- wickley: for crippled white chil- dren, description and statistics of, 108-109, >'o~i '3 Seybert Institution for Poor Boys AND Girls : Children's Bureau agent of, 124, 152; expense of the study shared by, 35. See also Children's tillage at Meadowhrook Shelter for Colored Orphans, 207; affiliated with Children's Bureau of Philadelphia, 152 "Sixty-day Law," 56, 59; affecting the placing and retention of chil- dren in almshouses, 290; enforced by Allegheny City Home, 57 Size: of children's institutions in Penn- sylvania and New York, 5 Sleighton Farm. See Glen Mills Schools, Girls' Department Social Revolution: importance of present, 293, 294 Social Service: basis of, equality of rights, 294, 295; co-operation in, 295; definition of term, 294; religion the power behind, 295, 296; state programs requisite for coordina- tion in, 295 Social Service and Religion: Rabbi Stephen S. Wise on, 238 Social Worker: definition of term, 294 Society for Organizing Charity: affiliated with Children's Bureau of Philadelphia, 152 Society for the Care of Jewish Orphans: expenses of, 155; num- ber of children in care and under supervision, 155; scope of work, 154, 155; volunteer workers of, 155 Soldiers' Orphans' Industrial School, Scotland, Pa.: description and statistics, 45, 71-72, 76-78 SOLENBERGER, EdWIN D., 247; On special work of county children's aid societies of Eastern Pennsyl- vania, 132 Some Revised and Recent Statutes, 283-292 Sommer, Dr. H. J., 253 Spaulding, Bishop: at National Con- ference of Charities and Correc- tion, 200 Special Child-caring Agencies. See Child-Caring /Agencies, Special Standardization: systematic study tends toward, of institutions, 242 Standardization of Placing-Out Work: by Edwin D. Solenberger, 247 Standardization of the Institu- tional Care: by Frank D. With- erbee, 242 Standards: of institutional care, 30 State Aid. See Public Funds; Subsidy System State and County Homes: average expense of, 75; for dependents, 71-79; number of, 71; statistical tables concerning, 76-79 State Appropriations. See Public Funds; Subsidy System State Board of Public Charities: act providing for supervision by, 288, 289; appropriations to insti- tutions supervised by, 27-29; au- thority of, limited, 260, 261; laws relating to the, 291; need for en- largement of powers of, 75; non- partisan selection for service on, recommended, 262; variations in data from those of study explained, 50-51 State Conference of Charities: committee of, on child welfare program suggested, 32; co-opera- tion of, in the study, 35 State Department of All Charities: plan for, outlined, 264, 265 State Department of Children's Charities: plan for, outlined, 263, 264 State Hospital for the Insane: number of epileptics in, 272 State Probation Commission: crea- tion of, suggested, 247 348 State Program of Child Welfare, 31-34; outlined by W. A. Gates, 261, 262; recommendations for, concerning care and supervision, 32-33; requisite for coordination in social service, 295; suggestions for, relative to feeble-minded, 274, 275 State Supervision: act providing for, 288, 289; of agencies an item for children's code, 32-33; of children placed out, 30; of public funds to institutions, 27-31; recommenda- tions concerning, 29, 30 State Supervision of Children's Institutions: 256-265; action in matter of, urged, 265; an item for children's code, 32-33; bill for, presented in 1913, 261; fundamen- tal principles of, 257, 258; in Cali- fornia, 261, Illinois, 256, Iowa, 262, Pennsylvania, 259-261, Wiscon- sin, 262; limited by lack of ade- quate appropriations, 261; nonsec- tarian and nonpartisan, needed, 256; object of, 256, 257; regular, not provided for unsubsidized pri- vate charities, 260; Rev. Father D. J. McMahon on, 258; Rev. Father Francis H. Gavisk on, 258, 259; Rev. Father William J. White on, 238; right and duty of, 257; systems of, imperfect, 257; ways in which satisfactory, may be accomplished, 265 Statistical Tables: arrangement and relations of, 48-52; capacity and children in care for 175 institu- tions for dependents, 225; concern- ing almshouses and poorhouses, by counties, 60-65, Catholic orphan- ages and homes, congregate type, 202-205, county children's aid societies of Eastern Pennsylvania, '35~'37. county children's aid societies of Western Pennsylvania, 142-144, detention homes, by counties, 69-70, general child- caring agencies, 129-13 1, general church orphanages and homes, congregate type, 209-213, general church orphanages and homes, cottage type, 182-185, homes and training schools for defectives, loi- 104, homes and training schools for delinquents, 91-94, humane Statistical Tables (continued) societies for children, 148-150, in- stitutions for combined care of adults and children, 21S-221, non- sectarian orphanages and homes, congregate type, 190-197, non- sectarian orphanages and homes, cottage type, 174-177, Philadel- phia County Detention Home, 67, special child-caring agencies, 156; contents of general and financial section, 48-49; explanation of arrangement and contents, 48-52; feeble-minded persons in Pennsyl- vania institutions, 271; for child- caring agencies under private man- agement, 1 59-161 ; for miscellaneous institutions, number and group- ing of institutions for summary, 1 14-115; for private institutions for dependents, 227-229; general summary for all agencies and insti- tutions, 234-236, in summary chapters, method of arrangement, 114; maintenance e.xpense, amount and per cent derived from public funds for 175 institutions for de- pendents, 224; per capitas for current expense and permanent investment for 175 institutions for dependents, 225; property values for 175 institutions for dependents, 223; salaries of employes and chil- dren per employe for 175 institu- tions for dependents, 226; section on beneficiaries and methods, com- parative current statistics, and statistics of children, 49; showing division of institutions for depend- ents by type and management, 168; summary for Part Two, Miscel- laneous Institutions for Children, 117-119; variations from state board of charities data explained, 50-51; work under Mothers' As- sistance Act in .\llegheny County and Philadelphia County during 1914, 282 Statistics, Comparative: for chil- dren's institutions in four states, 13-16; for groups of children's institutions in Pennsylvania, 7-13 Statutes: some revised and recent, 283-292. See also Laws; Legisla- tion 349 Study. See Scope of the Study; Sys- tematic Study Subsidy System. See Public Funds Suggestions: for improvement of in- stitutions for combined care of adults and children, 215, 216, 217; general, 239-255 Summaries, Statistical: contents of, 50 Summary: for child-caring agencies, 1 57-161; for county children's aid societies of Eastern Pennsylvania, 133, 134; for county children's aid societies of Western Pennsylvania, 141; for humane societies for chil- dren, 146, 147; for miscellaneous institutions for children, 114-119; for private institutions for depend- ents, 222-229; for special child- caring agencies, 155; of relational condition of children, 232, 233; of statistics for agencies and institu- tions, 234-236, child-caring agen- cies, 159-161, private institutions, 227-229 Supervision: by visits of trained in- spectors desirable, 186, 241; of cases by general church orphanages and homes, congregate type, 207; of placed-out children, 248, by child-caring agencies, 158, by county homes, 72, 73, 74. See also State Supervision Systematic Study: lack of adequate records hinders, 241, 242; tends toward standardization of institu- tions, 242; value of, 241, 242 Tables. See Statistical Tables Tener, Governor John K.: Commis- sion on Segregation, Care and Treatment of Feeble-minded and Epileptic Persons, appointed by, 270 Terms: definitions of, 42-43 Territory: of Children's Aid Society of Pennsylvania, 123, 124, Chil- dren's Aid Society of Western Penn- sylvania, 125, 126, Children's Hu- mane Society of Pennsylvania, 126, Juniata Valley Children's Aid Society, 126, 127 Thaddeus Stevens Industrial School, 170 Thaw, Jr., Mrs. William, 254 Thomson School for Girls: donor's restriction limiting work of, 250 Thorn Hill School (Allegheny County Industrial School for Boys), Warrendale, Pa., 18; agricultural work at, 18; description and sta- tistics, 80, 81-82, 91-94 Tilly, David H.: at National Confer- ence of Charities and Correction, 200 Trained Agents or Workers. See l-Vorkers, Trained Training Schools: and homes for delinquents, 80-94 Transition and Progress, 293-298 Tredgold, Dr. A. P.: quoted, 267, 268 Tucker, Frank: quoted, 292 Type: congregate, undesirable, 243; cottage and congregate, defined, 165, 166; of institutions for com- bined care of adults and children, 214; of private institutions for de- pendents, 165, 166; statistics show- ing division of institutions by, 168 Type and Location: changes in, 243 United Brethren Orphanage, 179 United Charities: union of, with Luzerne County Humane Society, 145 United Hebrew Charities: Bureau for Jewish Children, branch of, 151 United Presbyterian Home, 206 Unmarried Mothers and Babies: Women's Directory organized to aid, 153. See z\so Institutions for Combined Care of Adults and Chil- dren Untrained Workers. See IVorkers, Untrained Valuation. See Property Valuations Vaux, Jr., George, 254 350 INDEX Village for Feeble-Minded Women: act providing for, loo. 286, 287 Visitation: act providing for board of, 287, 288 Visitors: force required for state super- vision, 30. See also Supervision, Workers Volunteer Workers. See H'orkcrs, Volunteer Wallace, Rov Smith: on public ap- propriations to private charities, 246 Washington County Children's Aid Society: paid worker employed by, 138 Washington County Children's Home: description and statistics, 74. 76-79 Watch-care: of state charges, inade- quate provision for, 31. See Su- pervision Wayward Children. See Delinquents Wayward Girl, The: by Martha P. Falconer, 244 Western Pennsylvania Children's Aid Societies. See County Chil- dren's Aid Societies of IVestern Pennsylvania Western Pennsylvania Humane Society: children placed-out by, 146; number of children in care and under supervision, 146; scope of work, 146 Western Pennsylvania Institu- tion FOR Feeble-jMinded: de- scription and statistics, 95-96, 101-104; number of epileptics in, 272 Wharton, Bromley, 253 White, Rev. Father William J.: on state supervision of private insti- tutions, 238 Why Pennsylvania Needs a Widows' Pension Law: by Rabbi Rudolph 1. Coffee, 286 Widener Memorial School: amount of investment in, 3, 12; description and statistics, 107-108, 110-113; Widener Memorial ScHOOL(con//«Mf£?) statistics of, reasons for differentiat- ing, 5. 7 Widows and Children: housing pro- vided for, 1 54 Wilkes-Barre United Charities: provides rooms for detention home, 66 William T. Carter Junior Republic, Redington, Pa.: for white Protest- ant boys, description and statistics of, 89-90, 91-94 Wisconsin: state supervision in, 262 Wise, Rabbi Stephen S.: on social service and religion, 238 Witherbee, Frank D., 242 Women of Child-bearing Age: custodial care of feeble-minded, urgently needed, 270, 274, 273 Women's Directory: children placed out by, 133; expenses, 133; number of children in care and under super- vision, 133; organized to aid un- married mothers and babies, 133; scope of work, 1 33 WooDviLLE, Pa., County Home: bad conditions for children in, 57 Woodward, Dr. George, 254 Woodward, Mrs. George, 254 Workers: advantages of paid and volunteer, 138-140; higher salaries for, advocated, 243 ; in agencies and institutions, 231, Catholic orphan- ages and homes, congregate type, 198, general church orphanages and homes, congregate type, 206, institutions for combined care of adults and children, 215, nonsecta- rian orphanages and homes, con- gregate type, 188, cottage type, 173; institutional, reasons for un- rest among, 243; institutional, under severe strain, 242, 243. See also Employes Workers, Paid: amalgamation of ad- jacent counties in Western Penn- sylvania with, recommended, 140; employed by Allegheny County Children's Aid Society, 138, child- caring agencies, i 37, Child Welfare Association of Allegheny County, 351 INDEX Workers, Paid {continued) 154, county children's aid societies, 20, Mercer County Children's Aid Society, 138, Pennsylvania Society to Protect Children from Cruelty, 145, 146, special child-caring agen- cies, 155, Washington County Children's Aid Society, 138 Workers, Trained: investigations for admission by, desirable, 240, 241; necessity for, in good child-caring work, 21; policy of Allegheny County Children's Aid Society concerning, 155; recommended for children's aid societies of Eastern Pennsylvania, 134; supervision of dismissed children by, desirable, 241 ; use of, in placing-out children, 248 Workers, Untrained: institutional, false economy, 242 Workers, Volunteer: county chil- dren's aid societies employ, 20; in Allegheny Widows' Home Asso- ciation, 154, Children's Aid Society of Western Pennsylvania, 125, county children's aid societies of Eastern Pennsylvania, 20, 134, county children's aid societies of Western Pennsylvania, 20, 138, Society for the Care of Jewish Orphans, 135; policy of Allegheny County Children's Aid Society concerning, 135 Young, Robert K., 253 352 RETURN TO the circulation desk of any University of California Library or to the NORTHERN REGIONAL LIBRARY FACILITY BIdg. 400, Richmond Field Station University of California Richmond. 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