cares more for duty than for popularity with the slacker element in his bailiwick will enforce the law in such cases and will not allow the children's home in his county to become a dumping ground for children whose fathers wish to escape parental responsibility in supporting their offspring.

It has been noted that the law is strangely inconsistent in requiring rigid supervision of all bona fide child-placing agencies - except juvenile courts. So far as placing children is concerned, the average juvenile court judge is a law to himself. He can do as he pleases. There is no rule for him to follow, except his own will. He may be a good lawyer, a very fine man, a conscientious judge, but if he had had no experience in the work and very few of them have had experience before their election to office he is liable to make serious mistakes, and his successor will very likely make the same mistakes. Apparently the law-makers felt that the juvenile court, like the king, could do no wrong. This has led to numerous serious mistakes in placement and outrageous neglect in visitation. It has been asserted that no one juvenile court in the state of Ohio has adequate machinery for proper investigation of its cases. I know of one case where a judge - a mighty good man, too gave a baby for adoption to a couple united in a bigamous marriage.

There is in consistency in the law which in section 3093 gives a children's home the sole and exclusive guardianship of a child, and Section 1643 which provides for the continuing jurisdiction of juvenile court judges who place children in family homes. Investigation has shown that a great many very unhappy placements of children have been made by juvenile judges who mean well, but are without exerience and lack standards of the work. Lacking well defined standards in law, it must be expected that men elected to office partly for political reasons, and without special training in the work, will make some mistakes of grave character. And mistakes of this kind are apt to bear bitter fruit in the way of unhappy and sometimes corrupted lives.

For some time past the Board of State Charities has been doing for certain classes of children a kind of work that could not be done by institutional homes. Up to December 1, 1918. the Board has received 660 children, of whom 576 are in family homes, in boarding homes, or in institutions under the Board's care. The Welfare Department is developing a state-wide placing-out program for such children as are found to be physically and mentally eligible for placement. It is giving special attention to the ancestry of the child, as well as to intensive examination. to avoid placing children physically and mentally unfit, who will not need custodial care. The Department by this means is caring for a large number who, under ordinary circumstances, could not make good in family homes, but who thru state service are given the benefit of all that science and medicine can do to fit them for the requirements of life.

All child-caring agencies are dealing with results of conditions that for the greater part could be eliminated or corrected. Much of the delinquency and depend ency that require energy and effort for proper treatment are effects of causes that might have been prevented if the right means had been taken in time. It is a safe guess that in every county children's home in Ohio a majority of the inmates have both parents living. In his address to the State Conference held at Springfield a little over a year ago, our honored Governor stated that he had been told that in one county home of the state not one of the children therein was an orphan. And he made a significant comment on the fact. I can add that at present there are several such homes. It is my firm belief that the voters of Ohio on the fifth of November last did more to cut down child dependency in Ohio than has been done by all the Conferences that have been held in the state. When the booze-sellers have shut up shop the population of children's home is going to decrease very materially.

The child-caring institutions are engaged in the greatest and grandest work that is being done in the state today. They alleviate present suffering and deal with future possibilities. They have in their hands the making or marring of lives for time and eternity. The people engaged in this work are, as a rule, the most earnest, sincere,

unselfish and self-sacrificing folks to be found anywhere. However, even the best of us sometimes make mistakes, and the most successful can by effort always make improvement. So forgetting the errors of the past, overlooking any differences that may have come from honest but mistaken motives, thinking only of the wonderful work, the Godgiven task, that is before us in the swift journey we are making thru life, let us all unite in the effort to do more for humanity than we have ever done before, so that when the workis finished, and the end of the journey is reached, and we stand before the Great White Throne to be judged for what we have been, we may hear the welcome words, "Well done, good and faithful servant."

THE STATE'S PROGRAM FOR JUVENILE RESEARCH

DR. H. H. GODDARD, DIRECTOR BUREAU OF JUVENILE RESEARCH, COLUMBUS

In establishing its bureau of Juvenile Research the State of Ohio has taken the first step in the most far-reaching policy ever undertaken by any state in the management of its defectives and delinquents. This policy is thoroughly up-to-date in that it recognizes, as never before, the fundamental facts in connection with all dependents and defectives. It attacks the problem at the root in that it takes into account the nature of the children and the causes of the condition. Ohio has always helped generously with these problems, appropriating yearly millions of dollars for the care of its dependents and the restoration of its delinquents. But like most charities this has been a generosity prompted by humanitarian instincts, and uncontrolled by rational thought and intelligent judgment.

But these are days of efficiency and it is not to be wondered that we are turning our attention to the question of how can these classes be cared for most efficiently. Just as we learned years ago that the promiscuous giving of pennies to beggars only increased pauperism, so now we are beginning to learn that the annual appropriation of millions of dollars to dependents, defectives and delinquents is only giving pennies to beggars on a larger scale, and has to quite an extent the same result.

I shall not take the time on the present occasion to weary you with figures, but limit myself to a few dogmatic statements which will give some idea of the inefficient methods which we have been practicing, because we know no better, but which it is no longer necessary to continue since it is now possible that you understand the problem more clearly.

Ohio is well provided with hospitals for the insane, industrial schools, reformatories, penitentiary, children's homes, orphans' homes, county infirmaries and other institutions and homes for the care and training of the above classes. These institutions are, in the main, well managed and wisely and economically administered. But from the standpoint of results, that is the making of good citizens out of these subjects, it must be admitted that they are highly inefficient. It is so rare to find anyone who has served time in the penitentiary who later becomes a sureful citizen that we have practically ceased to expect it. The same is almost as true of the reformatory, and, ever, of the industrial school; and what is more striking the same is largely true of the orphanages and the childrens' homes. There are probably no statistics, but it is very doubtful if there is a children's home in the state 50 per cent of whose inmates ever make good. Again so true is this that we have become accustomed to it and do not expect a large number of these children to become useful citizens. If they are able to get along after a fashion and make a living and do not again come back upon the state or private charity we are satisfied.

Why is this so? The question can now be answered. It is because it can be answered that the Bureau of Juvenile Research has been created. The reason that these people have not made good is because they have not the mentality. They are mentally defective. They are largely morons.

We might have expected this, had we considered the kind of people who make up the inmates of these institutions. They are, as a rule, from the lower social classes. The self-respecting and respected American citizen does not allow his relative to become an inmate of an alms house or an orphanage except in rare instances where some member of a family has cut himself off from the rest by marrying into degenerate stock. The fact that there are exceptions must not blind us to the main principle.

Lack of intelligence is the great cause of dependency and delinquency. If this is hard to accept consider the following:

The U. S. Government has measured the intelligence of its army of two million men in the present war and no small bais for its remarkable efficiency lies in the fact that men have been assigned to the various departments according to the degree of intelligence.

Twelve per cent of the drafted army was found to be of so low intelligence as to be fit only for the Development of Battalion, special service organization, rejection, or discharge. The majority of these men had only the intelligence of a 10-year-old child.

Here then is the situation. The institutions above mentioned are each planned and equipped to do a particular kind of work-the orphange to educate normal children who are orphans, the Reformatory to reform normal youth who have started wrong, the others for their specific purposes.

Now comes the fact that these establishments, instead of having the one type of person for which it was intended and for which it is equipped, has usually three types-the normal, the insane, and the feeble-minded. Not only is no one institution equipped to handle three so diversified groups, but the presence of the others seriously interferes with the efficiency of the work for the type to which the institution is devoted.

Consider one illustration. The Mansfield Reformatory is for first offenders between the ages of 16 and 24. Surely these are not felons or hardened criminals who need bolts and bars and prison discipline. They need human treatment, sympathetic friendliness, encouragement, happiness. Yet the officers will tell you, and they are correct, that their inmates cannot be treated in the above ideal way. Experience proves that the only way to handle them is by prison discipline. This is probably correct. But why? Because their prisoners are not all normal boys who would be amenable to kindly treatment. They are normal boys, feeble-minded boys and insane boys-the latter showing all degrees from mild psychotics to raving maniacs. The normal boys who would be reformable are driven to desperation and an anti-social attitude by rules that are necessary for the insane and the feeble-minded. Hence instead of reforming these boys we are making them worse than when they entered. The proof is in the fact that the records show that many of them are later found in the penitentiary.

The same situation obtains in the other institutions. Industrial school boys appear later in the Reformatory and the end is the PEN. Of something over 400 recent admissions to Mansfield 65 had been at Lancaster.

These cases were not reformed, not because the officers in charge had not done their duty, but because the individuals being insane or feeble-minded were unreformable.

The Bureau of Juvenile Research has been created to remedy this situation in part, by diagnosing all state cases coming from the Juvenile Court and

assigning them to the proper institution on the basis of the findings.

The law also provides that we may receive for examination all other children whose guardians apply. But in these cases we can only recommendnot commit.

We have gone far enough already to know that the largest end of our problems is feeble-mindedness-probably 50 per cent, but to be conservative, let us say 25 per cent.

A conservative estimate of the Juvenile Court childrn that will come to the Bureau is 4000 a year. That means 1000 feeble-minded are to be sent on to the Institution for the Feeble-minded, 4000 feeble-minded in 4 years. Where are they to be placed? All the provision at present made at the Columbus institution will care for 1000 only.

This makes it clear that we cannot begin too soon an intelligent and comprehensive plan for the care of these cases.

Such a plan must contemplate a number of new institutions. All are agreed that the Columbus institution is already as large as can be properly administered.

New York, twice the size of Ohio, has 5 institutions for feeble-minded; New Jersey, a little more than half, has 3; Massachusetts, two-thirds the size, has 3; Pennsylvania, half as large again as Ohio, has 3; Wisconsin, half the size, has 2.

A rational program would plan for at least 3 more in Ohio-located in the northeast, northwest and southwest corners of the State. Each of the large centers of population would thus be provided for, and no hardship is inflicted upon parents by sending the children so far from home that they cannot be visited.

With such a program the Bureau of Juvenile Research will be able in a few years to materially lessen crime and pauperism in the State.

STATE CARE AND SUPERVISION OF ADULT OFFENDERS

D. S. CREAMER, PRESIDENT, OHIO BOARD OF ADMINISTRATION, COLUMBUS The subject for discussion this afternoon, "State Care and Supervision of Adult Offenders," is one embracing so many aspects that only a few of the more important features can be covered in the brief time devoted to this

program.

I will touch upon the part played by the Ohio Board of Administration in caring for adult offenders, and leave to the other speakers the special functions of their respective institutions. Before doing so, however, I wish to call your attention to the fact that there have been four distinct stages in the evolution of criminal jurisprudence and penal administration. The first stage was that of retribution, when prisoners were committed for vengeance; the second stage, that of repression; the third, in which we are now laboring, that of reformation; and this is being followed by the fourth stage, that of crime prevention.

When I speak of reformation, I do not mean that prisons, stone walls and iron bars, effect reformation. Reformation is an individual matter that finds lodgement in the hearts and minds of offenders. The right kind of penal administration gives the offender the incentive and opportunity to reform. This is what Ohio is doing through the Board of Administration and the managing officers of the penal and correctional institutions under its management. Custodial care is not the whole function of our institutions, and while due at

tention must be given to physical needs and to business management, matters related to individual welfare, and to the proper protection of society receive first consideration. While practicing economy in institutional affairs, Ohio's greatest aim is to make men and not dollars.

The average daily population of Ohio's three penal institutions during the fiscal year ended June 30, 1918, was 3553, a gain of 391 over the previous year, divided as follows: Ohio Penitentiary, 2000; the Ohio State Reformatory, 1427; the Ohio Reformatory for Women, 126.

The expenditures at the three institutions for caring for these wards amounted to

The percapita at the Penitentiary was $221.71; at the Reformatory, $213.52; and at the Women's Reformatory, $474.34.

To balance this account, we have the proceeds from the industrial departments of the institutions; but even though these proceeds aggregated more than $600,000 last year, Ohio reaped her greatest value in rehabilitating lives, in restoring men and women to their normal places in society.

The Board is in constant touch with conditions in each of the twenty institutions under its control. Reports are received daily containing such information as the population, both present and absent; the number of employes on payroll and on duty; admissions and discharges; any unusual happenings, and even the menus for the day reported on.

All purchases are made through the Board upon requisitions from the various institutions. This centralized method of purchasing has resulted in the saving of vast sums of money, as by competitive bidding, and careful ordering in lots, the Board is enabled to buy at a reasonable price and at the same time insure the delivery of first-class merchandise. The Board will not tolerate the delivery of goods not up to specifications, as was demonstrated not long ago when the contract for meats to be furnished one of the institutions was promptly cancelled when it was found that the goods delivered did not come up to our standard.

The state institutions are supplied to great extent through the Central Warehouse, the big wholesale department of the Board, located here at the Penitentiary. The Central Warehouse has a working capital of $100,000, and the prices to the institutions are just a fraction higher than the original purchase price so as to protect the Central Warehouse fund.

Financially, physically, mentally and morally the state-use system of manufacture in Ohio's penal institutions has been of great benefit. This system, whereby the state employes the labor of adult offenders for its own use instead of hiring it out to a contractor, was installed after the contract labor system was abolished by legislature in 1906. For the year ended June 30, 1918, the manufacturing and sales department of the Ohio Penitentiary reported sales amounting to $354,005.82; of the Ohio State Reformatory, $223,806.53; and of the Ohio State Brick Plant, operated by prisoners from the Penitentiary, $59,547.34; a total of $637,359.69.

Now, ignore the dollar and cents, and think what these industries have meant to the men themselves. Hundreds of prisoners have been given useful employment, by which they not only benefited physically and mentally, but have equipped themselves with trades, thus better fitting themselves to meet