Report of first through seventh years work of the Georgia State Department of Public Welfare, for the year ending March 1, 1921; Report to the legislature of the work of the Department of Public Welfare during its first year ending March 1, 1921

THE LIBRARY OF
THE UNIVERSITY OF GEORGIA

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GEORGIAS FIGHT AGAINST
Dependency and Delinquency
7
REPORT TO THE LEGISLATURE OF THE WORK OF rX THE DEPARTMENT OF PUBLIC WELFARE DURING ITS FIRST YEAR ENDING MARCH 11921
The Activities of the Department The Childrens Institutions Child Placing in Georgia Juvenile Courts Conditions in the County Jails Care of the Aged County Poor Relief Legislation Recommended
EQRC

OROA
Department of Public Welfare
306 State Capitol Burr Blackburn Secretary
DICKERSONROBERTS PRINTING CO 59 E Alabama Street Atlanta Ga
PLANK IN PLATFORM AS ADOPTED BY THE STATE DEMOCRATIC CONVENTION OCTOBER 25 1920
10 We demand that the laws in reference to the supervision by the State of orphanages asylums schools and hospitals controlled by private individuals or denominational institutions as well as all other laws be strictly and impartially enforced
WHICH DO WE VALUE MOST
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The LOSS from The Cotton BOLL WEEVIL in Georgia
4000000000 Annually
The LOSS in Neglected and Abused CHILDREN in Georgia
Runs into the BILLIONS
WHAT SHALL IT PROFIT GEORGIA If we stop the loss from the boll weevil and
Fail to stamp out the germs of dependency and delinquency that eat the heart out of the human family itself
MEMBERS OF THE BOARD
C B Howard Chairman Atlanta Judge Andrew J Cobb Athens Miss Jane Judge Savannah J G Harrison Macon Miss Annette McDonald Cuthbert
STAFF
Burr Blackburn Secretary Miss Rhoda Kaufman Assistant Secretary Boyce M Edens State Agent Miss Mary McLeod State Agent Miss Muriel Howe Stenographer
OFFICE
at the
State Capitol Atlanta Ga
THE ISSUE PRESENTED
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Chapter 1
THE ISSUE PRESENTED
WHAT IS THE VALUE OF A CHILD
A professor of Economics at Yale University after much careful consideration of scientific data and mathematical calculation finally arrived at the conclusion that a good healthy American baby is worth about 4000 to the state To even try and evaluate child life in figures will seem preposterous to the mother with her baby in her arms
Calculated merely in the number of criminals grown out of neglected and distorted childhood the loss annually at the rate of 4000 each would pass the billion mark in Georgia Moreover their presence and propagation in the body politic means an eventual undermining of the whole social system
The state government spends annually many thousands in supervising the control of the boll weevil and the tick The Department of Public Welfare is asking only 15000 a year to be expended in directing the fight against dependency and delinquency Twentyfive other states support such a department
MILLIONS EXPENDED
Consider the actual outlay which without such state supervision will continue to be expended in a haphazard hit or miss fashion without oversight or direction The field includes 46 childrens institutions housing 3000 children with property valued at 343620100 and with annual maintenance of 103851976 County outdoor poor relief 40000000 annually 70 almshouses 30000000 annually 150 county jails handling 10000 prisoners annually as
4 THE ISSUE PRESENTED
well as the many thousand juvenile and adult delinquents being handled by officers and the courts AH of this represents an expenditure of millions of dollars It would seem only good business that a state department be charged with visitation examination and improvement of the methods employed
ONE YEARS WORK
The Department of Public Welfare has just completed its first 12 months of service During that time it has become the States official consulting agency to assist and cooperate with county officials jailers juvenile judges and probation officers superintendents of childrens institutions almshouses etc It is the Dun and Bradstreet for charitable contributors who want to know that their money is being properly expended On the negative side the Department has justified its existence by having closed up one institution conducted merely for the benefit of the promoter and his family has been instrumental in closing 2 others that were not filling a real need in the community and has removed two superintendents for immoral practices Its campaign to make the Juvenile Court law effective in the counties has resulted in the establishment of 77 Juvenile Courts where only 8 existed before
FINANCIAL SITUATION
The Bill creating the State Department of Public Welfare was passed by the 1919 Legislature after the General Appropriation bill for 1920 and 1921 has passed the house and for this reason it had to carry its own maintenance appropriation The appropriating clause through error did not carry the work annually and this omission left the Department without any maintenance fund for 1921 This put us in the position of having to come before the Legislature last year and ask for the 15000 for the year 1921 This was in no way an increase being only a request for the same amount for 1921 as was originally appropriated for
THE ISSUE PRESENTED
o
1920 However this was not clearly understood by all members of the Legislature many of whom thought we were asking for an increased appropriation and during the last days of the 1920 legislature the bill was called up in the House and lacked seven of the necessary votes for passage Many publicspirited citizens who felt that the work had to go on until this years legislature could rectify the mistake pledged enough to carry on the work until August 15 1921 The Department therefore is now in need of a deficiency appropriation to cover the balance of the year and the Legislature of 1921 will be asked to provide 8000 to complete the years program
The work of the Department has been endorsed by
The State Federation of Womens Clubs
The Georgia League of Women Voters
The Georgia Baptist Convention
The Georgia Mothers Congress and Parent Teachers Association
The Georgia Association of Childrens Institutions
And Rotary Clubs
in resolutions urging the legislature to provide it with an adequate maintenance appropriation
In a time when economic conditions are pressing so many additional ones into the pit of dependency and delinquency should not this guardian of the helpless and dependent be upon the walls of the commonwealth
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ACCOMPLISHMENTS OF THE BOARD
Chapter II
FUNCTIONS AND ACCOMPLISHMENTS OF THE BOARD
REPORT OP THE CHAIRMAN
Atlanta Ga May 1921
To the Governor and the Legislature
In compliance with the law the State Department of Public Welfare has the honor to submit herewith a report of the work of the department for its first year ending March 1 1921 supplementing report for the first three months submitted last year
This Report covers the first years Activities of the Department of Public Welfare ending March 1 1921
The Department is required by law to assist certain institutions and the social agencies of the state in the care of dependent neglected defective and delinquent classes by
1 Visitation and Examination
2 Reporting to and advising Officials Leaders and Contributors
3 Compiling Statistics and Gathering Periodical Reports
4 Distributing Educational Literature
5 Bringing Prosecutions for fraudulent solicitation of charitable funds or neglect or mistreatment of individuals
6 Preparation of Standards and Holding up Ideals
7 Stimulating the Passage of Social Laws
With the 1500000 appropriation granted us for the
ACCOMPLISHMENTS OF THE BOARD
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year 1920 we were able to employ a secretary assistant secretary two agents and a stenographer and to meet expenses of travelling through the State office supplies etc
During the first two months we were served by Philip Weltner who acted temporarily as Secretary until we were able to secure Burr Blackburn a former Georgian with experience and training in social work who assumed his duties July 1 1920
In order to more closely supervise the work of the executive force the Board has assigned the various divisions of the service as follows
General PoliciesC B Howard
Family Service and AlmshousesMiss Annette McDonald
Childrens Institutions and Child PlacingMiss Jane Judge
Adult Delinquency and County JailsJudge Andrew J Cobb
Juvenile DelinquencyDr J G Harrison
1 DIVISION OF FAMILY SERVICE AND CARE OF
THE AGED
The provision of the Act requiring the Department to examine state county municipal and private institutions and organizations of a charitable character was complied with by the inspection of 25 almshouses 8 private homes for the aged and a study of the methods of distributing outdoor relief by seventy county governments
2 DIVISION OF CHILDRENS INSTITUTIONS AND
CHILD PLACING
Under the same provision of the Act quoted above careful examinations were made of 51 orphanages reformatories emergency homes and detention homes The same section of the Act stipulates that such institutions are required to furnish statistics covering the care of inmates
8 ACCOMPLISHMENTS OF THE BOARD
and Section 10 requires that the Board collect and compile statistics A system of report cards on every child in the institution and those admitted or discharged during the year was installed We now have a complete record of practically every child circumstances of its admission civil conditions financial status causes of dependency and reasons for discharge Thus we are able to gauge the total service rendered and to study conditions affecting the handicapped children of the whole state
A conference called by the Department resulted in the organization of the Georgia Association of Childrens Institutions through which we will be able to stimulate interchange of ideas and definite cooperation
A careful study of the child placing work of the Georgia Childrens Home Society was made Also a thorough investigation was made of the traffic in babies carried on by an Atlanta maternity hospital
3 ADULT DELINQUENCY AND COUNTY JAILS
The Act specifically requires that the Board examine county jails A cross section examination and study of 52 county jails was completed and is submitted in the body of this report
4 JUVENILE DELINQUENCY
When it was discovered that the Juvenile Court Act passed in 1916 was ineffective due to there having been no state department to stimulate action in the counties the Board inaugurated a campaign to establish a Juvenile Court in every county The number was increased from 8 to 77 This entailed many conferences much correspondence and distribution of literature This work was done under the section of the Act requiring that the Board visit and examine county organizations which are for the care custody or training of delinquent classes distribute literature bearing upon subjects embraced in the Act and collect
ACCOMPLISHMENTS OF THE BOARD
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such data as may be of value in assisting the officials of the organizations in the performance of their duties
SOME RESULTS OF EXAMINATIONS
Reports of these examinations have been supplied to the superintendents board members county commissioners civic organizations and others interested in the improvement of the work In several instances our examinations have resulted in the removal of officials in charge and discontinuance of immoral and inhuman practices
One institution which was being operated purely for the benefit of the manager in charge was closed through our efforts another that was filling no need in the community transferred its funds to other activities at our suggestion and still another which was unequipped in plant and finances agreed to close its doors until it could meet standard requirements The number of improvements that have been put in institutions as the result of our recommendations are too numerous to mention here
PREPARATION OF STANDARDS
The very best thought on the conduct of such institutions and organizations has been collected from authorities elsewhere and during the year standards have been prepared to meet conditions peculiar to Georgia Examinations have been based on these standards and recommendations for improvements suggested many of which have already been complied with Handbooks have been prepared and are ready for publication covering standards for orphanages almshouses county jails juvenile courts and poor relief
CONSULTATION SERVICE
The Department has become recognized as the states consulting agency on questions of the care of the handicapped classes Plans of policy and construction difficult
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ACCOMPLISHMENTS OF THE BOARD
cases community organization etc are the subject of constant correspondence Every effort is made to secure for Georgia citizens the very best and soundest advice if it is to be had anywhere in the country For example one days correspondence handled such subjects as the location of a womans detention home methods of raising finances the program of a new organization the best place to send a dependent child the rights of a deserted wife Not a day passes but some individual or county writes or calls for assistance or information of some kind
INFORMATION SERVICE
Business men commercial organizations contributors etc have been notified that they need no longer subscribe to charitable organizations about whose efficiency and motives they know nothing Increasingly contributors are securing reports from us on these organizations before investing their money A careful detailed statement of the methods and work in the state is given any citizen on request
A complete report of the activities of the department will be found in the succeeding chapters
Respectfully submitted
C B HOWARD Chairman J G HARRISON MISS JANE JUDGE ANDREW J COBB MISS ANNETTE McDONALD
BURR BLACKBURN Secretary
CHILDRENS INSTITUTIONS
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GEORGIA CHILDRENS INSTITUTIONS ACCORDING TO POPULATION ORPHANAGES 27 Population
Jan 11921
Georgia Baptist Orphans Home Hapeville 319
South Georgia Conference Methodist Orphans Home
Macon I 125
North Georgia Conference Methodist Orphans Home Decatur 113
Masonic Home of Georgia Macon 112
Bethesda Home for Boys Savannah 100
Georgia Industrial Home Macon 86
Hebrew Orphans Home Atlanta 82
Toccoa Orphanage Toccoa 67
Hepzibah Orphanage Macon 59
Leonard Street Orphanage Col Atlanta 57
Tuttle Newton Home Augusta 54
St Marys Home Savannah 51
Appleton Church Home Macon 42
Savannah Female Orphans Asylum Savannah 41
St Josephs Male Orphanage Washington 38
Julia McLeod Home and Nursery Savannah 32
Carrie Steele Logan Orphans Home Col Atlanta 29
Shiloh Orphanage Col Augusta 28
Masonic Home School Col Americus 27
St Benedicts Orphanage Col Augusta 26
St Francis Orphanage Col Savannah 26
Franklin Springs Orphanage Franklin Springs1 25
Southern Christian Home Atlanta 24
Columbus Orphans Home Columbus 22
Reed Home and Industrial School Col Covington 21
Paul Moss Orphanage Col AugustaL 18
Episcopal Orphans Home Savannah 14
EMERGENCY HOMES 3
Home for the Friendless Atlanta 89
Atlanta Childs Home Atlanta 33
Estelle Hollingsworth Childrens Home Augusta 14
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CHILDRENS INSTITUTIONS
STATE TRAINING SCHOOLS 2
Georgia Training School for Boys Milledgeville 115
Georgia Training School for Girls near Atlanta 75
COUNTY REFORMATORIES 4
Fulton County Industrial FarmWhite Boys Hape
ille
Fulton County Industrial FarmColored Boys Atlanta 77 Chatham County Industrial FarmColored Boys Sa
vaimah J 74
Richmond County ReformatoryColored Boys Augusta
STATE SCHOOLS FOR DEAF AND BLIND 2
XGeorgia School for the Deaf Cave Springs 204
Georgia Acadehiy for the Blind Macon 95
INSTITUTIONS FOR CRIPPLED CHILDREN 1
Scottish Rite Home for Crippled Children Atlanta 52
SPECIAL SCHOOLS 3
Vashti Industrial School Thomasville 85
St Johns Haven Brunswick 49
Anson Dodge Memorial Home Brunswick 18
Atlanta Normal Industrial Institute Col Atlanta 43
Holmes Institute Atlanta 30
RECEIVING HOMES 1
Georgia Childrens Home Society Receiving Home Atlanta varies considerably 25
JUVENILE DETENTION HOMES
Fulton County Juvenile Detention Home Atlanta Chatham County Juvenile Detention Home Savannah Richmond County Juvenile Detention Home Augusta
CHILDRENS INSTITUTIONS
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Chapter III
CHILDRENS INSTITUTIONS
The State Department of Public Welfare has visited and studied a total of 51 institutions in Georgia These institutions are classified as follows
For Dependent Children
Emergency Homes 3
Orphanages 29
Receiving Homes 1
For Delinquent Children
State Training Schools 2
County Reformatories 4
Juvenile Detention Homes 3
Special Institutions
For Crippled Children J 1
For the Deaf and Blind 2
Special Schools A 5
Convalescent Homes discontinued 1
Georgia has the distinction of having the oldest orphanage in the United StatesBethesda at Savannah established in 1738and of having more institutions for children when population is considered than any other state in in the Union About one child in every 600 under 14 years of age is in one of these institutions They are conducted under various auspicesthe state 4 county governments 7Masons 2 Colored Masons 1 Methodist 3 Baptist 1 Holiness 2 Catholic 4 Christian Church 1 Episcopal 2 Hebrew 1 nonsectarian 20 and 3 institutions now closed
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CHILDRENS INSTITUTION
They vary in size from struggling little homes with less than 25 childrenof which there are 7to the Georgia Baptist Orphans Home with a population of 319 Thirteen have between 25 and 50 16 between 50 and 100 4 between 100 and 150 1 between 200 and 250 and 1 between 300 and 350 Thirtytwo of them are for white and 9 for colored while 5 have departments for both white and colored The population of 39 of these not including the Juvenile Detention and Receiving Homes is as follows
White Males Ci H05 Colored Males 345
White Females 1088 Colored Females 194
Total White 2193 Total Colored 539
The private institutions represent a total property investment of 3446201 During 1920 their expenditures totaled 103851976
Purpose of Studies
The department has met with friendliness and courtesy from the superintendents and board members who have welcomed our agents and shown a splendid spirit of cooperation in connection with the details of report making and in numerous cases responded to the suggestions which were made for the purpose of helping the institutions approach the standards set by the department as reasonable ones for Georgia These standards were arrived at after very careful study of the best methods of institutional care actually being worked out by the most progressive childcaring institutions in the country and adapted to Georgia conditions as revealed by our close inspection of the homes in this state These standards will be published next fall together with a complete directory of Georgia institutions and suggested recommendations for improvement
We realize that a large number of the institutions are laboring under great financial difficulties that the problem of securing trained or even competent supervisory staffs is
CHILDRENS INSTITUTIONS
15
an acute one but improvements have been made in a number of instances since our first study when recommendations were made and plans are now under consideration for still large improvements It has been our purpose to aid those who are working early and late and often at great sacrifice
Where conditions were inhuman or showed neglect or mistreatment the matter was taken up by the Department with the proper authorities and steps taken to have them correctedthe department always keeping in mind that the fundamental purpose of the childrens institutions is to prepare their wards to be selfsupporting strong and capable future citizens
In connection with these studies the following special services have been rendered to the institutions by the Department of Public Welfare
Bad Conditions Corrected
1 In two private institutions we found the superintendent to be immoral and hurtful to the inmates and upon our recommendation they were discharged and competent persons employed This immorality had been going on for several years and in spite of board meetings and grand jury inspections had not been discovered
2 One institution was closed after our inspection brought to light that it was being conducted merely for gain and for the friends and relatives of the superintendent
3 Another was closed voluntarily by its own board after being convinced by our report that it was not filling any real need in the community and upon our recommendation they transferred their money and activities to another field
4 After our inspection of the Home for Convalescent Children in Atlanta the board complied with our recom
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CHILDRENS INSTITUTIONS
mendation that it suspend until it could secure sufficient funds and a more suitable location
5 Among the institutions examined were two which have been making false representations as to the type of work they are doing the personnel of their boards of trustees and sinking money into property while maintaining such low standards in their care of the children entrusted to them that the department has found it necessary to take up the question with the citizens whose names were being used as board members Definite recommendations of future policy for these institutions were presented and the department is withholding judgment during a period of adjustment
Services to Institutions
The Georgia Association of Childrens Institutions organized October 27 1920 at a meeting called by this department for the purpose of discussing the problems of the institutions promises much and the practical manner in which the members discussed specific constructive suggestions indicates that this opportunity for exchanging plans and methods seeing each others problems in their relation to the whole will continue to be most helpful particularly to the children who are the center of all the thought and effort
Plans for new buildings were submitted to us by three institutions and material changes adopted at our suggestion in one instance the congregate plan being abandoned for the more modern cottage system
Further services of the department to the institutions has included
Issuance of a quarterly News Letter as a means of interchange of ideas and news between institutions
Through the State Library Commission the purchase of
CHILDRENS INSTITUTIONS
17
a shelf of books on the care of children institutional life etc which is circulating among the superintendents
Through the State Library Commission and the Federation of Womens Clubs the inauguration of a campaign of gathering books to place in the libraries of the institutions
Arangement with mental clinics in Atlanta Macon and Savannah to make mental tests of children in the institutions
Through the State Department of Health arranging for the introduction of the Modern Health Crusade in the institutions
Supplying Social History Sheets and Medical History Sheets to the institutions to enable them to keep uniform records
Assisting in securing workers and in one instance not only helping to find a superintendent but persuading the board of an important institution to continue their work
Placing institutions in touch with vocational rehabilitation work by which handicapped children could get special training through the help of the state and federal governments
Answered hundreds of questions for information and advice on difficult cases to boards and superintendents
INSTITUTIONS FOR THE DEPENDENT
Special care was exercised in the study of the 32 homes for the homeless and dependent Of these institutions 6 care for boys only 8 for girls only and 18 for both sexes
ADMISSIONS AND RECORDS
The fact that so few Georgia communities have social work agencies with trained workers makes it quite difficult
18 CHILDRENS INSTITUTIONS
for the institutions to secure proper investigations of applications except in the larger cities Even children from the big centers are received in many instances without a proper routine investigation Two institutions accept children from such cities only upon the recommendation of the social agency and refer all applications to them Only in this manner can the proper effort be made to hold the family together and reserve the space in the institution for children for whom no other plan can be worked out
Most of the institutions secure their facts through local people ministers church workers etc which is usually inadequate because of lack of study of the family of relatives and of various natural sources of help Children are sometimes accepted who might better be cared for otherwise and hundreds of others are refused without working out any better plan leaving them pawns of fate in the hands of the uninformed persons who wanted to place them in the institution No single institution can afford to employ a trained investigator to handle its applications However in other states the institutions have cooperatively established a bureau which investigates all applications and where an institution refuses admission makes an effort to properly adjust the difficulties of the child in some other way This suggestion was advanced and favorably received at the conference last October whe nthe Georgia Association of Childrens Institutions was formed Should this Association establish such a bureau it would be one of the most progressive steps which could possibly be taken
CHILDRENS INSTITUTIONS
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Few Full Orphans
The children in the orphanages January 1 1921 were
committed as follower
By court r 37
By parent or Guardian 691
By relatives 288
By church or charity 174
By city or county officials 94
By others 212
1541
Civil Conditions
Father dead 493
Mother dead 372
Both parents living 200
Illegitimate 44
Full orphans 354
Unknown i 34
1541
It will be seen that less than onefourth 354 were full orphans and that 62 974 were committed by parent guardian or relatives while 18 200 had both parents living This indicates that some of the institutions are not orphanages in fact No doubt proper investigations and the right kind of family service would have kept many of the children out and might have provided means either through county relief or private charity for the 493 widows to have kept their children at home under their own care
In spite of the presence in the orphanages of 974 children with parents or relatives living only 15 are fully supported there by outside parties and 195 partially supported All the others are entirely cared for at public expense
Ages of Children
The orphanages also accept children of a large variety of ages Eight take them from earliest infancy and eight
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CHILDRENS INSTITUTIONS
others accept babies under five There were 107 babies under five years of age in orphanages which are not prepared to care for them properly Eleven set the limit at five years or higher thus recognizing that babies who are orphaned should be placed in private homes for adoption given temporary care in an emergency or boarding home or come within the treatment of the family group Other age groups were dicided as follows
5 yrs and under 6 to 9 yrs 10 to 13 yrs 14 to 16 yrs and over
191 12 531 35 549 36 267 17
Eightythree percent of the children are under 14 years of age while only 6 98 are 16 years old or over This indicates either that they are dismissed in large numbers when they come to what relatives consider the working age or that the homes of parents or relatives are sufficiently reestablished to care for them properly It is impossible to determine which condition exists from the records now available Comparatively few are kept long enough in the orphanages to receive highschool or trade training to fit them for life
Causes of Admission
A study of the causes contributing to the dependency of the children as reported by the orphanages further reveals the need for family service
Poverty of Father
Poverty of father as the only cause 94
Poverty of father and mother 7
Poverty of father and desertion of mother 36
Poverty and sickness of father 26
Poverty of father and sickness of mother 10
Poverty of father and other causes 19
Total iSWI 192
CHILDRENS INSTITUTIONS
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Immorality of Father
Immorality of father as the only cause 20
Immorality of father and mother 10
Immorality and desertion of father and mother 9
Immorality of father and desertion of mother 3
Immorality of father and other causes 18
Total T 0Q
Desertion of Father
Desertion of father as the only cause 97
Desertion of father and mother 18
Desertion and immorality of father 6
Desertion ond immorality of father and mother 3
Desertion of father and poverty of mother 7
Desertion of jfather and other causes 12
Total 143
Sickness of Father
Sickness of father as the only cause 64
Sickness of father and mother 17
Sickness and poverty of father and mother 26
Sickness of father and desertion of mother 34
Sickness of father and other causes g
Total 149
It would be difficult of course to estimate how many of these children might have remained in their homes had family service been brought to bear to put the povertystricken family back on its feet restore the sick father to health and force the deserter back to his family Georgias desertion laws are so weak that even social workers have almost given up hope of securing results under them and hence 116 children of deserting fathers at a cost of more
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than 35000 annually are being supported at public expense
Poverty of Mother
Poverty of mother as the only cause 315
Poverty of mother and father 7
Poverty of mother and desertion of father 7
Poverty and sickness of mother 10
Poverty of mother and other causes 14
Total 353
Immorality of Mother
Immorality of mother as the only cause 51
Immorality of mother and father 10
Immorality and desertion of mother 8
Immorality of mother and father and desertion of
mother 4
Immorality of mother and other causes 21
Total I 94
Desertion of Mother
Desertion of mother as the only cause 30
Desertion of mother and father 18
Desertion and immorality of mother 10
Desertion of mother and sickness of father 34
Desertion of mother and poverty of father 36
Desertion of mother and other causes 23
Total
151
CHILDRENS INSTITUTIONS
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Sickness of Mother
Sickness of mother as the only cause 130
Sickness of mother and father 17
Sickness and poverty of motherk 10
Sickness of mother and poverty of father 10
Sickness of mother and other causes 7
Total I 174
These figures indicate that large numbers of children are being taken by the institutions from brokendown families many of whom are later returned to these families while still quite young Of the children discharged from the orphanages during the first five months of 1921 60 were returned to their parents or guardians
This policy calls for the most painstaking investigation of the homes desiring the return of children to make sure that such children will be given proper care and not be exploited simply to enlarge the family income None of the orphanages are prepared to make such investigations or to follow up children after discharge Some states provide for this investigation and follow up after discharge at public expense under the state departments of public welfare
We have three emergency homes in Georgia for children who need temporary care for only a few months These homes on January 1st 1921 were caring for 134 children Other states have a system of placing such children in temporary private boarding homesnever more than two unrelated children in the same home If properly supervised and financed this is quite satisfactory and leaves the orphanages free to do a more constructive longtime service
Records Meager
Records were found to be very meager when our first inspections were made Two institutions had rather complete application blanks and practically all had as a part of their admission blanks a release signed by parents or
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CHILDRENS INSTITUTIONS
guardians Financial records are kept in most institutions in a simple but understandable fashionthe larger ones having office secretaries keeping sets of books and some having their accounts audited by certified accountants None of them had an adequate character educational or health record
Since this department has furnished free social history sheets 12 institutions have installed them and our medical history sheet has been adopted by 6 institutions Our request for individual reports on each child on January 1st met with a ready response although many had such imperfect records that it required them several months to compile the data On 269 reports the institutions reported family and civil conditions unknown Three institutions namely the Georgia Academy for the Blind Appleton Church Home and Paul Moss Orphanage have not sent in the record cards The Julia McLeod Home records were sent but were lost in the mail
ADMINISTRATION
Practically every institution in Georgia is under the administration and management of a governing board and a superintendent In two instances the board is one in name only having no relation to the management other than advising occasionally with the superintendent Because of the Comparatively large number of church and fraternal institutions in the state 15 institutions have their boards appointed by the church conference lodge council etc In most cases the board members are chosen from the district in which the institution does its work three of these 15 institutions cover a larger territory than Georgia One of the larger institutions covering a district of 7 states has a more representative board which meets annually while a smaller executive board is composed of members within the immediate vicinity of the institution The majority of the institutions outside of special groups are administered by selfperpetuating boards
CHILDRENS INSTITUTIONS
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Some of the institutions not yet well organized as to administration experience considerable confusion as to the powers of the superintendent and of the board This is unfortunate as it retards the progress of the institution The chief responsibilities of the boards should be the financing and general oversight of the work and the obligation to know the needs of the territory they serve and the relation of their work to these needs It is exceedingly important to relate these responsibilities in order that financial plans shall be made subservient to the welfare of the children
Committees of boards may be very helpful in cooperating with the superintendent to accomplish certain details of the work such as providing clothing etc However board members and particularly committee members should not usurp the powers of the superintendent by making plans for the internal policies of the institution which are linked up with the training of the child The superintendent is employed as a specialist in the care of children and as such should be made flly responsible for all things which directly or indirectly concern the management of the institution and held to full accountability for results It is being recognized everywhere that superintendents should be se cured who are primarily interested in children and if possible they should be persons who are trained in child care and should not be chosen because they are good business managers and agriculturalists
The board should provide the superintendent with sufficient clerical help and a practical farmer if such is needed to direct agricultural training and work leaving the superintendent free to fulfill his duty of training his staff in progressive methods of work and keeping up with and planning for the best and newest methods of institutional work for children
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CHILDRENS INSTITUTIONS
SUPERVISION AND DISCIPLINE
Purpose
The purpose of supervision is to provide individual treatment for each child in accordance with his special needs and to prevent contamination of wholesome children by those who come from immoral environments and to restore as many of the latter as possible to normal wholesome living by studying their needs and applying methods of correction Only by close intelligent and sympathetic study can these three aims be accomplished Unremitting vigilance is the basis of individualized training along mental moral spiritual social and physical lines Some of the superintendents of our institutions are beginning to see this vision of their responsibilities
Personnel of Supervisors
Only persons of high personal ideals intelligence training and adaptability for the job can direct the rearing of children along the right lines To the extent that any one of these requirements is missing the child suffers to a far greater degree than does the child in a priVate home to whom the lack of some of these requirements are sometimes partially compensated by the fact that the child is the mothers very own and the bond of motherlove may tie him to the good when the untrained stranger misses the opportunity especially when each child is just one of many
Moreover supervision should be planned in accordance with the needs of the particular stage of development of children Large boys need the direct supervision of a man in addition to the influence of a housemother Some of the larger Georgia institutions have been able to make such arrangements but the lack of a mans influence with boys is a noticeable defect in many of our institutions It is desirable therefore that a recreational director be secured to supervise the oldest boys his wife acting as housemother Women are desirable as supervisors for girls and small boys
CHILDRENS INSTITUTIONS
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Old people are undesirable ascottage supervisors because they are usually out of touch with youth Exinmates should not be supervisors as their viewpoint is apt to be too limited unless they return after education and experience on the outside Children who cannot have normal home life should have as many associations as possible with persons who have lived such a life
No Georgia institutions have yet reached the approved standard of one supervisor and one assistant to 20 or 30 children although in an occasional cottage this proportion is reached because of the small number of inmates Three large institutions have a nurse who assists in the baby cottage and in one institution a nurse is in charge of that cottage
Methods of Discipline
y
Methods of disciplining children in institutions as in schools have changed greatly in recent years Instead of numerous formal rules almost prisonlike in rigidity of discipline motivation of effort and conduct has become the keynote of discipline and effort is being made to bring the personal relations between children and supervisors as nearly as possible to that of mothers and fathers with children
Competitive work and play are fundamental means of discipline a preventive of the oldfashioned discipline which was considered something like a dose of medicine and often given in allopathic quantities without regard to the relation between the disease and the ciire In addition to directing the energies of children by means of various forms of recreation and work toward good conductin contrast to the old repressive methodsthere are great possibilities in institutional life in making use of the group instincts of justice fairplay etc
Forms of selfgovernmentparticularly among adolescent boys and girlsmay be developed under proper super
28
CHILDRENS INSTITUTIONS
vision Offenders can be made to feel that their transgression has been against the welfare of the group rather than against the rules of the institution and the group consciousness can be so aroused that individuals can be made to feel their accountability to the group Among children in whose lives the responsibility to the close family circle is lacking it is particularly important to arouse the sense of beingan intimate part of the group which can be made strong or weak by their own actions
We have yet considerable distance to go in most of our Georgia institutions in working out systems of discipline along these natural lines Such a system takes careful planning at the head and sympathetic and capable supervisors in charge
The details of punishment which are necessary in all institutions vary greatly depending of course on the planning genius of the executive in charge Corporal punishment still prevails in some of our institutions and may be necessary under certain circumstances but it should fit into the larger plan of individual treatment There are still a few instances of inexcusable harshness or severity and one superintendent was known to state that one of his methods of punishment was the cutting off of the hair of little girls This man was found also to keep large boys in girls dresses for two or three weeks and to thrash three or four boys at the same time while completely stripped of clothing and in the presence of their playmates Such indignities of course indicate that the superintendent has the wrong conception of his job The deprivation of entire meals is seldom indulged in these days and should never be tolerated
CHILDRENS INSTITUTIONS
29
PHYSICAL EQUIPMENT
The Georgia institutions are divided as follows according
to type
Congregate 26
Cottage with central dining room 4
Beginning of cottage system 2
This last indicates institutions in which there is a large central building which contains most of the activities of the nsttuton but wth a beginning of a cottage system in the form of perhaps a single small cottage or two or three small buildings used for some of the activities
There is a general misunderstanding of the meaning of the modern plan of cottages for childrens institutions Most people visualize small three or fourroom cottages with central dininghall library playroom bathing facilities etc such as four of our institutions have However the ideal cottage plan which few of the Georgia institutions have reached provides everything from kitchen and diningroom to sleeping and play quarters for from 20 to 30 children the idea being to make each unit as complete in itself as possible approximating the family home However in order to give the right kind of supervision meals etc it is not economical to build for much less than 20 children A mere caricature of the cottage system is seen in the plan which houses eight or ten children in a frame threeroom building under no supervisionexcept possibly an older inmateSimply using the building for sleeping quarters
Equipment Varies
The grounds of the orphanages in the state vary from a single city lotand in country institutions from a twoacre plotto a fivehundredacre farm
The buildings vary from the small tworoom frame cabin to the large twostory brick building One large institution
30
CHILDRENS INSTITUTIONS
with a well developed cottage system has every building but one of brick another has only two old wooden frame cottages on the grounds Most of the larger institutions have as a rule twostory cottages Babies cottages of necessity are usually one story One institution has a large rather imposing looking main building and three old brokendown frame cottages
The housing conditions on the whole are fairly satisfactory although improvement is needed respecting fireprotection in many of the institutionssome of which are entirely without preventive fire apparatus
It is to be hoped that when changes shall be made in some of the plants complete cottage systems will be planned The law establishing this department requires that all plans for buildings for the institutions be submitted to this department for examination and suggestion We expect to cooperate with the institutions toward securing buildings particularly adapted to the peculiar needs of each institution
Locations Advantageous
Nearly every Georgia institution has been placed advantageously that is in the suburbs of city or town or if in country locations accessible to centers of population which furnish educational facilities and neighborly associations Only one or two institutions are placed at any remote distance from towns or cities and none in isolated country places Practically every one is within attending distance of the public schools and the children of all the institutions are able to attend church entertainments etc in a fairly well developed community if such attendance is thought desirable Indeed the majority of the institutions are in suburbs of the large citiesAtlanta Macon Savannah and Augusta Only two are located in congested parts of these cities and grounds too small for proper play and where children are subject to too great publicity
CHILDRENS INSTITUTIONS
31
A few are handicapped by having large tracts of land which must be cultivated or be a loss There is danger of the wellrounded development of the children being subordinated to the development of the land as was the case in two institutions where superintendents were primarily interested in making he land pay first considering this necessary to their success and placing the welfare of the children second
With but few exceptions these institutions are located on healthful welldrained and not unattractive sites Practically all except a few city institutions re surrounded by natural beauty most of the grounds having fine old trees and shrubs
SANITATION AND HYGIENE
Advantageous location makes city water and sewerage disposal available to 15 institutions Seven of those which are more remote from cities have a private water system five others have receiving tanks and facilities for fireprotection Three have sewerage systems Four institutions have outdoor open vault toilets which should be replaced with sanitary vaults at once
Personal Hygiene
In most of the institutions bathing facilities are below the standard of one tub or shower to 8 or 10 children but all the large institutions have fairly good provision for bathing and a number of the small ones are also fairly well equipped Five institutions have showers for some of the childrenat least for the older boys and girlsand three have them for all It is desirable that all institutions which have not already done so provide adequate bathing facilities including showers bathtubs and foot tubs as soon as possible This need is especially felt in some of the smaller institutions which have only the most meager facilities It is unreasonable to expect that the children will be taught
32
CHILDRENS INSTITUTIONS
bathing habits even when closely supervised if the facilities are meager
Most of the institutions have individual toilet articles for childrenat least towels toothbrushes and combs Several of the most progressive have individual lockers with shelves for the toilet articlesor somo other special place for each articlelabeled Not only for sanitary reasons is this a necessity it is also desirable as a means of developing the childs sense of ownership and a consciousness that he is a selfrespecting individual with certain fundamental needs to be fulfilled by the ownership of personal property
In a few institutions we have found dirty bed linen and unclean children It is inexcusable of course that any institution should be so negligent
PHYSICAL STANDARDS
Entrance ExaminationsGeorgia institutions generally have recognized the need for a proper standard of physical care which begins with adequate entrance physical examinations of children so that 26 out of 32 institutions require such an examination 21 have this examination made by the physician of the Home although in some few instances this rule is not enforced Four accept a statement from the family physician of the child
The majority of the institutions have found their problems complicated by the mentally defective child and recognizing the need of mental examinations for all applicants some are planning to give mental entrance examinations so as to exclude the mentally defective child One institution has had examinations made of apparent mental defectives and the board of the home has assumed responsibility for the training of such children by placing them in specialized institutions outside of Georgia and paying for their care pending the opening of the State School for Mental Defectives
CHILDRENS INSTITUTIONS
33
The mental test is vitally important as a basis for classifying children as to education vocational training supervision etc and one institution is planning such tests The facts learned by means of such tests are especially significant in the light of the fact that the chronological age is not now considered the logical basis for classifying children for various kinds of training
IsolationEvery childrens institution especially the orphanages ought to have a separate receiving cottage or ward in which newly admitted children may be isolated until it can be determined that such children are free from contagious diseases and can be safely placed among other children During this period of isolation observation can be made of the childrens traits as a basis of classification in the institution No institution of the orphanage type ini Georgia has a receiving cottage at present the nearest approach being the wellequipped hospital building of one large orphanage in part of which newly admitted children are isolated for the tenday period Twelve institutions have isolation rooms used for illness and a few of which are used for isolating children a few days at entrance One superintendent of a large institution claims that he purposely does not isolate sick children as he thinks it well for them all to have the usual socalled childrens diseases early By such a policy he may be making himself responsible for the lives of the children and for the serious aftereffects of such diseases as measles scarlet fever etc
Routine ExaminationsVery often the health of children deteriorates unnoticed This is especially true when they are grouped together in an institution Routine medical examinationsincluding dental and eye ear nose and throatat regular six months intervals is the proper method of detecting and correcting such an evil
A trained nurse is advisable in all large institutions and is necessary in all institutions caring for children under four years old She is skilled in detecting health deterio
34
CHILDRENS INSTITUTIONS
ration and can by regular preliminary examinations determine when the physicians services are necessary Two institutions have a trained nurse for all children and two have a nurse in charge of the babies
No Georgia institution has yet provided routine medical examinations The nearest approach to this health plan is made by one large institution which has a trained nurse who conducts short daily clinics at which all children reported sick by cottage mothers are examined by the nurse Medical attention is immediately provided for the children
With the exceptions mentioned all other institutions provide medical care only when children become ill Specialized medical or surgical treatment is usually given when such is prescribed by the attending physician Two institutions have well equipped dental rooms with a dentist making regular weekly visits
DietMuch of the ill health and mental sluggishness among children is due to improperly balanced and prepared diet In childhood perhaps more than at any other period in life should the greatest care be exercised in th plannings preparation and service of food To accomplish the desired results each institution especially the larger ones should secure the services of a dietician to plan and supervise this work
Two of the larger institutions now have dieticians for kitchen supervisors Realizing the impracticability of some of the poorer institutions securing such paid services for some time to come the State Department of Public Welfare hopes to be able to furnish the institutions suggestive menus worked out by the Home Economics Department of The State Agricultural College
With but three exceptions all institutions provide plain food in sufficient quantity However but little attention has yet been paid except in the instances already mentioned to the quality planning preparation and service of food
CHILDRENS INSTITUTIONS
35
ClothingThe old time idea that children in institutions were well clothed when they had on plain whole and reasonably clean garments all alike same material same pattern has almost passed in Georgia as elsewhere Uniforms have a levelling effect on children in that they do not give the individual child the opportunity of expressing his own personality and taste
Moreover the wearing of the uniform labels the institutional child as such particularly when worn on public occasions while the wearing of old or castoff clothing unless compietely remade is bound to lessen the childs selfrespect mforms are now worn in only 5 institutions and in 2 of
y are Used only on sPecial occasions while nearly all the large and progressive homes use new and individual clothing
EDUCATION
The majority of the superintendents realize the value of having children make the normal contacts with outside children and send them to the public schools Three or four of the larger institutions which are located in small communities would also possibly place children in the public schools if it were not that the community has not yet been able to provide for the large numbers However another reason given for maintaining a school in the institution itself is an unfortunate reflection of the system used in some of the institutions namely that these large institutions could not get the work of the Home done if they had to send all the
each rGhil0 T 830 t0 2 Cl0Ck In one institution
each child receives three school hours daily in another
threeandonehalf hours in another four hours per day
alternating school hours with institutional hours It is dif
ficult to see how institutional children many of whom start
handic H k lgnorance often of Physical or mental handier if not abnormality and who need as a minimum
he greatest amount of education which they are capable
of receiving can with a training of three or four hours a
36 CHILDRENS INSTITUTIONS
day compete in later life with children from normal homes who have the benefit of six hours in public school with its well worked out system of specialization supervision and standardization and superior physical equipment There is grave danger that the education of the child may be subordinated to the institutional work The school hours should be lengthened even though it is necessary to employ someone to do some of the work as is done in one institution from which children go to the public schools or by lengthening the school year from nine to ten or eleven months
Two institutions were found in which the education was almost wholly neglected this past year One had a young girl as the only teacher while she herself was studying in the tenth grade another although within a mile of a public school insisted on having a private school which was wholly inadequate The executives of these two institutions have not realized the extraordinary importance of education for dependent children and are clearly subordinating education to institutional work
Two institutional schools are furnished with public school teachers because of circumstances arising from their location and it is hoped that more of the private institutional schools can secure this help which is a means of keeping closely in touch with the public school system
High School EducationAn alarmingly small proportion of children in the institutions in the state attend high schools some institutions having only onequarter of their children of highschool age doing highschool work Those institutions which show the largest relative proportion in high schools according to present reports are those who have sent their pupils to the public primary schools
It is easier for a child who has attended the public school through all the grades to go on into high school while the child who has spent his school years in the institution is likely to be reluctant to make the change to the public high
CHILDRENS INSTITUTIONS
37
school particularly at adolescence which is the critical one in the school life of all children being the easiest time for the break from school to come
Vocational EducationIn all the institutions the girls do general housework cooking and sewing Some have well equipped laundries and the work is taught rather systematically Two institutions have dairies sufficiently equipped to teach the girls the work as vocational training Boys are taught farming in 27 institutions located out of town with as an incidental part of the work stockraising in 3 dairying in 6 gardening in 3 At least five or six of the superintendents are conscious of the fact that they are giving these children training which must be used in making homes or in making a living in the future and so make an effort to vary the work not keeping a child cooking or washing indefinitely because she does it well In all institutions the general housework is carried on under the supervision of practical workers without special training but three institutions investigated were found to be making plans to send their teachers of cooking to take special home economics courses A number see the need of securing specially trained workers and will do so when funds permit
Three institutions send to the public industrial schools girls who are especially adapted to certain lines of industrial work Certain institutions send children with special aptitudes to take commercial courses mechanics music and printing There is a very real need of such a plan being worked out in all the institutions based on the study of the individual child Some of the larger institutions located in or near the largest cities of Georgia have taken advantage of the industrial facilities offered by those cities to give the older boys special training beyond that which the institutions can provide
Economic TrainingEconomic training in childrens institutions should approximate as nearly as possible that of a well regulated family Children should be given the priv
38
CHILDRENS INSTITUTIONS
elege of personal ownership of clothing toilet articles toys pets etc and should have experience in the use of money There is particularly grave danger to an orphan child who enters the business world ignorant of the value and use of money The business world is built on competition of ability wits or energy and the boy who has always had food shelter and clothing given to him and yet who does not enter into the economic struggles connected with his support as do the children in a normal family group is likely to be seriously handicapped when he finds himself up against the competition of the business world only to find its methods entirely outside his experience
In order that the training in this line may be practical the following are suggested as essential standards and the figures indicate how many of the 32 institutions studied have met these standards to a fairly satisfactory degree
Institutions
Children permitted to personally own clothing toilet articles etc 19
individual garden plots assigned to children 3
Small weekly money allowance for children 1
Cash payment for extra institutional work 5
Individual bank accounts 4
Money rewards and prizes for standards of excellence in
school3
Direction given in spending money wisely 3
Children taught to give to charitable causes 3
Religious TrainingThe department realizes the necessity for the development of the religious life of the dependent children in our institutions It is the desire of the department to encourage the inculcation of as high ideals as possible by means of daily instruction in ethical and moral principles in the light of the highest spiritual values of the Bible
In Georgia institutions we have found
1 Formal religious services at least once a day
2 Grace at meals
CHILDRENS INSTITUTIONS
39
RECREATION
In only about 2 or 3 of the institutions was there lacking a conception of the necessity of providing healthful and varied recreation but a number have not yet approached the necessity of supervision of play and of the fundamental principles of competition in play which if properly worked out requires trained and intelligent direction
Since our first inspection was made one large institution has secured such a director to take charge of all the recreation in the institution In some of the institutions members of the staff assist with the recreational work which in some cases is purposeful and definitely planned in others casual and sometimes a perfunctory duty A reasonable recreational program calls for competitive athletics between institutional teams and between cottages and also with teams from outside the institution with trophies given and a marking system which would include recrational educational and cottage activities Such a recreational program not only reaches those children who are timid and lacking in selfreliance as well as the difficult child but is a recognized basis of health discipline and supervision and must be recognized as one of the most vital parts of institutional life
EquipmentSixteen institutions have a library but only 3 of these are well equipped Two collections are most complete and contain books of every type which a child should read and are located in well lighted rooms
Eleven have playground apparatus 8 fairly complete while nearly all have a few swings or sand pile One institution has the grounds lighted with arc lights at night properly supervised and the neighborhood children are invited to the lot during the day that children may have normal conditions of play Nine institutions provide playrooms some of which have lockers labeled for the individual childrens toys 8 are fairly adequate playrooms 3 have rooms with practically no equipment or lockers Three have
40
CHILDRENS INSTITUTIONS
swimming pools and three institutions being located on ocean and river beaches have outofdoor swimming most of the year
Nearly all the institutions have pianos or victrolas some havin gone in each cottage Four have sings by groups or cottages Auditoriums are found in 6 where entertainments and lectures are given Two have a stage in the dining room where the children may give plays This department has suggested to some institutions that students specializing in recreational work be asked to assist in planning and supervising games and telling stories One home has an excellent plan of requiring all the children under 9 years to have aquiet hour after lunch during which they are not disturbed
There are only 3 Boy Scout or similar organizations within the institutions as yet The children of 3 institutions are encouraged to join basketball and baseball teams and other school organizations The children in one home belong to school church and community organizations These normal social connections with the community life are distinctive features in the institution
CHILDRENS INSTITUTIONS
41
STATE TRAINING SCHOOLS
This department is required by law to inspect the two institutions for delinquent children which are supported from state funds and to make recommendations to the legislature as to their improvement
These two training schools for delinquents are facing a crisis in their history With inadequate buildings scant equipment and the most meager appropriations for maintenance both schools are struggling with the most difficult and yet most necessarytask in the public service that of preventing children from becoming criminal a danger and a financial burden to society
Neither has been able to accept half the children committed to it by the courts during the past year Forty children under fifteen who should be in the training schools are now at the State Penitentiary associating with the lowest type of criminals No provision whatever has been made for delinquent negro girls
Now that the state is becoming aroused to the proper methods of handling juvenile offenders and juvenile courts have been organized in half the counties the cry is growing louder and the demand more insistent for some place to which the most incorrigible or those suffering from immoral and destructive environment may be sent
Several counties have moves under way to build their own schools for delinquents This however would be most unfortunate If tax money should be dissipated in a half dozen poorly financed institutionsas is sure to occurthe cause would suffer and childhood gain little By all means let us center everything in these two state institutions until they have become really great industrial schools with several times the present capacity The suggestion of Judge Bridges Smith of the Juvenile Court of Macon is to the point He says With the large farm and facilities the state institution offers there is no occasion for the counties
42
CHILDRENS INSTITUTIONS
or larger cities to attempt to care for their wayward boys it would be in large part a waste of money What they should do is to provide cottages at the school for boys of their own city or county and if necessary appropriate a small sum for maintenance If there are ang legal objections to such appropriation let them get behind their representatives in the legislature and have such expenditures authorized by legislative act Fulton county is proposing to replace its county white boys reformatory and it would be far wiser should it place the building on the state property at Milledgeville
No Time to WasteBut the state should not wait for the counties to act We need to be ashamed of the record of the past year when it became necessary because of lack of funds to send 35 girls back to their home communities before they were properly prepared to meet the tests of outside life The fearful waste in money and time and endeavor the danger to morals of requiring faithful workers to struggle against odds of insufficient assistance and inadequate equipmentthese are conditions unworthy of Georgia and unfair to the people who are giving their lives to the work As one of the superintendents has said It is not fair to take children such as oursthe average age is fourteenand place them by force in an institution their attendance upon which in after years will not be regarded as having been a privilege and a blessing True some of them have done wrong many of them have had unfortunate home surroundings but they are too young to be held responsible The state has no right to attempt to make up for deficiencies at home unless it is done in the highest possible manner
Fortysix states now have training schools for girls Georgia spends less upon her institution than 33 of them and only 13 appropriate as small an amount per capita 26396 The average is 350 per capita while Nebraska New York New Jersey and California take care of larger numbers at a per capita of nearly 500
CHILDRENS INSTITUTIONS
43
Practically all states have boys training schools and the average per capita is 287 while Louisiana spends 596 and 31 states have a larger per capita appropriation than Georgia 240
The value of property invested by the state of Georgia in these two institutions is 658 per capita while the average in the United States is 1645 per capita and 35 states have more invested per capita than Georgia
Needs Should Be MetThese schools should have at least 100000 each for the erection immediately of additional buildings and purchase of equipment this in addition to any cottages which might be put up at the schools for their own boys by such counties as Bibb Richmond Chatham Muscogee Floyd etc The Boys School was given 30000 and the Girls School 35000 maintenance for 1921 At a minimum per capita of 350 this would only care for 86 boys and 100 girls Both schools should open their doors to double that number at once This would necessitate doubling the appropriation
It has been said that the test of any civilization is to be found in its attitude toward its children The measure of its future citizenship progress and happiness will be largely affected by the protection and development which it gives its wayward boys and girls
The Problem of ParoleWhen the time has arrived for these young boys and girls to leave the training schools they face a critical period in their lives Many of them are apt to fall back into their old habits unless they are guided into the right environment assisted in making a start and closely watched during the first few months If the example of other states is followed authority and funds will be provided the State Department of Public Welfare to employ state parole officers who will make preparation in the community to which the boy or girls is to return and follow them up carefully afterward In this work the contacts which the department already has with community leaders and social workers will be invaluable
AT THE BOYS TRAINING SCHOOL
SHALL THEY BECOME AN INDUSTRIAL ASSET OR SWELL THE CRIMINAL CLASSES
CHILDRENS INSTITUTIONS
45
THE STATE BOYS TRAINING SCHOOL
MILLEDGEYILLE GA
This institution since January 1 1920 has had the careful painstaking supervision of a Board of Managers serving without remuneration When inspected on February 27 1921 the Board was composed as follows Col F J Paxon chairman Mrs J E Hays vicechairman Mrs Orian W Manson secretarytreasurer John L Herring chairman budget committee Dr T J Abercrombie chairman health committee Dr M L Brittain chairman education committee
Since that time Mrs Manson has resigned to assume the superintendency and was replaced by John R L Smith of Macon Mr Herring resigned and was succeeded by Judge Hugh M Gannon
On January 1st 1921 the former superintendent was succeeded by Mrs Manson who was then resident board member Since that time she has been struggling with the constant aid of the board members to install improvements and make ends meet under the meager appropriations afforded
Beside the superintendent there is a staff of 12 workers caring for a population of 64 white boys and 49 negro boys The farm consists of about 600 acres of rather poor land about 200 of which is in pasture with about 200 acres under cultivation There is provision of live stock garden plots and orchard
The improvements are valued at about 36000 and equipment at 4700 Two twostory brick and cement structures provide dormitories schoolrooms and diningrooms for white and colored boys separately Other buildings include a dairy a forge and woodworking shop a wash house a bath house and toilets five fourroom wooden houses occupied by officers and their families a number of
46
CHILDRENS INSTITUTIONS
barns sheds and outbuildings to house the live stock and implements
Improvements Since Last InspectedWith the aid of the dietitian at the State Insane Sanitarium a balanced diet has been installed
The farm is in a flourishing condition all the work being done by the boys The garden and farm have been planned in such a manner that with the aid of the cattle and hog raising poultry and dairythe school supplies all its own food
An athletic military instructor has been employed and has charge of recreation and drill A swimming pool has been provided
With the aid of one of the older boys a very good record sheet has been prepared on each boy in the school
Older boys are used as officers of the day Selfgovernment is being tried
Lockers have been installed for all the boys and compartments are being built in which they may keep their toilet articles They have been furnished toothbrushes hair brushes and combs For the first time all the boys are supplied with underwear
A number of improvements such as building compartments around toilets in the dormitories building a linen closet putting in stoves in the dormitories have been made
Three hundred fruit trees have recently been planted chickens bought and a chicken run put in and an incubator set
Considerable effort to beautify the place is in evidence trees roses and other flowers having been planted
Since the first of January a new teacher for the white boys has been secured a new matron for the white boys
CHILDRENS INSTITUTIONS
47
a new woman to act as teacher and matron for the colored boys
Needs of Institution
1 Increased funds for general per capita maintenance
2 Erection of three cottagesand if possible more with capacity of 30 or 40 boys each These cottages should each be equipped with dormitories matrons room playroom diningroom kitchen etc One of them should be used as a receiving cottage and the others for housing additional boys They would probably cost 30000 each
3 Remodeling of present building used for negro boys to make it a more decent place provide adequate livingroom diningroom schoolrooms hospitalroom etc with equipment more nearly approximating civilized conditions At present it is more like a barn Food has to be carried from the other building and in winter it is always cold and unappetizing
4 Proper heating systems in the two present buildings They are now heated with coal stoves
5 A modern steam laundry The old type open kettles and hand rubbing should be abandoned
6 A silo thresher hay press tractor sawmill and canemill might be added to the equipment as requested by the board in its last annual report
7 Adequate equipment in schoolrooms
8 Commercial and industrial trades as well as scientific agriculture to become a large part of the institutions educational training program
9 Thorough physical and mental examination of all boys on admission and at regular six month intervals with prompt attention to all defects adenoids tonsils bad teeth etc
HARRIET HAWKES COTTAGE
one Of the few examples of the Modern Cottage System The Georgia Training School for Girls
CHILDRENS INSTITUTIONS 49
THE STATE GIRLS TRAINING SCHOOL
Fulton County near Atlanta
This institution is just completing its sixth year During that time it has been under the guidance of a faithful and interested board now composed of Wilmer L Moore Atlanta chairman Mrs W H Felton Cartersville secretary William H Davis Waynesboro Mrs Thomas H Lathan Atlanta Mrs Z I Fitzpatrick Madison
The faithful superintendent under whose guiding hand many Georgia girls had found the way back to straightforward living and to happy motherhood remained with the school until after the legislature refused the needed funds last summer Finally convinced that Georgia would not back her up in her efforts she accepted a call to another state She was succeeded by Mrs M E Sikes formerly an officer of the Sleighton Farm Training School
The superintendent and 9 helpers make up the present staff On a plot of 98 acres are located three buildings One is a wooden onestory structure with basement used as a receiving cottage The two other buildings are modern examples of the cottage plan each accommodating about 40 girls with bedrooms sleeping porch furnace heat electric lights showers and tubs kitchen diningroom schoolroom and playroom A small cottage on the grounds U used by the farmer and his family The buildings are Valued at about 65000
Only one of the modern cottages is now in use During last fall it became necessary to close the other on account of lack of funds Practically no improvements have been possible during the past year as the cost of maintaining such a school has increased at so much larger ratio than the maintenance fund
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CHILDRENS INSTITUTIONS
Needs of the Institution
1 Increased funds for general per capita maintenance
2 Increased supervising force including a recreation director to have charge of the play life a domestic science teacher this department had to be closed on account of shortage of funds an assistant superintendent on good salary to relieve the superintendent of some of the details and engineer and utility man
3 Certain equipment including fly screening shades bedroom and diningroom furniture desks for school room a model dairy a poultry house and run a quantity of modern farm implements a barn and silo playground apparatus and hospital facilities
4 New buildings including a modern receiving cottage a cottage for the younger children a cottage for girls committed for gross immorality and provision for delinquent negro girls
5 Properly adapted vocational courses to become a large part of the institutions educational training program
JUVENILE DETENTION HOMES
Now that Georgia counties have become interested in making their juvenile court work more efficient undoubtedly there will be a need for juvenile detention homes in the very large counties in which erring children may be detained pending trial and the working out of plans for their future Most of the counties however can detain them in private homes without the expense of conducting an institution
At present there are only three such homes These are in Chatham Fulton and Richmond counties In many other counties juvenile offenders are detainedand in many instances unlawfully soin county jails frequently being
CHILDRENS INSTITUTIONS
51
placed in cages with the heterogenous classes of criminals so commonly found in jails
The Chatham county home occupies an old threestory brick residence is rather meagerly equipped and can only provide detention for white boys and girls As provided by law this home has an excellent citizens advisory board which gives generously of its time in carrying out its established purpose
The Fulton county home occupies an old twostory brick residence which is unsuited in every particular and ought to be abandoned at once While its equipment and facilities are in the main of a destitute character it does provide detention for boys and girls of both races There has been an expressed intention by the county commission of erecting a new home m the near future This home does not have a citizens advisory committee
In Richmond county the home occupies a rather good twostory frame residence poorly located but fairly well equipped It provides detention only for white boys and girls At an early date a citizens advisory committee will be appointed
2 rooms adJacent to the juvenile court judges office in Bibb county are used for detention purposes but are illsuited for such use
52
CHILD PLACING
Chapter IV
CHILD PLACING
Definition
Child placing consists in placing homeless children in private homes of persons not relatives for rearing and adoption
In some states there has developed in connection with such permanent placing the temporary placing of children in private boarding homes which are carefully supervised to make certain that the children are being properly cared for during the temporary disability of parents or relatives In Georgia the latter work has not yet developed to any appreciable extent and practically all the boarding that is being done is by means of a few emergency institutions which care temporarily for children who are sometimes paid for by relatives although as a rule the institutions bear the financial burden There is need in Georgia for a boarding home department of a child placing agency to which children with temporarily disabled parents or relatives could be referred by persons or agencies who are called upon to help the families during such temporary disability However for the present our study must be confined to the present situation in Georgia and child placing in this report therefore refers to placing for permanent care or adoption
Principles of Work
The principle on which child placing is based is that the first and elemental social organism is the family Some times the natural or normal family ties are broken by death or a moral dissolution takes place and it is necessary to find foster parents who will take the child as their own thus including him permanently in the small intimate circle known as the family with both father and mother as the head
CHILD PLACING
53
It is immediately recognizable that this job of finding the right parents whose influence will give him the physical mental and spiritual training which is his right as a child and of which he is capable by virtue of his native abilities is a most delicate task Indeed it requires the highest skill and most careful training in order to discern whether the childs development is being retarded or hastened by his treatment It may not be diffcult to see that a childs body is not being nourished that he is not being kept clean that he is being overworked and kept out of school but it takes discernment to discover that the childs moral or spiritual nature is being dwarfed or that his social future will be seriously handicapped by his surroundings
The first need is a study of the immediate family group to determine whether or not it can properly care for the child A close study of relatives has often revealed the most unexpected possibilities of care by their own people This study is of course the job of a family worker but if there is no such trained service the agency or person who receives the child for placing is responsible for ascertaining whether or not the child can be cared for by his own people
After it is certain that the child should be placed three things are absolutely necessary
1 Careful study of the childs health mental condition and temperament
2 Careful preliminary investigation of the foster home
At least three references should be given beside names of minister employers etc These references should be interviewed or written to Some people especially in small towns will not put in black and white damaging statements in most cases neighbors who will ont write will often talk or show by their manner that they do not wish to say what they think thus leading to inquiry from other references In all cases persons not given by the applicant as their
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references should also be seen as these will usually say what they think
A child was placed in a home without the discovery being made that the foster parents were not married and that the man had taken the woman from a house of illfame to become his common law wife When the discovery was made and it was found that the couple were trying to live straight and were really fond of each other they were married and the child allowed to remain with them That child may be well cared for and much loved and in other ways trained but in that particular community which is not patient with moral lapses of that kind the childs future is jeopardized as she faces social ostracism when she arrives at school age The child should not be subjected to the effect which such a circumstance has on a sensitive nature
In this case it was an employer named on the application blank although not as a reference who became so indignant that he complained The entire difficulty might have been avoided had he been seen at the start
3 Supervision of the home after placement
During the first three months the home should be visited frequently and after that at least once in six months until the child is adopted This is absolutely necessary to be sure that the child is not neglected but is placed in a congenial home in which his moral and spiritual needs are being provided
Henry J a bright boy was placed by adoption at the end of his third school year Five years thereafter it was learned that he had not attended school a day since he was placed his education was lost and his whole future handicapped He had farmed during all those five years although he disliked farming
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and returned to the city to take up mechanical work This boy had been taking the place of a farm hand instead of a son In this case there was no investigation and supervision no one responsible for knowing conditions and as the boy had been placed with a minister it was taken for granted that he was in a good home The school he could have attended at that time was not responsible for knowing of nonattendant school children in its district as it is now so the boy lost his chance Lack of supervision was responsible
Child Placing Agencies
In Georgia child placing is done by the following Georgia Childrens Home Society Family Agencies Institutions for Children Courts
HospitalsGeneral Individuals
Maternity Hospitals and Homes
GEORGIA CHILDRENS HOME SOCIETY
This is a private specialized agency based on the principles set forth above with a statewide organization It is in no way connected officially with the state government as is sometimes supposed but is named as such agencies usually are from its field of work Its difficulty has been lack of money Child placing as already set forth is a specialized job and requires training and skill and an adequate staff When an examination was made last year it was found that this agency was not meeting the requirements in these two respects and was overambitious wishing to
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undertake work such as better organized and wealthier societies have developed and in some places in the state its reputation has suffered However it is now working along the right lines and it is the purpose of the superintendent to secure with money subscribed in a recent financial campaign a larger trained staff and concentrate in the supervision of previous and future placements which is the foundation of sound child placing
Up to January 11921 the Society had received 80B children as its legal wards During 1920 the Society received 60 new placement cases 24 were given temporary care 5b were placed in private homes without adoption 56 replaced and 19 adoptions were granted
In May 1921 the field staff consists of 4 home visitors under the direction of a supervisor An effort is being made to increase this number of visitors
In the spring of 1921 Ormewood Court a fine old residence in the suburbs of Atlanta was purchased for a receiving home where children may be held pending placement It is well located for the purpose and is fairly well equipped The chief need there is of the furnishing of the small cottage on the grounds near the house for a receiving cottage for placing children on entry for ten days isolation This would require a special matron in charge The cottage is well adapted for this purpose and can fulfill a fundabental need of the home
At the annual meeting of the Tuttle Newton Home orphanage of Augusta in April 1921 the Board of Managers decided upon a plan of cooperation with the Georgia Childrens Home Society by which the institution pays part of the salary of a worker for placing children through the Tuttle Newton Homeland this orphanage will be used as a receiving home for the Augusta district
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FAMILY AGENCIES
Few family agenciesthat is associated charities and similar organizations do child placing but in some cases it is done However with a specialized agency in the state to do this it would be well for those agencies to concentrate on the work for which they are especially organized turning over the child placing to the specialized agency
INSTITUTIONS FOR CHILDREN
Nearly all the orphanages do some child placing particularly the institutions that care for babies Of course full orphans abandoned children foundlings and children from immoral homes are generally regarded as the placeable children of the institutions Many of the superintendents in the Georgia institutions recognize the value of a private home for this class of children but are fearful of placing children above 5 or 6 years because of their experience with people who want to take older children to exploit them One can appreciate the desire of the institution to help as many dependent children as possible and to place some of them in foster homes in order to make room for more children in the institution However since they have no means of supervising children after placement it would seem wise that some cooperative arrangement be worked out by which after they are placed in private homes by the instiaution the children would be under careful supervision
COURTS
As the Juvenile Court system is rapidly developing in Georgia the largest part of the placing by courts will be done by the juvenile judges Most of the special courts now organized recognize that they have other work to do than supervise all their wards who must be placed and most of the courts refer the cases to the Georgia Childrens Home Society or a local agency This is a sound policy and one which should be followed in all cases It would be desir
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able to do their placing through the one specialized agency holding it responsible for the work
HOSPITALSGENERAL
The State Department of Public Welfare has not made a study of the placements by general hospitals and only occasionally finds children which have been placed by someone in a hospital usually with some family known to the individual These are abandoned babies or those whose mothers die in the hospital leaving no known person to take the child It is exceedingly desirable that all those children be turned over to the Juvenile Court so they may legally commit the child to the specialized child placing agency This is in line with the principle that all children should be assigned to the child placing agency by some one legally responsible and that the agency be made the legal guardian by the Court thus giving the agency the authority to release the child legally for adoption and removing all fear of foster parents that someone may institute suit for the child It also fixes definitely the responsibility for the child This gives the agency the opportunity when circumstances permit to persuade the persons who take a child permanently to show their good faith by adopting the child legally thus protecting the child from being left stranded in case of the death of the foster parents
INDIVIDUALS
There is no way of knowing to what extent individuals give away babies as no registration is required and no check on any person doing what he wishes with a child in Georgia One woman secured a baby from a maternity hospital in Atlanta and gave it into the custody of a feebleminded home where other children were cruelly beaten The little ones are often passed on indefinitely go from the state and are lost abandoned or may even be sold There are women of ill fame who would be glad to buy a baby if need be when it is necessary for their purpose but why should they when
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babies are given away for the asking With an unregulated system of child placing such as we have in Georgia there are more ways than one for designing persons to secure a baby and so these little ones are left unprotected in our Christian civilization
MATERNITY HOSPITALS AND HOMES
Certain rescue and maternity homes in the state are founded on the principle of helping the unmarried mother to keep her baby and do not do any child placing If babies of those mothers are placed it is done by some other agency except in rare instances Other rescue homes give the babies to an orphanage which places them in private homes or keep them
Child placing as done by St Marys Hospital in Atlanta hereafter reported in detailis an example of a highly commercialized system of giving away illegitimate babies and of the fate that will continue to befall many helpless little Georgians unless their native state will protect them by laws as Alabama and other states protect their tiny ones who in the past have suffered for someone elses sins We are learning a better way
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Chapter V
THE CHILD BORN OUT OF WEDLOCK
REPORT ON MITCHELL MATERNITY HOSPITAL PLACEMENTS
The child in our midst has long been the recipient of tender ministrations the subject of much wonderful poetry the principal stimulant to arouse the spirit of charity but we have not yet advanced very far from the dark ages in our attitude toward the innocent helpless little one born out of wedlock This child is fashioned the same as the rest of us bears no mark of natures ill favor gives no more or no less response to ill treatment reacts viciously only according to the same causes that operate in general More than thirtyfive thousand of these little ones are born out of wedlock each year in the United States an average of 43 to every 1000 women Statistics prove that they die within the first year at a rate three times as great as other children and statistics can never picture the suffering from needless neglect and abuse of those remaining alive
The causes of illegitimacy need to be studied and preventive measures adopted to greatly reduce the number of these births The present laxity of the law in placing little if any responsibility upon the father should be corrected But the problem of the everpresent unfortunate child must not be overlooked This child is in our midst What will we do with him
Laying aside for the moment all the pulpit and press debate over the advisability of the secret maternity home with which Atlanta has been strugglingand insisting that the unhappy mother is entitled to every possible protectionthe State Department of Public Welfare has concerned itself with the fate of the 110 illegitimate babies
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which have been placed indiscriminately throughout Georgia and the South during a short 18 months period by one individual institution Editorial Macon Telegraph the Mitchell Maternity Home known as St Marys Maternity Hospital
No investigation was necessary to prove the need for regulation of the methods of placing babies by this hospital Mrs Mitchell frankly acknowledges that she makes no investigations of the homes into which the babies go When asked whether she had any references or record of investigations she said You know that I have no help and cant go chasing around after these babies Thats what you are after me for I havent any record of changes of addresses have not been to many of the homes and do not keep up with the babies except as the foster parents write or come to me In practically every home visited by our agents the foster parents told us that they had given no references when they secured the babies and that no effort had been made to find if they could give the children good care Under such a system good placements are simply fortunate accidents
Legislation NeededThe Department of Public Welfare is waging no warfare against maternity hospitals nor engaging in any persecution of individuals It is simply asking that the State pass a law to guard the welfare of the child left alone in the world without friend or protector
Is it not fair to require that any hospital or agency which places a child in a foster home shall first determine whether that home is a fit place in which to rear the child Should not the child be visited in its new home during the first year to discover whether or not it is being properly cared for Should not the placement of the child be duly recorded as is an exchange of land or property
We are asking that the legislature require every person or agency doing childplacing to secure a license from the State Department of Public Welfare contingent upon their
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observing some such simple standards Then at least no more hundreds of these babies would be lost to view or found in immoral degenerate and unsafe homes Such legislation is humane and sound and has been adopted in many states
The placing of dependent children whose parents are dead or unfit or incapable of caring for them needs the same kind of state supervision As the law now stands giving away babies is as informal unregulated and indiscriminate as disposing of pigs or chickens The 110 cases herewith reported form only a small part of the traffic in babies going on constantly in our State The State as a whole as Herbert Hoover has said has the obligation of taking such measures toward its children as will yield to them an equal opportunity at their start in life
Tracing these children to all parts of this and other states was an arduous task Special precautions had to be taken not to embarrass the foster parents Although it was impossible to visit the small towns throughout six states where 40 of the babies had been placed we were able to reach 24 outoftown babies through the aid of reputable social agencies in Georgia cities and in Charleston Chattanooga Philadelphia Chicago Indianapolis Milwaukee etc All the 46 babies placed in Atlanta were tracedas far as humanly possiblemaking a total of 70 babies on whom we are ready to report
The facts stand for themselves Although 36 were found to be in good homes the remaining 33 48 or nearly half were bad placements ranging from filthy nauseous surroundings to brothels and rooms of prostitutes We were able to secure indisputable details in 27 cases Three other foster parents had lived such a short time in lowtype boarding houses as to leave no record of their character with the neighbors while three had deliberately given false addresses The following indicates the conditions discovered
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Gross immorality 12
Filth and feeblemindedness 8
Irresponsible floaters I 7
Poverty 2 3
Neglect 2
Disease 1
The status of these babies since their placement is as follows
Fake addresses given by foster parents 6
Taken by social agencies 4
Died 3
Referred to social agencies 8
Foster parents left for parts unknown 8
Action pending 4
Nefarious Chain DiscoveredThe large number found in the hands of prostitutes and degenerates was the tragic feature of the investigation It is fearful enough to realize that these children will grow up into prostitutes and criminals but that they should be used almost from birth to further the ends of women of the streets is even more distressing It was found that not only the cases listed further on in this reportwhich covers only an 18 months period but literally scores of babies have found their way during the past five years into the hands of women of ill fame The nefarious scheme had been passed on from one woman to another It was found that every debased woman who had taken a child had learned of the place to get it from some friend and each knew of from one to three others who had secured babies from the same source Detectives and policewomen reported cases after case and the clues led to police records state farm arid criminal haunts as far away as Chicago and Milwaukee
The same chain led through a series of degenerate homes of feebleminded persons Three mill women with the men
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tality of childrenone of them with a long police recordliving in filthy disreputable homes having associated together in drinking and disorderly habits took up the baby fad in the same spirit and told of three other immoral women who have secured babies from the same source
DETAILS OF CASES
CASE NO 1 Chicago 111 Woman secured baby in order to deceive husband and get money from him Gave Mrs Mitchell an assumed name and went to Chicago Landlady there reported the man was nothing but a drunken bum never worked and came home drunk every night that the woman was in no way fitted to care for child neglected the baby frightfully After six weeks they went to Milwaukee without paying board where she and her husband planned the robbery of a Greek The woman made an assignation with a Greek the husband surprised them and together they robbed him of 850 They were arrested the baby taken from them by the Juvenile court and placed in a home When released they returned to Georgia and there is no guarantee that they cannot again secure a half dozen helpless babies
CASE NO 2 Savannah Ga Woman lived at address with man who disappeared and another man posed as the husband of the woman The woman went away for a time and returned with a baby Couple moved to a basement home where the baby died June 11 1920 This baby was given to a woman who had changed her name and husband three times while she had the baby and who lived in a basement in a disreputable part of the towna home of the lowest moral character
CASE NO 3 Charleston S C Woman of poor character secured the baby without the consent of her husband There was much wrangling over the child which resulted in the couple separating They left the baby with the mans
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father and then began a series of pitiful experiences for the child First the father and the landlady fought to retain possession of it Then the father advertised it to be given away and gave it to an unfit family Then the mother returned and she and her father attempted to kidnap it several times Finally as the result of this investigation the South Carolina Department of Public Welfare took it in charge and found it a good home During the disturbance over the child man had wife arrested
CASE NO 4 Augusta Ga Baby was taken from St Marys hospital by a woman who is a notorious prostitute By prearrangement she left it on the doorstep of a family in Augusta The woman is feebleminded of pronounced type and keeps a disorderly filthy home The father is a disreputable fellow who beat his other children unmercifully Both have long police court records Another baby had previously been given to the woman by St Marys hospital but this child died in a few months from ill care A sevenyearold child had already been taken from them by the Juvenile court on account of cruel treatment and placed in an institution While the little girls case was being handled by the Augusta authorities the family left the state and kidnapped the sevenyearold girl from the institution By court action the child was returned and again found to have been cruelly beaten At any time this family may again move to another state and it is only a matter of time perhaps till the little baby becomes a servant the victim of this feebleminded woman and cruel man Referred to social agency
CASE NO 5 Birmingham Ala Woman living under assumed name Was supposed to have been divorced and remarried but both husbands frequented her house She moved away with the baby to some unknown address in South Carolina The family now occupying the house where women lived stated that all kinds of men called to see
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woman greatly annoying the present occupants by their immoral advances
CASE NO 6 Atlanta Ga This woman known to the police as a prostitute secured baby in February 1921 m order to get into a fashionable hotel with a man Afterward she left the child in an ally with a negro woman who kept it twentyfour hours and turned it over to the pohce who placed it in the Home of the Friendless Mrs Mitchell superintendent of the maternity home hearing of the affair went to the Home and reclaimed it Any sort of investigation would have proven the character of the woman to whom the baby was given
CASE NO 7 Atlanta Ga Woman of doubtful character living in a house bearing police surveillance Husband has a long police record and was arrested on a criminal charge a few days after the child was placed in the home During the day the baby is kept by a negro woman m her alley home The negro woman claimed she fed it anything she herself atebiscuit bitters etc
CASE NO 8 South Georgia town This unfortunate mite was placed with a soldier in the labor battalion at Ft McPherson and after a few months returned to St Mary s in critical physical condition The baby was then given into the above home the wife living in an Atlanta boarding house of the lowest typeabsolutely filthy The man after being discharged from his position with a clouded record is said to be working as a traveling salesman When visited the woman was found in her room with another man not related to her This couple has since left the city for another state Referred to social agency
CASE NOS 9 10 Atlanta Ga Wretched house in filthy condition The woman was even more dirty than her house and so feebleminded that she could not remembed
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from day to day the conflicting stories she told to account for the lack of marriage record and the different man with whom she had lived and the presence in her home of three sick miserably caredfor tots Said she got a baby from St Mary s Hospital for her sister which died one month later Information received indicated that she had taken babies under another name and that undoubtedly the three children in this homeall under two years of agewere secured from St Marys Hospital Woman claimed first that they were her own and afterward that they belonged to her relatives but would give no lucid information concerning her relatives Doctor who attended the woman since her last marriage said she had never been pregnant during that time
CASE NO 11 Atlanta Ga Address a lowtype boarding house Landlady said she had compelled the woman and her husband to move because he was a bootlegger and did nothing but run around in car Man has long police record having been convicted three times for bootlegging and has forfeited two bonds Recently released from Fulton county jail where he served sentence Present whereabouts of couple andchild unknown This wandering life with an habitual lawbreaker is a fearful invironment for the child
CASE NO 12 Atlanta Ga This is a lowtype cotton mill home woman stupid snuffdipping type Was living with present husband before she got her divorce from former husband Her friends told of her drinking and association with women of prostitute type
CASE NO IB Atlanta Ga Man drinker and gambler now under embezzlement charge Woman has long record of immorality has been married three times and lived immorally with another man Physician tells of her past dissipation Woman appeared somewhat demented Said she new of three prostitutes who secured babies from St
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Marys Hospital but refused to give their names Referred to social agency
CASE NOS 141516 Atlanta Ga Three babies placed in this home where there were already six children and a visible income of only 30 a week St Marys Hospital had given in all 14 babies into this home five of which had been passed on to a daughter in Florida Four of the 14 children have since died When the matter was given publicity through the newspapers St Marys took three babies away from this home in which they should never have been placed
CASE NO 17 Valdosta Ga Man and woman were attached to a road gang which was paving a highway They belonged to the floating population rented rooms in Valdosta a few months and passed on The people from whom they rented stated they never had been able to find out who they were where they came from or where they went They took the baby with them
CASE NO 18 Wetumpka Ala Childs own mother able to care for it asked for its return to her The child had meanwhile been placed with a family regarded as irresponsible The Maternity Hospital refused to furnish the childs own mother with information as to its whereabouts
CASE NO 19 Atlanta Ga Woman married three times Reliable informant stated woman associated with a notorious prostitute and other doubtful characters Other information and visit to home indicates this is a bad placement
CASE NO 20 Atlanta Ga Divorced woman who mar ried a soldier when 20 years old for second time While in Atlanta lived with sister in brokendown family disorderly and dirty Undoubtedly a poor placement
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CASE NO 21 Atlanta Ga Twelve peopleincluding four men boarderslive in this fiveroom second story flat Twice since the 22yearold woman and her 23yearold husband took the baby she has gone to the Georgia Childrens Home Society stating that she and husband were going to separate and she wanted to give up the baby Both times however they seemed to have effected reconciliation although in August 1920 they were not living together
CASE NO 22 Atlanta Ga Could not locate but friends stated that before leaving Atlanta she had given the baby away This indicates that the unfortunate child has already been buffeted from family to family which so often befalls the illegitimate
CASE NO 23 Charleston S C Left Charleston owing three months rent Said to be unreliable shiftless wanderer Could not locate further
CASE NO 24 Atlanta Ga Man suffering from tuberculosis at time of placement Family has moved to California where he is receiving treatment from Government No child should be placed with tubercular foster patient
CASE NOS 25 26 Atlanta Ga Home dirty and woman slovenly One baby which she took from St Marys Hospital died She secured another within the year and with her improper method of feeding it has little chance to become a healthy child if it lives at all A visit to the home would have proven its unfitness although the appearance of the woman should have been enough
CASE NO 27 Atlanta Ga This woman traced through three disreputable houses but could not be located Police know all these houses as of the lowest type
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DID THIS NEED INVESTIGATION
SUFFER LITTLE CHILDREN AND THEY DO SUFFER IN FLOYD COUNTY JAIL
The third floor of the Floyd county jail now has considerably the appearance of a kindergartennot altogether by any means for there are no steel doors nor steel bars nor profanity nor vile actions usually in kindergartens The similarity is caused by the presence in the jail on the third story of several childrensome of them children of very tender years indeedresting under various charges Still to see them in jail is not a pretty sight
Some of them told revolting stories too last night of what had happened to them in jail in spite of the watchfulness of the jail officers in the dark hours when they are locked in with vile menFrom Rome TribuneHerald
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Chapter VI
JUVENILE COURTS IN GEORGIA
SPECIAL JUVENILE COURTS
There are nine counties in Georgia with 35000 population or more which may have a special juvenile judge separate entirely from any other court upon recommendation of the Grand July Such courts exist at present as follows
Bibb CountyBJudge Bridges Smith
Chatham County Judge Hugh M Gannon
Fulton CountyJudge Garland Watkins
During the past year county seats have been visited by agents of this department and the matter has been taken up with grand juries in Floyd Laurens Muscogee and Troup Counties and these courts will probably be established shortly Richmond County had a special court but on the death of the judge the city court judge was appointed to the position This of course defeats the object of the act DeKalb is the only other county with 35000 population
DESIGNATED COURTS
Existing courts of record have been designated to act as juvenile courts in compliance with the law by the Superior Court Judges for the 74 counties in their circuits as follows
Albany Circuit Seminole County onlyJudge R C Bell
Blue Ridge Circuit Judge D W Blair
Brunswick CircuitJudge J P Highsmith
Chattahoochee Circuit Muscogee County only
Judge George P Munro
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Coweta Circuit Judge C E Roup
Flint CircuitJudge William E H Searcy Jr
Macon CircuitJudges H A Smith and Malcolm Jones
Nprthern CircuitJudge W F Hodges
Ocmulgee Circuit Judge James B Park
Ogeechee Circuit Judge A B Lovett
Pataula Circuit Judge William CWorrell
Rome Circuit Floyd County only Judge Moses Wright
Southern CircuitJudge William E Thomas
Stone Mountain CircuitJudge John B Hutcheson
Tifton Circuit1Judge R Eve
Western CircuitJudge Blanton E Fortson
NOT YET DESIGNATED
We havenot been informed of the designation of Juvenile Courts in the following circuits
Alapaha Albany except one county Atlantic Augusta except one county Chattahoochee except one county Cherokee Cordele Dublin Middle Northeastern Oconee Rome except one county Southwestern Tallapoosa Toombs Way cross
RESULTS OF THE JUVENILE COURT CAMPAIGN
Number of Juvenile Courts in Georgia July 1 1920 8 Number of Juvenile Courts in Georgia after 9 months
campaign ending April 1 1921
Number of Additional Juvenile Courts required by State Law 83
The Law of Georgia has required since 1916
1 That there be a Juvenile Court with a Probation Officer in every county in the Statean existing court of record to be designated by the Superior Court Judge of the Circuit Counties of 85000 population or more may have a special separate Juvenile Court upon the recommendation of two successive grand juries
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2 That no child unless charged with a crime punishable by death or life imprisonment may be confined in jail awaiting trial or on sentence except in special cases and then only on order of the Juvenile judge It is mandatory that when necessary to detail children except the most dangerous and incorrigiblea place must be used separate and removed from any jail or place where adults are imprisoned
Although this law has been on the statute books five years there were but eight juvenile courts in existence when the Department of Public Welfare began its campaign last summer and hundreds of children were being illegitimately confined in county jails and sentenced to chain gangs with murderers cutthroats and degenerates
The Movement SpreadsThis condfition was due to there having been previously no State department to make the law effective When called to their attention many of the Superior Court judges promptly appointed Juvenile judges as required by the law The campaign of the department has been welcomed by child lovers everywhere
The sixtynine new judges have undertaken their new duties with spirit and zeal Many of them have accepted the departments offer of aid in setting up their work In Judge R Eves circuit they have formed a Juvenile Judges Association The campaign has entailed distribution of innumerable letters and personal conferences visits to various parts of the State conferences and addresses before community groups The State is thoroughly aroused to the protection of its youngsters from the rough hand of the law
Fearful Neglect DiscoveredHe was just a twelveyearold boy
Seven days he had spent in the county jail where he had been locked by the sheriff The boy had broken the law by stealing a laundry drivers pocket book and so he went to jail The sheriff had himself violated the law by
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placing the lad in jail for the law says that juveniles shall be committed by the sheriff only to a place entirely removed fro mthe jail But there was no one to arrest the sheriff no one to even remind him of the lawuntil the agent of the Welfare Department arrived
Seven days the boy remained in jail being schooled in criminality with a score of hardened adults a few burglars and other felons He was committed by a justice of the peace who had never read the Juvenile court law and did not know that neither he nor the city court had the right to try any boy under sixteen years of age
And so the boy remained in jail and was found there b ythe agent of the Welfare Department The agent went in search of the probation officer They said he could not be foundthat he was a notorious gambler and no one ever thought of talking to him about a boy anyhow Persisting the agent sought the Juvenile Court Judge an Ordinary who had been designated to act as guardian of the boys and girls of the county
This gentleman admitted that during the two year since he became Juvenile Judge three cases had been brought before him but he had never even read the Juvenile Court law and thought it is an imposition to hold him responsible as he received no extra pay for adjusting the trouble of the youth of his county He was Juvenile Judge in name only and calmly refused to act
Finally the agent persuaded the city solicitor to rout out the city judge and give the lad a hearing The boys uncle and the sheriff painted the lads character blackhopeless they said To the Reform School said the judge and ordered him back to the jail to wait until correspondence with Milledgeville could arrange his entrance
There was no effort to study the boys environment no visit to the home no thought of appealing to his pride or arranging for a Big Brother to help him pull through no
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enlisting of his teachers aid It was so easy just to bundle him off to the reform school The judge would not even trust the little fellow enough to probate him in the care of a relative until the time to go to Milledgeville He must spend a few more days illegally confined in jail
This incident occurred recently in a Georgia County whose principal city boasts 15000 population and is a center of culture and progress
What did the Welfare Department do about itThe Superior Court Judge was approached and his interest aroused He promptly appointed an advisory committee to the Juvenile court as provided in the law composed of ten of the most influential and capable men and women in the county This committee undertook to see that no child should be held in the county jail but all children should be taken immediately before the Juvenile Judge Members of the committee were assigned to sit with the Judge and assist him in working out plans for children They have found a fine capable woman who is taking a few months training and will be appointed probation officer on salary
The Georgia Juvenile Court LawGeorgias Juvenile court law is in many respects one of the finest on the books of any State Its power is unduly limited by the fact that the State constitution gives the Superior court the right to try children charged with a felony and to adjudicate a controversy over the custody of a child This should be remedied by a constitutional amendment giving the Juvenile court exclusive jurisdiction in all childrens cases Except in cases punishable by death or life imprisonment Such ah amendment has been drawn and will be submitted to the legislature It has the approval of Judge Bridges Smith Judge Hugh M Gannon and Judge Garland Watkins of the Special Juvenile courts and many Superior Court judges However as the law now stands all such cases can be handled by the Juvenile court if sheriffs court officers and so
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licitors will refer the cases to the Juvenile Court instead of taking them before the Grand Jury
The court also needs to have its hands strengthened in handling adults who neglect or contribute to the delinquency of a child
However even with these defects the law effectively reverses the old attitude of the criminal court toward the delinquent child He is not considered a criminal but a ward of the State and is subject to such discipline and entitled to the protection which the court thinks best The question of guilt in the specific case is a slight consideration The court goes into the habits surroundings and tendencies of the child and may take any steps necessary to give the proper care discipline and protection The child may be placed in the care and control of a probation officer allowing it to remain in its home subject to visit and control or it may be placed in a more suitable home or committed to the State Training School In no case does the law allow a sentence to the chain gang or state prison except when the crime is punishable by death or life imprisonment
Many other provisions such as private hearings release of the child on its own recognizance use of volunteer probation officers modification of court order at any later date when the judge things best trial of girls by a woman referee medical care at county expense etc tend toward remedial and beneficial results rather than cold justice and punishment for crime
The State Department of Public Welfare is the official agent of the Legislature to see that this great law is put at the service of the children in every county in Georgia As a consulting agency for 160 county juvenile judges in the intricate social problems involved in the thousands of cases to be handled each year the department will be called upon increasingly as the movement spreads
Advisory CommitteesThe Juvenile Court Act provides
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for the appointment of an advisory committee composed of not more than ten persons half of whom shall be women Such a committee has been appointed in Floyd county and it is hoped that more will be organized The following suggested activities of such a committee indicate the valuable services it could render
1 Study the methods of the court and assist the judge in
improving them
2 Study the equipment of the court and use its influences
to better it
3 Study the Juvenile Court Law and promote its amend
ment by the legislature
4 Hold educational meetings bring such speakers as
Judge Ben Lindsay send local speakers to local organizations
5 Secure Big Brothers and Big Sisters for children on pro
bation
6 Interest itself in seeing that any influence in the com
munity that makes for wrongly affecting the young shall be obliterated
7 The Juvenile Court is the place where the evidence of
the communitys disorganization can be best secured
With the facts here gathered and the human interest stories to illustrate them the committee could arouse the community to its needs along educational health and recreational lines
Probation Officers NeededThe Department of Public Welfare realizes that juvenile courts will not be effective unless they have the services of a paid probation officer In the juvenile court law the juvenile court judge in conference with the superior court judge may appoint a probation officer whose salary must be paid by the county In
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JUVENILE COURTS
the larger counties steps should be taken at once to secure the appointment of an efficient probation officer However in the smaller counties it is quite feasible that the same probation officer be appointed by all the counties in a judicial circuit and the expense prorated on a basis of population In this manner a higher type worker can be secured and no county will be heavily taxed The plan is to be tried out in the Western Judicial Circuit where Judge Fortson with the assistance of J L Sibley director of the Social Service department of the State University called together the seven juvenile court judges of his circuit and they enthusiastically undertook to get the appropriations from their counties for this work

The Department will be glad to assist in organizing the work in securing a trained worker and in supervising her work after she is appointed The plan as outlined is as follows
X That the Superior Court Judge call a meeting of the Juvenile Court Judges of his circuit and organize a Circuit Juvenile Court Association of which the Superior Court Judge will be Chairman and the Juvenile Court Judges of the counties the Members
2 That a Supervisor of Juvenile Probation Work for the Judicial Circuit be employed at a salary of 1800 and expenses to work under the direction of the Circuit Juvenile Court Association
3 That the duties of this Supervisor will be to assist the Juvenile Court Judges in the counties of the circuit by making investigations of family conditions and organizing the communities to deal with dependency and delinquency securing Big Brothers and Big Sisters for children on probation and doing everything possible to provide the proper care to children preventing cruelty and mistreatment
4 The worker as far as possible to divide her time evenly between the counties on a basis of population
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79
5 The cost of meeting salary and expenses of this worker to be divided on a basis of population
6 As soon as an appropriation for one years work has been made each county will notify the Superior Court Judge who will be empowered to employ a supervisor who will immediately undertake her work under the supervision of the State Department of Public Welfare
CONTRAST TWO GEORGIA JAILS

LIGHT AIR AND EXERCISE ON THE OUTSIDE
COUNTY JAILS
81
Chapter VII
COUNTY JAILS
There are one hundred and fifty county jails in Georgia twice as many as in any other southern state except Texas and three times as many as in South Carolina This enormous system representing in property investment more than 1000000000 handling each year more than 10000 persons charged with crime and costing over 100000000 annually for administration has grown up mushroom fashion with no statewide system of construction administration or supervision and with little interest or attention on the part of the citizens of the State
When the Public Welfare Department began its work in March 1920 little was known of the conditions existing in the county jails of the State A study of the reports of examinations by the county grand juries revealed little definite information concerning the conditions of security health cleanliness ventilation heating lighting sanitation exercise recreation segregation occupation dietary discipline and administration This is due to no fault of the grand juries who because of their manifold duties and personal business interests can be expected to have but little knowledge of the standards of jail construction and administration approved by students and authorities elsewhere
Our task then was threefold First to make a study of the conditions existing in our county jails Second to prepare and submit recommendations for improvement both in overhead administration and standards for canducting the individual jail Third to bring these facts and recommendations to the attention of the people of the State The first two of these undertakings have been completed A Handbook on County Jails containing a complete report of
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82
a cross section examination together with suggested rules and regulations is ready for publication in pamphlet form as soon as the legislature makes an appropriation for the department Immediately thereafter the department proposes to launch a sustained and earnest effort to reconstruct and humanize our system of detaining prisoners for trial
This will be accomplished largely through the efforts of our county committees made up of local citizens as provided in the act creating this department Committees in all the counties will be appointed early next fall simultaneously They will be supplied with the handbook of rules and regulations for jail administration and a questionnaire on which to write a report of their jail inspection They are charged under the law to encourage and aid the local authorities in maintaining the jail in an efficient manner These committees will be on the job throughout the year will make quarterly inspections and a compilation of their reports will give the state an adequate picture of its method of caring for the unfortunate who must be confined awaiting trial The very highest type citizens will be appointed on these committeesmen and women of unselfish motives who will respond to the challenge I was in prison and ye visited me
County jails form a necessary part of the judicial system But they must not be confused with the prisons and convict camps in which persons convicted of crime are confined The law holds that every man shall be deemed innocent until he is proven guilty The county jail in Georgia is the place where persons are held awaiting trial Many of them are afterward found innocent Certainly they should be guaranteed upon discharge the same moral physical and mental health which they possessed when committed
COUNTY JAILS
83
A GLIMPSE INSIDE
It was manifestly impossible for the department with its small staff and meager fund for traveling expenseto
gether with its many other duties to make a detailed inspection of 150 county jails during the twelve months period hence a crosssection survey of fiftytwo jails was undertaken
Detailed reports of each jail inspection were supplied county officials and other publicspirited citizens in the county In many instances we received reports of immediate improvement In one county the jailer who was feeble and agedhaving been in charge of the jail seventeen years was immediately removed so incensed was the local community over the conditions revealed
List of County Jails Inspected
Appling Fulton Stewart
Baldwin Glynn Taliaferro
Bartow Greene Tattnall
Bibb Hancock Telfair
Butts Henry Terrell
Campbell Laurens Thomas
Chatham Lincoln Tift
Chattahoochee Lowndes Toombs
Clarke McDuffie Treutlen
Cobb Monroe Troup
Colquitt Morgan Turner
Coweta Muscogee Twiggs
Crisp Paulding Walton
DeKalb Randolph Warren
Dodge Richmond Washington
Dooley Rockdale Wayne
Dougherty Douglas Spalding Wilkes
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COUNTY JAILS
Only a few of the oustanding facts can be given here
1 Location of Building Eighteen or 35 of the jails examined were more than one block from the court house In Fulton county prisonersmany of whom are afterward proven innocentare humiliated by being marched through the streets under handcuff and chain
2 Construction of Building Ten jails or 20 of those examined were veritable fire traps neither being constructed of fireproof material nor provided with fire extinguishers or other fire protection The sheriff lived outside the jail building in nineteen or 36 of the jails visited thus leaving the prisoners without protection from mob attack or fire and without proper supervision Three jails had only one cell compartment thus forcing the imprisonment of both sexes and both races together Twentyeight or 54 had no separate compartments for white and colored females Sixteen or 30 confined white and colored males in the same compartment In the Bartow county jail at the time of inspection one white boy aged 18 one colored boy aged 14 three colored men and four colored women were associating freely in the same cell compartment In the Laurens county jail a colored female of childbearing age was found locked in the same cage with colored males when she could have been placed elsewhere However in the majority of the jails the sheriffs were using every available facility for separating prisonersthe fault usually lying in the inadequacy of the jail buildings
3 Cells and Corridors Cell equipment in 75 of the jails under study is old poorly and improperly constructed much of it not constructed of tool proof steel or reinforced walls and is unsafe Those having particularly poor equipment are in Bartow Dooley Paulding Henry Douglas Hancock Lincoln Taliaferro and Toombs counties Those in Richmond McDuffie and Warren counties have no cell equipment whatever The Richmond county jail is more than 107 years old Allthree of these desolate old struc
COUNTY JAILS
85
tures should have been abandoned long ago The jails in Bibb Wilkes Fulton Floyd Dougherty Treutlen Colquitt Lowndes and Clarke counties are well equipped In all but three of the 52 jails however four prisoners are confined in a single cell when the jails are crowded while authorities agree that never more than two prisoners should be housed in a space only eight feet square The sheriffs in seventeen or 33 stated that at one or more times during their term of office the jails have been crowded beyond a reasonable cell capacity
4 Sleeping Facilities Prisoners were forced to sleep on the floor because of failure to provide other facilities in the jails of Butts Bartow McDuffie Warren Taliaferro Tatnall Richmond Bibb Dodge Monroe Randolph and Thomas counties or 20 of the counties under study Four jails or 8 afforded nothing whatever but the floor for sleeping Unsanitary and uncomfortable canvas hammocks were used in ten or 20 of the jails while thirtysix or 62 were without the standard stationary steel wall bunks which are used in modern jails In twentytwo county jails or 40 the bedding provided for each prisoner was inadequatein many instances the prisoners complaining bitterly of the cold and in most of them the blankets were so filthy and disreputable as to be nauseous
5 Light In twentythree or 44 of the jails examined the daylight afforded in cells from windows was noticeably inadequate In McDuffie and Warren counties the windows werlittle mortethan slits in the walls while in the other twenty the entrance of light in the cells was prevented either on account of the location of cages and windows or because the windows were protected by wide iron slats instead of rounded toolproof bars Thirtynine or 76 had no electric lights in the cells nor enough reflected light to make things visible In most of them there was one droplight in the guards corridor Four had no electric lights
6 Heat Broken window panes entirely prevented
86
COUNTY JAILS
proper heat in five or 10 of the jails visited Coal heaters and oil stoves were used in thirty of the jails and twentyone or 40 were so poorly heated as to be uncomfortable Sixteen of the twenty with steam or hot water systems were adequately heated There are at least two thermometers in very modern potato bin in the State but thermometers were found in only one of the jails inspected
7 Ventilation Thirtyseven or 74 of the jails under study were so constructed as to prevent adequate ventilation in cell compartments Only 50 per cent of them were properly ventilated when inspected Often a crowd of men packed in a small compartment around a meager fire in a small stove would be found with every window closed
8 Sanitation of Prisoners Quarters Special mention is hereby made of the excellent sanitary condition prevailing in the Bibb county jail Other jails found in good or fairly good condition were those in Chatham Dougherty Henry Muscogee Wilkes and a part of Fulton The five jails or 10 in Lincoln McDuffie Paulding Warren and Wayne counties had no sewage disposal other than buckets The others all had flush toilets but in only twentythree ofthem were they located in the individual cells Much of the plumbing is of an old impractical type difficult to keep clean and often out of order The metal work in twentyseven or 52 was badly in need of paint while the walls in fortyfour or 80 were rough soiled and mutilated Prisoners complained of bed bugs and vermin in 50 of the jails visited These pests were actually seen by the inspector in countless numbers in Clarke Fulton Glynn Randolph and Richmond counties The following table will give some idea of the sanitary routine followed by the 52 jails examined
Metal work scoured once weekly or more often 0
Clean when examined 1
Bunks cleaned and disinfected weekly 2
Clean when examined 4
COUNTY JAILS
87
Toilets washbasins bathtubs scoured weekly 0
Clean when examined 3
Floors swept once daily or more often 15
Clean when examined 16
Floors scoured once weekly or more often 4
Clean when examined 9
Only the jails in Crisp Appling Colquitt and Dougherty have windows and doors screened It is the common custom to launder blankets only at infrequent prolonged intervals so that when a new prisoner is committed he inherits the blankets found in the cell to which he is assigned
9 Personal Hygiene of Prisoners There were no washbasins bathtubs or other means of personal cleanliness in eighteen or 36 of the jails visited Shower bathsthe only sensible bathing arrangementwere installed in only ten jails There were bathtubs in twentyfour jails and stationary washbasins in thirtyfour The entire absence of hot water connections in thirtyseven jails or 72 makes bathing in cold weather impossible The following table indicates the enforcement of personal hy giene in the 52 jails inspected
Prisoners required to bathe when first admitted 4
Bathing enforced once a week after commitment 11
Towels furnished 7
Prisoners required to make complete change of clothing
when first committed 0
Prisoners required to change underclothing once or more
after commitment 0
Clothing furnished prisoners unable to provide for themselves o
Toilet paper furnished prisoners 11
Individual sanitary drinking cups or fountain 1
Where rules of personal hygiene are not rigidly enforced
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COUNTY JAILS
upon prisoners in idleness men lose their morale and become incorrigible while the selfrespecting have no protection from the spread of disease and infection
10 Food Dieting fees are allowed the sheriffs by the county commissioners of the 52 jails visited as follows four counties 50 cents per day per prisoner seven counties 60 cents three counties 65 cents six counties 70 cents twentyfour counties 75 cents six counties 80 cents two counties one dollar The intent of the dieting fee act of 1881 is evidently that the jailer should spend that fee on food for his prisoners but under the common practice in Georgia any sum which a jailer may save from the dieting fees is considered a legitimate part of his remuneration Only two meals are served daily In most of the jails cornbread side meat peas and syrup formed the bulk of the meal both morning and afternoon Biscuit beans and coffee were occasionally added or substituted In spite of the fact that the large majority of the jail kitchens are a part of the jailers household only eight of the 52 kitchens were really clean and orderly and protected from flies by screening
ll Medical Service and Health In none of the jails studied is there a physical examination given on admission to discover communicable diseases Only in Bibb and Fulton jails does the physician make regular daily visits The jails in Chatham Clarke Coweta Dougherty Fulton and Spaulding counties have hospital wardsnone of which are properly equipped or administered The case of William Blake who died of diabetes from partial neglect a few hours after being taken from the Fulton County jail to an Atlanta sanitarium upon the request of his attorney and the recommendation of a private physician illustrates the need of careful examination and attention Investigation of the circumstances surrounding the death of Blake made by this department revealed the following facts
COUNTY JAILS
89
1 That he died of diabetes after lapsing into resulting
coma
2 That he was not given a medical examination when
committed
3 That he remained without necessary medical attention
from November 241920 to January 11921
4 That he was not given a careful medical examination or
diagnosis at the time he first asked for a physician
5 That jail authorities did not supply appropriate diet
6 That the jail hospital ward was not properly adminis
tered or equipped
7 That he was not removed to the jail hospital ward but
left in his cell until found in a dying condition
Other instances bearing out the need for medical examination at commitment were related by the jail physicians in Bibb and Fulton counties by the health commissioners in Bartow and Laurens counties and by the jailer in Greene county
12 Recreation and Religious Services Books and magazines were furnished the prisoners in only one jail that in Bibb county Only the jailers in Bibb Clarke DeKalb Fulton Laurens Lowndes Muscogee and Turner counties reported regular weekly religious services There were one exercise roof and four enclosed jail yards among the jails visited But one of them is used for exercise or recreation for federal prisoners only In fact it may be said that little if anything breaks the monotony of idleness
13 Length of Confinement Prisoners who are so unfortunate as to be too poor to make bond must necessarily be held in the county jails for long periods due to the in
90
COUNTY JAILS
frequency of court sessions In 113 counties in Georgia the Superior Court which tries felons convenes only once every six months in four counties once every four months in thirtyfive counties once every three months and in two once every two months Misdemeanants fare as badly in 70 counties which have no city courts This time served in the county jail awaiting trial is not credited on the court sentence In one county seyeral men served twelve months awaiting the transcription of the evidence in the case pending an appeal not one day of which will be counted on the sentence should they be found guilty by the higher court Thus the poor whether guilty or not are given additional punishment not for crime but for poverty
14 Sentences Served in County Jails While the Georgia courts may sentence a prisoner to serve six months or less in the county pails this is seldom resorted to as the Georgia judiciary has long since agreed that the county jail is a place of detention and not imprisonment However the federal courtsby arrangement with the county authoritiessentence prisoners to serve terms of one year or less in the county jails This practice is a needless mistreatment of the federal prisoners who suffer from close confinement and inactivity but crowds the county jails in some instances far beyond their capacity
15 Administration Under the law the sheriff is county jailer In some instances he appoints a deputy to act as jailer but the sheriff is custodian of the prisoners and responsible for the keeping of the jail The county commissioners or ordinary where there is no county commission are responsible for the construction and upkeep of the jail building and its equipment including clothing for prisoners lights fuel and water This divided responsibility coupled with the fact that sheriffs are elected for terms of four years have no previous knowledge of jail administration and are so busy with their other numerous responsibilities is sufficient explanation of the unnecessary
COUNTY JAILS
91
suffering and neglect which has been discovered The fee system may be accredited with the commercial attitude both in unnecessary confinements and inadequate diet
RECOMMENDATIONS
1 A general awakening among the citizenship of the various counties to the conditions in the county jails
2 Insistence by the community upon the adoption of reasonable standards of humane administration
3 Centralization of county jail administration and control in the board of county commissioners who should be required by law to appoint only properly qualified jailers for the care and protection of prisoners and the jail building this jailer to be paid a salary and no fees
4 Discontinuance of the use of county jails as prisons for serving sentences from the United States Courts
5 Removal of the necessity for such long detention of prisoners awaiting trial by 1 more frequent court sessions and 2 requiring court officers to investigate home conditions obligations previous habits etc of each prisoner immediately upon his arrest to enable the court whenever possible to release a man on his own recognizance or reduce his bond
92
THE CARE OF THE AGED
Chapter VIII
THE CARE OF THE AGED
COUNTY ALMSHOUSES
There are 70 counties in the state which maintain a county almshouse of one kind or another These institutions for the care of the dependent and homeless poor are large in urban counties and small in rural counties Twentyfive of these institutions were examined by representatives of this department during the year ending March 9 1921
According to the accepted meaning of the term almshouse there are in reality only 5 such institutions among those examined These are located in Bibb Floyd Fulton Muscogee and Richmond counties The two in Floyd and Fulton are of the congregate type i e inmates are quartered in two central buildings one for white and one for colored The two in Bibb and Muscogee counties are of the cottage type i e inmates are quartered in small cottages The one in Richmond county is a combination of both congregate buildings and cottages
The equipment and maintenance of all the other socalled almshouses inspected is so poor that none but the most hopeless will consent to live in them The population of these places is so smallusually 3 to 20that it is practically impossible to provide standard physical equipment medical care balanced diet and competent supervision
The best solution for the situation is in the district home for the aged maintained by a group of counties The five which are already equipped could care for the counties adjacent and other groups of counties could unite in develop
THE CARE OF THE AGED
93
ing the proper care of their aged Such an institution need not have expensive buildings but it should be equipped with good water sewerage lighting and heating systems The large farms now in use should be sold and a few acres provided for such gardens orchards and poultry yards as can be cared for by the inmates A superintendent who devotes his time and energy to caring for the inmates will be able to find suitable occupation for all of them who are not invalids and can provide for them occasional periods of recreation that will bring some cheer into their darker days As long as the present methods continue Georgia can reflect only with shame upon her care of those who are sick and in trouble
At the time the 25 institutions were examined there were present in them 448 inmates classified as follows
100 white males 178 white females
92 colored males 78 colored females
Of the foregoing number of inmates 300 are being cared for in the five counties above named The population in each of these five county institutions is as follows
Males Females
County White Colored White Colored Total
Bibb 10 12 33 8 63
Floyd 4 6 18 4 32
Fulton 29 17 30 13 89
Muscogee 9 9 19 12 49
Richmond 18 12 24 13 67
Totals 70 56 124 50 300
94
THE CARE OF THE AGED
THE REAL ALMSHOUSES
The five almshouses mentioned are described in detail below
Floyd and Fulton
The buildings comprising the inmates quarters of the almshouses in Floyd and Fulton counties are onestory structures constructed of brick cement and wood and may be considered as fireproof These buildings are well suited for the purpose for which they were erected
In constructing the buildings for white inmates in both these institutions due cdre was exercised in providing adequate arrangements for sex separation In the buildings used for colored inmates adequate sex separation is not nearly so well provided for Both of these institutions have fairsized farms the products from which contribute largely toward the upkeep of the inmates
The superintendent and his family are quartered in an administration building in Fulton county In Floyd the superintendent and family occupy a modem cottage adjoining the inmates quarters
A fair degree of sanitation is maintained in the white ward of the Fulton county almshouse while in the almshouse in Floyd county the sanitary conditions throughout were satisfactory
Plain substantial furniture is placed in each bedroom of these two institutions Beds and chairs largely comprise the furnishings in Fulton but in Floyd a bureau is provided for each bedroom as well as two wall pictures
In so far as possible inmates are assigned to separate bedrooms in Floyd which institution has a capacity of 48 inmates An average of two white and three colored in
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95
mates occupy a single bedroom in Fulton The building for colored in Fulton has two small dormitories not in use when examined and which have a capacity of about 10 single beds each a reasonable capacity of about 90 inmates
Reasonable rules of personal hygiene prevail in both these institutions and inmates were found to be rather neat and clean in appearance The buildings are equipped with modern plumbing both as to toilets and baths
All bedrooms are outside rooms and are amply provided with windows all of which are well screened so that bedrooms may be properly ventilated at all times All rooms and halls are provided with electric lights Steam is used for heating both buildings in Fulton and the building for whites in Floyd The building for colored in Floyd is heated by a large centrally located stove
The kitchens in both these institutions are well equipped and were neat and orderly A separate diningroom is provided for white males and females in Fulton but only one for both colored sexes Males and females use the same diningroom in Floyd
Three substantial fairly wellbalanced meals are served daily to inmates in Floyd but only two such meals are served to inmates in Fulton
In Floyd physical examinations are given each applicant on admission The sick are treated in their bedrooms with the exception of infectious or contagious cases which are removed to a small hospital cottage separate from inmates quarters Special diet is prepared for the sick when ordered b ythe county physician The superintendents wife a practical nurse attends to them
In Fulton physical examinations are not given applicants
96
THE CARE OF THE AGED
before admission There are two hospital wards one for white males and one for white females Colored inmates are treated in their rooms
Community groups assist in providing recreation for inmates in Floyd There is also a graphophone for their amusement Religious services are held each Sunday by the several denominations in Rome Regular daily employment is not provided for inmates
No recreation is provided for inmates in Fulton Religious services are conducted one Sunday a month by a chaplain paid by the County Other religious services are conducted by religious groups at times Inmates are not provided with daily employment other than keeping their own rooms
All applicants for admission in Floyd are passed upon by the superintendent county physicians and social worker The superintendent when necessary invokes the state law permitting collection of living expenses from relatives in order to keep out those whose next of kin are able to support
Applications in Fulton are passed upon by a special investigator county policeman and upon his recommendation are admitted or barred as the case may be
The institutions in both Floyd and Fulton are under the control of the county commissions Both have a paid superintendent who administers the affairs of the institution In addition to the superintendent there are employed he following personnel
1 Matron
2 Stewards
1 Truck Driver 5 Convict Guards 13 Colored Female Convicts
Fulton
Floyd 1 Matron 1 Farm Foreman
1 Assistant 1 Cook
1 Laundress
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97
Bibb Muscogee and Richmond
The almshouses in these three counties with but few exceptions are similar respecting type administration and control
Bibb
The Bibb county institution of the cottage type is composed of 8 fourroom and 3 tworoom singlestory wooden frame inmates houses The superintendents cottage sits off to one side All of the inmates houses are in bad repair and the commissioners who control the institutions have refrained from making any repairs qr renovations because the property upon which the structures are built has been in court litigation for a number of years It is proposed to build a new plant when property rights are settled by the courts
A farm of about 40 acres about half of which is under cultivation forms a part of the property The countys smallpox pest house and permanent chaingang quarters are located on the farm
A large sjmglestory wooden frame building containingthe kitchen 4 diningrooms and pantry is centrally located between the three rows of inmates houses
All of the inmates houses are well lighted by windows and can be well ventilated at all times There is an electric droplight in each inmates room and in the halls Inmates rooms are heated by open grates From two to three inmates occupy a single bedroom Married couples occupy same room
Only a fair degree of sanitation of quarters and personal hygiene of inmates is maintained This condition is mainly attributable to the lack of sewerage disposal and bathtubs or showers there being only one city water connection far removed from inmates houses
98
THE CARE OF THE AGED
The furnishings of the inmates quarters are plain and substantial but cheerless The kitchen is fairly well equipped
All applications are made to the county physician who examines each applicant before admission Inmates sufficiently ill to require bedside treatment are isolated in two rooms of one of the cottages
Female inmates able to do so are required to make garments and bed clothing used by inmates and some assist m the preparation and service of meals Other than this no employment is provided for inmates
The several denominations in Macon alternate in conducting religious services at the home as well as occasional entertainment for inmates
Institution under control of County Commissioners Muscogee
The Muscogee county institution of the cotage type is composed of 21 tworoom singlestory frame inmates houses many of which are quite old and in poor repair A centrally located diningroom and kitchen is between the two rows of inmates houses The superintendents cottage is located at the head of the rows The arrangement of the inmates houses reminds one of a negro quarter of antebellum days Sex separation is difficult on account of the dose proximity of houses one to another
The farm contains about 450 acres only 150 of which is under cultivation
Each inmates room contains a sufficient number of windows and doors to adequate light and ventilate it The rooms are heated by open grates There are no electric lights From two to three inmates occupy a single room Married couples occupy the same room
Taking into consideration the age and construction of inmates houses they were fairly clean and well kept
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99
There are two centrally located bath houses and toilets one for whites and one for colored Both are properly divided to accommodate the sexes Water supply is obtained from a deep well and pump A fair degree of personal hygiene is maintained by inmates
The furnishings of inmates quarters are plain and substantial but cheerless The kitchen is fairly well equipped
Tuberculous inmates are confined in two small houses far removed from the inmates quarters Other sick inmates requiring bedside treatment are removed to the City Hospital in Columbus
All inmates physically able to do so are required to participate in institutonal work There are occasional entertainments by church auxiliaries also occasional religious services
Applications for admission are investigated by the superintendent The institution is under the control of a board of trustees appointed by the county commission of which the superintendent is secretary The county plans to build a new plant in the future so the chairman of the board of trustees stated
Richmond
The Richmond county institution is a combination of congregate and cottage type It has 10 inmates houses only one of which is a brick frame structure all the others being singlestory wooden frame structures containing from two to seven or eight rooms The superintendents cottage is centrally located respecting inmates houses some of which are old and dilapidated Sex separation is difficult on account of both sexes occupying same houses This is especially true with colored inmates
The farm contains 127 acres 75 of which are under cultivation
100
THE CARE OF THE AGED
Each inmates room contains a sufficient number of windows and doors to properly ventilate and light it From two to three inmates occupy a single room Inmates rooms are heated by stoves and grates
The sanitary condition generally was not satisfactory though there is modern plumbing water being supplied from a deep well and pump Only a fair degree of personal hygiene was noticeable among inmates
A centrally located building contains diningroom and kitchen
Furnishings of inmates quarters is plain and substantial but cheerless There is a well equipped kitchen
Tuberculous inmates are placed in a long specially built sleeping porch All other sick are treated in their rooms
No work is required of inmates though some participate in the institutional work in a small way No recreation is provided There are occasional religious services
Institution under control of County Commission
Three plain substantial fairly well balanced meals are served daily to the imnates in Bibb Muscogee and Richmond county almshouses
m
THE CARE OF THE AGED
101
SOCALLED ALMSHOUSES
THE LAST REFUGE A Georgia AlmshouseWithout a Window
All the other institutions visited and from which reports were received were found to be so nearly alike that to describe one would in a large measure be to describe all All of them are under the control of county commissioners Seven of the 20 visited form a part of county convict farms with the warden acting as superintendent With a few exceptions all are far removed in location from populous centers of counties Thirteen have superintendents Lowndes county boards its paupers on its county farm
The small tworoom singlestory wooden frame house with a few exceptionsis the type of building in use Many of the buildings are old and dilapidated These little houses have as a rule one or more small windows in each room a front and back door and are heated with open grates which have been the cause of many inmates burning to death during the last few years
On account of being far removed from populous centers
102
THE CARE OF THE AGED
only a very few have water works or electric lights The lack of water works and modem plumbing renders anything like adequate sanitary routine extremely problematical
Naturally the question of proper medical treatment and hospitalization of inmates is rendered more or less acute at all times because of the lack of hospital facilities location of institution and the infrequent visits of county physicians who visit as a rule only when summoned or in following up cases under treatment
None of these institutions give physical examinations before admitting applicants One flagrant case of neglect occurred when a sick negro admitted after being badly burned about torso and head was entirely neglected in so far as medical assistance is concerned Many bedridden sick were seen
The food generally is plain substantial but not the kind for aged sick and helpless men and women
Meagerly furnished and cheerless bedrooms characterize practically all of these institutions Vermin were found in many foulsmelling inmates rooms
Only a few children were found and action was immediately taken in each instance to have them removed
As a rule people are admitted through application to grand juries county commissioners or ordinaries as the case may be Only perfunctory investigations are made and the law respecting dependency and support by relatives is seldom if ever invoked
Inmates are permitted to live in idleness and in no instancein any of the 25 counties under studyis regular organized recreation provided for inmates and only in a few instances is evene regular religious services provided
Little effort is made to segregate types of inmates The feebleminded crippled blind diseased bedridden and sick are more or less thrown together in a promiscuous manner
THE CARE OF THE AGED
103
PRIVATE HOMES FOR THE AGED
There are in Georgia 9 privately owned Homes for the Aged 8 of which have been inspected by the Department of Public Welfare The original purpose of thesewith one exceptionwas to provide a home for indigent gentlewomen Some of them have departed considerably from this purpose the inmates being of a variety of types The Little Sisters of the Poor in Savannah purpose to accept all needy old persons and admit both men and women white and colored All the other institutions accept white women only with the exception of the Tubman Home Augusta a cottagehome for housekeepingwhich admits couples and in April 1921 had three men The Widows Home Augusta a home for semidependent women of all agesalthough of the type of homes for the aged the inmates being nearly all oldhas tenyearold boy although it is not the general policy to admit women with children The total population of the 8 hours inspected is as follows
White Colored
Women Men Women Men Total
196 45 including 1 boy 4 2 247
The number of inmates in the individual institutions varies from 4 to 82
Admissions and Investigations
The records in the homes for the aged are very meager Their lack seems to reflect the meagreness of the investigation In no case were records of relatives found In talking with inmates of the homes they often spoke of relativesmany closely related and sometimes welltodo members of their families These persons should be required to assume the obligation for their aged dependents instead of passing on the burden to society In some cases old people are peculiar and cannot get along get along with relatives but the families should at least pay
104
THE CARE OF THE AGED
for their maintenance in the institution if unable to board them outside as should usually be done in such cases The institutions should be for the dependent Just to what extent this is true is hard to determine unless investigations are made and records kept Sometimes the help of a family to give partial support would be sufficient and less expensive to the community
Unlike the almshouses all these homes are located in the largest cities of the state1 in Atlanta 3 in Augusta 1 in Columbus 1 in LaGrange 1 in Macon 2 in Savannah and only one of these is in the suburbs of the city
All of these homesexcept one which is conducted by the Roman Catholic LittleSisters of the Poorare managed by selfperpetuating governing boards usually women Of the others two are under fhe auspices of chapters of the Kings Daughters The other boards are interdenominational
These is invested in the property of these institutions 737250 according to the reports submitted The cost of maintaining them in 1920 was 5280639 or an average of 22966 per capita
Types of Buildings
Six of the 8 inspected are congregate system 2 are congregate twostory frame buildings and 4 are two or threestory brick Two have cottages the LaGrange Home having 2 onestory frame cottages and the Tubman has brick cottages only one of which has two stories Two of the smaller homes are unusually attractive madeas much as possibleto resemble private homes having attractive furniture pictures flowers etc One large institution was particularly planned with reference to the needs of the inmates
Sanitary Conditions
In all but one home the sanitary conditions as to clean
THE CARE OF THE AGED
105
liness were found to be good All but one have indoor sanitary flush toilets in good condition and this one which is located in the suburbs has outdoor open vault toilets
Light Heat Etc
Four large buildings have steam heat throughoutan excellent arrangement for old people who feel the cold and for whom open grates are particularly dangerous Four institutions have either stoves or grates
Medical Care
Two institutions provide adequate medical care which includes an infirmary nurse in attendance and regularly employed visiting physician services donated in each case The same two provide regular dental care even supplying falseteeth plates a very vital provision in homes for the aged One other has a hospitalroom but no nurse or provision for the care of the very ill inmates who must go to the hospital in the case of acute illness and to the almshouse when chronic illness develops unless able to employ a nurse which of course none of the inmates can afford for more than a very short time This is a defect in institutions which are designed to prevent certain classes of persons going to the almshouse After living perhaps for years in a comfortable private institution when the illness comeswhich old age is almost certain to bringthe inmate must go to the very institution which the home was originally established to keep her out of This is rather sad for the helpless aged and adequate medical care is a fundamental provision which should be arranged for by all homes of this type
Food
The lack of proper diet is noticeable in some of the private homes for the aged there being seemingly a lack of understanding that old people need an especially planned
106
THE CARE OF THE AGED
and carefully prepared diet and that they must be fed frequently as in the first childhood and with a similar diet Two institutions however do provide regular lunches for their old people between mealsone giving malted milk In two others the old people can get extra food between meals by asking for it but no systematic provision is made for this There should be matrons in charge of the homes who understand the problems of old age and who study how to provide such necessities as special diet recreation and wholesome work
Recreation and Work
Usually the old people are required to care for their rooms and some old women sew However in several of the institutions there is no definite effort made toward providing employment for those able to be kept busy in order that they may not spend their final years in idleness and have time to feel they have wholly outlived their usefulness One institution has a beautiful garden where the old men find a chance to be interested and useful
Most of the institutions have victrolas pianos etc and the women board members of several homes provide means for the old women to go out to entertainments and services and provide occasional parties One home has provided games a smoking room and large porches for sitting
Personal Hygiene
In some homes the bath rooms are numerous enough and so pleasant that the inmates seem to like to bathe and one institution furnishes a setin foot tub with plenty of hot and cold water which is a great comfort to the tired feet of the old people However proper bathing facilities is a serious lack in some homes One institution has only one tub on the first floor of a threestory building It is not used of course No institution has showers which are es
THE CARE OF THE AGED
107
pecially desirable for old people who often refuse to bathe because of fear of slipping in the tub
Summary
In most of these homes there was found a genuine though sometimes undirected interest in providing for the happiness of the old people This interest needs to be expressed in the fundamental provision of superintendents in the homes who not only sympathize but know Proper care of old people takes understanding and skill and the emphasis should be laid on physical comfort and those pleasures and activities which occupy their time and maintain their selfrespect v
108
COUNTY POOR RELIEF
Chapter IX
COUNTY POOR RELIEF
Among the duties of this department is that of studying and endeavoring to standardize the methods employed by the county governments for the care and maintenance of the dependent poor Under the law the counties of the state are authorized to prvide for the relief of paupers who are described as persons unable to maintain themselves by labor and without sufficient means This relief may consist in admission to an almshouse furnishing food clothing or shelter or boardingout
Figures compiled by the department indicate that the 70 counties which maintain almshouses do so at a total cost of approximately 300000 annually and that outdoor relief or monthly grants given to about 7000 families in their homes is appropriated out of the county treasuries in twothirds of the counties to a total of more than 400000 annually This enormous sum of close to a million dollars if properly expended should decrease the problem of dependency and in a few years rehabilitate thousand of families
Methods of DistributionThree different methods are employed in the state in distributing outdoor relief funds
1 In two counties outdoor relief is administered by private social agencies acting as agents for the counties An annual lump sum is appropriated to the agency which cares for the applicants referred to it by the county authorities
2 In two counties outdoor relief is administered by a paid county charity officer In neither instance is the worker a trained person nor is any effort at family service undertaken In four other counties there are em
COUNTY POOR RELIEF
109
ployed social workers as probation officers who are able to somewhat influence the expenditure of the county relief funds
3 In all the remaining counties the grants are made by the county commissioners or ordinary upon recommendation of the grand jury
The duties of our grand juries are manifold and while they endeavor to be fair and just the fact remains that only in rare instances are persons skilled in administering financial relief drawn for such jury duty Grand jury recommendations can at best be inadequate and their investigations superficial and perfunctory Many counties reported that periodical investigations are never made Once on the pauper list the subject usually stays there until he dies or moves out of the county One county reported that it continues until death us do part Sometimes the grand jury goes over the pauper list dropping or adding names County commissioners in some counties keep in touch with the recipients in divers ways The Ordinary performs the task in a few counties
Monthly Grants InadequateThe amount of the monthly grants is another weak point in the system Many commissioners and county clerks frankly declared that in their opinion the sums are totally inadequate and more of a mockery of supporting paupers than anything else
Twentyone counties reported that the largest monthly grant to any one person was 5 a month or less This amount of course leaves the recipient a public charge and increases rather than decreases the chances of his becoming a pauper with broken pride begging from place to place Twelve counties were giving 5 to 10 as the largest monthly grant to any one person 15 counties gave a few as high as 10 10 counties gave a few as high as 15 and 7 counties had one or two beneficiaries receiving from 15 to 20 Gilmer County maintained the highest average
110
COUNTY POOR RELIEF
having six beneficiaries with 10 as the smallest grant and 20 as the largest
Many counties hold to the regrettable practice now almost universally discarded of stigmatizing their unfortunates by printing in the local newspapers the names of all aided individuals
But the dole system is revealed in its most fearful aspects by the fact that 26 counties give grants as small as 250 to 5 and 34 counties commonly give monthly grants as small as 2 and under
Most of the counties feel that they must make the amount they have for pauper relief spread out to reach the largest number possible Since however few counties are in a position to take care of all the need for relief in the county it is much better that they give adequate relief to such cases as they do handle and insist on private philanthropy taking care of the others
Special preference should be given to widows who are struggling to bring up dependent children Georgia needs no new Mothers Pensions Law The present statute simply needs to be strengthened The same section of the code which provided for the relief of the poor Sec 553 states Females with helpless children are entitled to relief where they are without means or the ability to maintain the family And at the present moment many widowed mothers are receiving pensions from the county treasuries The county authorities are authorized under Code Section 506 to levy a tax for the support of the poor of their county which tax is not to exceed 25 upon the amount of the State Tax for the year it is levied
New Method SuggestedWhat is needed first however is an entire revolution of the present wasteful method of distributing poor reliefnot only to widowed mothers but to the aged and the distressed of every kind The modern
COUNTY POOR RELIEF
111
methods of distributing mothers pensions which have been adopted in a few states should be applied to the whole system of public relief in Georgia This can be accomplished by adopting a system practically the same as has been in effect in Indiana since 1895 Let the statute establish the principle that relief in every case must be adequate based on minimum standards of living that the county must give relief only to the number of families which it can adequate care for with the funds available and provide a system of supervision to properly administer the funds
Such a plan would help to eliminate the present doling out pitifully small amounts which do but little good and would insure the families which the county has the funds to help adequately from being pauperized At a later date when the states finances would permit and after such a system of supervision has safeguarded the present expenditures for poor relief it might be feasible for the state to supplement the countys relief funds by refunding onethird or onefourth of the amount expended at the end of the year This policy is followed in several states But any state appropriation for Mothers Pensions to be expended in the counties without strict state supervision would be as wasteful and fruitless as is the present expenditure of county poor relief funds
Waste of TaxPayers MoneyThe vital defect in Georgias method of distributing the taxpayers money however does not lie in the inadequacy of the monthly grant as iniquitous as that undoubtedly is The fearful wastage is in the entire absence of any effort to remove the disabilities which cause the dependency It is like pouring money into the sea When desertion sickness unemployment feeblemindedness shiftlessness delinquency elc are the cause of serious disorganization of family life can there be any logical reason for pensioning them and leaving them in that condition a permanent burden upon the community Perhaps the inexperienced may think that with the aid of
112
COUNTY POOR RELIEF
meager material relief the family may be able to pull itself out by its own bootstraps In most instances however these disabilities have already proved too much for the intelligence and resourcefulness of the family and have led directly to their application for public relief As long as these disabilities are present tidingover is an empty formula for there is no landing place in sight when the tidingover process may come to an end If the material relief is not to be wasted it must be accompanied by family service which includes the power of analysis understanding of the handicaps to selfmaintenance and the communitys resources to help remove them together with an appreciation of the spiritual values in life and the ability to use them Lees County Outdoor Relief
Except in cases of the dependent aged or of the incurable there is always hope of reestablishing the family upon a selfsupporting basis The necessity of public charity and institutional care may frequently be avoided by intelligently assisting a parent to rebuild the home temporarily endangered by want and distress Family service would bring all the resources of the community to the aid of the struggling familymedical service to cure the sick legal aid to bring back the deserting breadwinner or to draw legal papers and give legal protection in the courts assistance in finding employment correcting delinquency and immorality establishing church and neighborhood relationships placing members of the family in eleemosynary institutions and hospitals etc
Supervision NeededOur county authorities except in four instances do not give such service to the families undertheir care Neither are the forces in the communities organized or trained to do it successfully It can never be done efficiently except under the supervision and with the advice of a trained family worker Our problem is to bringthe services of such a trained worker as close as possible to the groups which are or may become interested in rendering this service It is impractical to think of a paid
COUNTY POOR RELIEF
113
trained worker in each of 160 counties Even if the counties would pay them enough trained workers could not be found However if the plan outlined more fully on page 114 et sq of this report were adopted placing a trained family service supervisor in each of the 31 judicial circuits the supervision would be brought close enough to secure effective results Family Service Committees of laymen and women could be appointed by the county authorities to care for the families receiving county relief and with the aid of the trained circuit supervisor they could do much toward reestablishing the dependent as producing units in society Four counties already have paid family service workers employed by the county and this number can be gradually increased as the need for them is developed by the circuit supervisor
114
THE KEY TO THE SITUATION
Chapter X
THE KEY TO THE SITUATION
SUGGESTED PLAN OF PROVIDING CIRCUIT FAMILY SERVICE SUPERVISION
This report has surely demonstrated that the care of the dependent neglected and delinquent classes in the counties of Georgia is costing many millions of dollars is often done in an unsystematic wasteful and sometimes fruitless and inhumane manner and is in many instances conducted by persons who are untrained in the work and over whom there is no close enlightened supervision
It would be an extremely difficult and expensive project to organize and equip the State Department so as to provide the constant supervision of 160 counties which is so plainly needed Several states have adopted the plan of requiring each county to employ a fulltime worker but this is entirely too ambitious for Georgia now or in the near future Enough trained workers could never be found to meet such a demand Besides it is doubtful whether every rural county needs a resident paid worker People are too prone to dump all the work on the one person and to fail to properly organize for volunteer service
We are suggesting a remedy which seems to be especially appropriate for a state with as many counties as Georgia Let a district family service supervisor either man or woman especially trained be employed for each of the 31 judicial circuits in the state and the expense prorated between the counties on a basis of population The supervisor would work under a circuit committee composed of the superior court judged one member of each county commission and one layman or woman from each county
THE KEY TO THE SITUATION
115
The duties of the supervisor would be to act as the official advisor to the county authorities on questions relating to the care of the dependent neglected and delinquent and to organize and stimulate miich needed volunteer services through a County Welfare Committee in each county with Divisions somewhat as follows
1 A Juvenile Protective Division Through this division the supervisor would make investigations of family conditions and environment of delinquent children brought before the Juvenile court and assist the court in planning for their care secure Big Brothers and Big Sisters remove any influence in the community which is harming child life and do everything possible to provide the proper care for children preventing cruelty and mistreatment
2 Family Service Division Through this division the supervisor would investigate all applicants for couhty poor relief and render these families such personal service advice and direction as to make them selfsupporting as soon as possible In many instances some local Associated Charities or Red Cross chapter could be appointed to act as this division
3 Division for Visiting County Institutions Through this division the supervisor would make regular inspections of the County jail and almshouse report to the State Department of Public Welfare as required by law assist the county commissioners in making needed improvements furnish reading matter amusement etc and otherwise help to humanize the treatment of the inmates
4 Division of Adult Delinquency Through this division the supervisor would keep in close touch with the adult delinquents in the hands of the courts or in the
116
THE KEY TO THE SITUATION
jails and convict camps and render them and their families such constructive service as making their bonds getting their bonds reduced or obtaining their release when investigation justified iton their own recognizance seeing that their families are cared for if in distress securing volunteer probation officers and having worthy persons placed on probation securing legal aid if needed etc
The supervisor would also act as advisor and organizer for church and community service groups in the county centers assisting them in making plans for the individuals and families in which they are interested or for which they should be responsible He would promote a family service committee in connection with each school or group of schools in a center which would give special attention to family needs discovered through the schools This would be a committee of the Parent Teacher Association where one exists
As the agent of the State Department of Public Welfare the supervisor would 1 Act as parole officer for children discharged from the state training schools and the other childrens institutions in the state and if the asylum for the insane or the prison farm so desired could also act as parole officer for them 2 Check on the suitability of the foster homes in which dependent children have been placed within his circuit and 3 Investigate applications for admission to childrens institutions in the state
As the work develops many of the larger counties could put on paid workers of their own Four counties have already done so
Any law establishing family service supervisors would provide for the gradual organization of the system by the Department of Public Welfare over a period of several years in order that each circuit might be carefully inaugurated under the supervision of the state staff
THE KEY TO THE SITUATION
117
This plan can be adopted now without the passage of additional legislation provided the counties in a circuit will unite in employing the same juvenile probation offcer and let his duties extend to cover the rest of the activities mentioned above A movement has already been started in one circuit to take this step and it is hoped that others will follow For details of the plan for a Circuit Juvenile Court Supervisor see Section on Juvenile Delinquency
118
LEGISLATION RECOMMENDED
Chapter XI
LEGISLATION RECOMMENDED
Under the Act creating this department we are required to recommend to the Governor and the Legislature whatever legislation we may deem necessary to help alleviate the conditions disclosed by our investigations Anyone who has carefully read this report will appreciate the need for changes in the laws We feel however that the department should concentrate its recommendations this year upon three measures
1 A Childrens Code Commission An act calling for the appointment by the Legislature of a commission to draw up a childrens code The greatest need found thus far has been that of laws for the protection of children The method employed by a Childrens Code Commission substitutes for the spasmodic and often little considered proposals of amendments to state laws by individuals or organizations interested in special fields of child welfare an organized and cooperative effort to secure legislation based upon study of conditions in the state and remedies that have proved successful in other states A fundamental feature of such a state program is a wellconducted educational campaign directed especially toward esplaining the childwelfare needs of the state and the purpose and scope of the legislation proposed
The study of laws affecting the welfare of children by officially appointed commissions began nine years ago During the first six years official bodies were appointed for this purpose in five states and the District of Columbia In the last three years the movement has grown so rapidly that almost twothirds of the states have been actively interested in the movement The growth of this movement for
LEGISLATION RECOMMENDED
119
the coordination and revision of child welfare legislation following upon a comprehensive study of the conditions surrounding children in a given state is one of the most sigsificant and hopeful developments in the child welfare field
In almost all the states the scope of work of these commissions has involved from one to two years study of conditions and needs preliminary to the coordination and amendment of child welfare legislation The subjects covered include the safeguarding of health school attendance regulation of employment protection against exploitation or corruption of morale special provision and training for the mentally defective and physically handicapped care and training of dependent and neglected children methods of dealing with delinquent children and state supervision of agencies and institutions
2 Juvenile Court Law An amendment to the state
constitution giving the Juvenile Courts exclusive jurisdiction in all childrens casesexcept those punishable by death or life imprisonmentis also greatly needed The arguments for this legislation will be found under the chapter on Juvenile Courts
3 Child Placing Law An Act to regulate indiscriminate traffic in babies giving this department authority to license all persons placing children in private homes should be passed The need for this law is fully explained in the chapter on Child Placing
120 FINANCIAL STATEMENT
FINANCIAL STATEMENT
Receipts
Received from State Treasurer1484875
Total Receipts 1484875
Expenditures
Office Supplies and Stationery 25065
Postage 27813
Travelling Expenses 214324
Educational Literature 12383
fStenographic service 1 186948
Secretarys service 292500
Asst Secretarys service 208337
Three State Agents service 498927
Telephone and Telegrams 7675
Miscellaneous Items 10403
Total Expenditures 1484375
15625 which did not pass through our books was paid out by direct voucher of state treasurer to cover bills rendered for typewriter and stationery making together with the above a total of 15000 the amount appropriated for 1920
Two agents full time and one agent part time f36948 of this amount was expended for extra help
ECONOMY THROUGH PUBLIC WELFARE SERVICE
REPORT OF SECOND YEARS WORK of the
GEORGIA STATE DEPARTMENT OF PUBLIC WELFARE
State Department of Public Welfare
Guardian of the Helpless and Dependent 306 State Capitol Burr Blackburn Secretary
DICKERSONWRIGHT PRINTING CO 59 E Alabama Street Atlanta Ga
STATE DEPARTMENT OF PUBLIC WELFARE
MEMBERS OF THE BOARD
C B Howard Chairman Atlanta Judge Andrew J Cobb Athens J G Harrison Macon Miss Annette McDonald Cuthbert Mrs William R Leaken Savannah
STAFF
Burr Blackburn Secretary
Miss Rhoda Kaufman Assistant Secretary
Boyce M Edens State Agent
Miss Mary McLeod State Agent
Office at the
STATE CAPITOL ATLANTA
ECONOMY THROUGH PUBLIC WELFARE SERVICE
REPORT OF SECOND YEARS WORK of the
GEORGIA STATE DEPARTMENT OF PUBLIC WELFARE
For the Year Ending June 1 1922
State Department of Public Welfare
Guardian of the Helpless and Dependent 306 State Capitol
Burr Blackburn Secretary
FIELD OF SERVICE
EXTENT OF SUPERVISION
By visitation examination reporting advising with institutions and agencies and distributing educational literature the department protects the welfare of
I DIVISION OF CHILDRENS INSTITUTIONS AND CHILD PLACING
Annual
Expenditure
1772 children in 26 orphanages 53800714
375 children in 4 emergency and receiving
homes 3277706
308 children in 2 State training schools 5850000
520 children in 4 county reformatories 9077600
200 children in 2 special schools for semidelinquents II 4645810
350 children in 4 juvenile detention homes 2164200
950 children wards of Georgia Childrens Home Society and various institutions now in
I foster homes 5 3819999
116 mothers in 4 maternity and rescue homes 2076609
II DIVISION OF FAMILY SERVICE AND PROBATION
2400 children handled by County Juvenile Courts3000000 Only 12 courts have paid probation officers and 3 paid juvenile judges
1000 persons on probation from criminal courts 400000 Only 6 courts have paid probation officers
900 aged persons in 70 county homes for the
f aged 20000000
203 aged persons in private homes for the aged 3482400
4
FIELD OF SERVICE
7000 dependents receiving outdoor relief from
county governments 40000000
10000 dependents receiving aid from private relief and family service agencies in Georgia communities 50000000
III DIVISION OF MENTAL HYGIENE
4200 inmates of State Insane Sanitarium80000000
50 inmates of State School for Mental Defec
fectives 2500000
IV DIVISION OF COUNTY JAIL INSPECTION
50000 persons committed to 150 county jails75000000
80343 wards Totals 359095038
NoteExcept in the institutional statistics these figures are approximate based on careful estimates from available information
Of the above 4558 are State wards cared for at a total annual State expense of 88350000 while 75791 are wards of the counties or private agencies costing annually 270745038
NEED FOR SUPERVISION
p Recent years have seen the cost of State
a e xpense care handicapped classes mounting
Increasing fl i
higher and higher The number of insane
criminal and defective grows more numerous in proportion
to the population The rate of expense to the State has
been less in Georgia than in many other States which have
undertaken services such as pensions and institutions for
the dependent that are still provided by local and private
agencies in Georgia
FIELD OF SERVICE
5
Due to Failure Unless these county community and of Local and private services for the handicapped funcPrivate Effort tion efficiently their wards are not returned to selfsupport and selfrespect but are passed on to the State to be cared for at immense expense in courts prisons hospitals for the insane and other institutions
Further if children in private institutions or placed by private agencies in foster homes or aided in their own underprivileged families are not given proper care and reasonable opportunities if old people in county homes are neglected the time will come when the State will have to assume these additional financial burdens
Welfare Departmenl The Legislature of 1919 alarmed to Increase by the increasing expense of State Efficiency institutions due largely to the fail
ure of county and private effort to handle the problems of the handicapped efficently and realizing the absolute necessity for some central State bureau to establish standards and improve local as well as state services created the State Department of Public Welfare with wide investigatorial and supervisory authority charged with studying and developing the best methods of restoring the handicapped inspecting and reporting on the work of State local and private institutions and agencies and arousing community responsibility toward human reclamation
Great Financial The financial saving which may be efSaving to fected by the Department of Public Welthe State fare in improving the efficiency of local and private effort will be evidenced
1 By preventing the necessity of the State taking over activities which are now delegated to others
2 By reducing the number of insane criminal and defective to be cared for at State expense
6
FIELD OF SERVICE
3 By preventing waste of county and private funds in misdirected activities and in overlapping and inefficient effort
4 By calling attention to the conditions in the social life of the State which are causing the flood of insane criminals defectives and paupers Only in the treatment of the unfortunate can the causes of their distress be discovered
While it would be difficult to estimate the savings which will accrue in time as a result of the services of the department it may be conservatively stated that the sum will undoubtedly run into millions of dollars
But the saving in human life in happiness and productivity for little children cannot be measured in dollars and cents
BRIEF OUTLINE OF THE YEARS WORK
7
Brief Outline of the Years Work
I DIVISION OF CHILDRENS INSTITUTIONS AND
CHILD PLACING
Prepared Handbook of Standards
Closed Orphanage where children were mistreated
Inspected thirtynine institutions and reported with recommendations to board members
Many improvements in institutions result
Started consolidation of four institutions
Many educational and helpful services rendered
Child placing Bill drawn
II DIVISION OF FAMILY SERVICE AND PROBATION
Organized Juvenile Courts
Prepared handbook for Juvenile Courts
Prepared Juvenile Court Record forms
Improved county relief methods
Investigated and reported on nine private Old Peoples Homes
Investigated two settlements and two Emergency Homes for Women
Agitated for District Homes for Aged
Prepared floor plans for Old Peoples Homes
Assisted in placing trained social workers
Prepared bulletins on relief methods
Answered large correspondence on local organization and case problems
III DIVISION OF MENTAL HYGIENE
Secured expert to study State Sanitarium and School for Mental Defectives
Conducted publicity campaign on need for better State program for insane and feebleminded
Prepared digest of all State laws affecting insane and feebleminded
8 BRIEF OUTLINE OF THE YEARS WORK
IV DIVISION OF JAIL INSPECTION
Prepared Handbook of Jail Standards
Secured local jail visiting committees in 106 counties
Prepared 61 reports on county jails
Corrected and approved plans for three new jails
Investigated complaints of mistreatment
V DIVISION OF EDUCATION AND INFORMATION
Furnished information service to inquirers or donors on institutions and agencies
Held five regional welfare conferences in cooperation with other agencies
Helped arrange Welfare Week at State University Summer School
Prepared programs and furnished speakers on Welfare Problems for Womens Clubs and civic organizations
REPORT OF YEARS WORK
9
Report of Years Work
This report is a brief accounting of the activities of the department No attempt is made here to present the standards for the care of the handicapped which have resulted from two years research work nor any of the details of the inspections and investigations of institutions and agencies which have been made by the agents of the department
These are published in separate pamphlets and bulletins Detail reports of all investigations with recommendations are always furnished the officials and board members of institutions and agencies immediately after the completion of annual inspections or are given to interested parties or contributors at any time on request When conditons are found to be inhuman or board members refuse to cooperate with the department in making seriously needed improvements reports are published in the newspapers submitted to grand juries and if court action is possible steps are taken to institute proceedings These latter actions however are seldom necessary
I THE DIVISION OF CHILDRENS INSTITUTIONS AND CHILD PLACING
Miss Rhoda Kaufman Director
Here the department has endeavored as efficiently as possible with its small staff to supervise the care and treatment of the 325 children in three institutions under State management 420 children in four institutions under county management 2707 children in thirtytwo institutions under private management and 950 children in foster homes having in mind the efficient and economic functioning of these servicesthe development of the wisest admission policies in order that the most needy might be benefitted the humane treatment and nurture of the children approximating as nearly as possible that afforded in a normal fam
10 DIVISION OF CHILDRENS INSTITUTIONS
ily home and protecting after care for the young people as they launch out into life for themselves
The first necessity faced was that of seA Handbook curing a statement of ideals in institution of Standards management and child care which could be held up as a goal and used as a measuring rod to determine present progress Nothing of the kind could be found in print After two years of study of the available literature conference with authorities in Georgia and elsewhere and examination and comparison of the institutions under supervision the department has about completed a handbook of standards for childrens institutions It is still being improved and corrected and will not be printed until as far as possible every defect has been eliminated and the very best present thought on the subject is included However the standards are applied in the recommendations which accompany the report on each institution and the various chapters on Administration Plant Admissions Physical Care Recreation Supervision and Discipline Education general vocational economic religious Discharge After Care and Records can be made available to those vitally interested in these subjects
As the result of an investigation Outstanding Bad Con Franklin Springs Orphanage ditions Corrected during the past year it was found that children were not only being cruelly beaten but grossly neglected and denied medical attention The conditions were called to the attention of those in charge who were given two weeks in which to secure a new superintendent but before the expiration of that time they notified the Department that they had decided to close the institution
Within the last few days another institution which has not been giving the children the proper care and which has given no heed to the Departments recommendations has been notified by the Department that if it does not turn the children now in its care over to another Home which is will
DIVISION OF CHILDRENS INSTITUTIONS
11
ing to care for them and close its own doors that report of conditions will be made to the contributing public who will be warned not to support it
Still another institution where conditions are not as they should be has been told of the immediate changes necessary and is being given a chance to show good faith by making the changes as soon as possible
Counting the three institutions closed last year there has now been a total of five institutions closed through the efforts of the Department entailing the saving of thousands of dollars to the contributing public aside from the rescue of innumerable children from suffering
T j Agents of the department have visited
inspections and
Conferen each institutions once and many
of them more often during the year Officers and board members have been interviewed In many instances there have been conferences with the entire board or one of its committees As the spirit and helpfulness of the Department is appreciated the agents are being received cordially and their mission better understood There are some who feel that they already know the last word in institution management and resent the slightest suggestion based on the experience of other institutions Always the methods employed by such persons are antiquated and by nature they are not in sympathy with child life Those who are sincerely attempting to do good work have welcomed aid from the department
T After every inspection a report of the De
Improvements 4
Noted partaient s findings has been sent to each
board member of the institution together with recommendations as to what changes seem most necessary A rapid glance therefore at some of the results obtained will give an idea of the Departments work
Social InvestigationsThree institutions have made noticeable improvement in the method of investigating appli
12 DIVISION OF CHILDRENS INSTITUTIONS
cations for admission insisting upon thorough social study of the childs family and environment thus insuring the use of the institution for those most in need and preventing needless breaking up of families or relieving relatives of their just responsibilities One institution has employed a trained social worker
SupervisionIn line with recommendation of the department ten institutions have made improvement in the type and number of their supervising staff In two the superintendents were changed better trained people being selected in each instance in another a superintendent and an assistant were added to the former staff rearrangement of sleeping quarters in two resulted in more direct supervision by the matron and in two of the others a man supervisor was secured thus giving the boys the needed masculine influence
Cottage SystemSix institutions are giving favorable consideration in their plans for rebuilding to the Departments recommedations that the more homelike and natural as well as less expensive cottage system be adopted One institution has definitely adopted this plan
RecreationThe Departments suggestions regarding better recreation has resulted in improvements in nine institutions three installing playgrounds and the others adding apparatus and providing direction for play activities in one instance a member of the board being responsible for regular trips into the community and cooperating with the superintendent in working out the plan of discipline based on reward for merit A tennis court basketball court and two swimming pools are to be opened this summer and three institutions are trying the plan of letting the children spend the summer vacation with outsiders
Medical ExaminationsPrevention of contagion and correction of physical defects have resulted from improvement
DIVISION OF CHILDRENS INSTITUTIONS 13
in medical examinations in five institutions where the suggestions of the department were followed in one institution a new superintendent having thorough tests of all the children made discovered two cases of incipient tuberculosis which were sent to a sanitarium for treatment while another found a number of her children undernourished and by giving them special diet is bringing them up to normal
EducationImprovement in educational equipment better teachers and more hours devoted to school work have been noted in five institutions one having put in high school work which it did not have formerly a special teacher engaged to give extra instruction to retarded pupils in a second the third has fitted up two school rooms with modern equipment the fourth added two additional teachers to its regular staff while the fifth has adopted the policy of having all the children mentally tested as a basis of intelligent classification and treatment
Normal ContractsFour institutions have afforded their children better community relationships outside the institution in line with recommendations made by the department two now sending their wards to public schools in two others the girls and boys joining the Y W C A Girls Reserves and Boy Scouts respectively
Plant and EquipmentImprovement in convenience efficiency and beauty of plants has been brought about in sixteen institutions through the carrying out of suggestions made by the department as to need of rearrangement of quarters and equipment as for instance the homelike atmosphere given to three institutoins by flower gardens attractive inexpensive draperies pictures painting of building new furniture and the replacement of linen tablecloth and china for oilcloth and ugly earthenware the comfort given to three others by new furnaces more adequate supervision in one by a change in dormitory arrangement for boys and girls and convenience in four that have installed indi
14 DIVISION OF CHILDRENS INSTITUTIONS
vidual lockers so that each child can have place for his personal belongings with two other institutions now furnishing each child individual toilet articles
Safeguards Against FireBecause of the danger of fire pointed out by the Department conditions have been improved in three institutions one having rebuilt a chimney that had formerly been the cause of several fires another installing fire escapes and extinguishers and a third moved children from an upper story where they would have been in grave danger in case of fire
Sanitation and HygieneHealth and moral hazard has been decreased in ten homes where attention has been called to insufficient number poor condition or lack of privacy in toilet and bathing facilities and the need of single beds for each child In two of these cases the number of toilets and baths have been doubled and in one the number of beds increased by half
FoodIn five institutions the food given has been improved where agents of the Department have pointed out that the childrens dietary did not include proper food values one small home buying two cows to get the needed amount of milk two others planting gardens that there might be a sufficient supply of green vegetables and four adopting the policy of regularly planned meals with the aid of a dietary distributed by the Department
AdministrationOne institution has made its management more democratic by adding an advisory board to its small governing board of three at the suggestion of the Department and another board upon being shown that it was ineffective and out of touch with the institution because of its loose organization is now entirely reorganized
RecordsIn four institutions there has been noticeable improvement in record keeping two of these having put in
DIVISION OF CHILDRENS INSTITUTIONS
15
with the help of the Department entirely new and complete systems of social histories of the children thus making it possible to give more efficient and intelligent care to the individual child
Change of PolicyBecause of the difficulty of handling more than one kind of problem in the same institution which the department has pointed out one institution for children has ceased taking a certain type of adult another has stopped taking both delinquents and dependents and one which formerly had no definite admission policy has formulated plans for serving strictly as an emergency home
AftercareThe vital need of keeping up with the children after they leave the institution and of helping them to make their readjustment to the community has been called to the attention of the institutions of the State and four have shown evidence of recognition of this need by making their followup work more systematic one of these adopting the plan of interesting a group of women so that each woman has undertaken to act as a big sister to a girl leaving the institution
The Department feels that it is obligated oopera ive q jn its power to aid the legitimate in
S6FV1C6
stitution and it has attempted to do this not only by pointing out in a friendly way the things that need changing in order to bring the institutions up to a high and modern standard but by rendering special cooperative service whenever possible Conscious effort has been made to reach as many contributing groups as possible and to interpret to them the needs of the respective institutions thus helping to develop a sympathetic and at the same time intelligent support
In a half dozen instances groups or individuals have appealed to the Department for advice as to the most effective way they might help an institution and on the other hand
16 DIVISION OF CHILDRENS INSTITUTIONS
the Department has responded at the request of the institutions themselves and helped them explain their needs to prospective contributing groups
The institutions are learning to turn to the Department more and more for help and advice on specific problems and difficult cases and in the past year the office has been able through this to interpret the field of the various agencies and specialized institutions to one another resulting in a better acquaintance and more efficient use each of the other
Last summer serious charges were made against the State Training School for Girls by an individual who not only made these charges to the Governor but gave publicity to them The Governor immediately called upon the Department for a special investigation as the law empowers him to do and as a result the school was cleared and the charges proven to be false
In two instances where it has seemed that efficiency and economy could best be promoted by the combining of institutions already doing similar work board members have been interviewed brought together and the way paved for such ultimate consolidation
Social and medical record forms have been furnished free as an aid to proper record keeping to all institutions who have requested them
A bookkeeping and accounting system was carefully worked up for one institution that had an inefficient and unsatisfactory method of keeping its financial records
A trained nurse was secured for another institution by presenting the need to a volunteer group
Various helpful pamphlets including a Round Table Plan for Trustees The Job of Being a Trustee Education of Dependent Children Admission and Discharge of Children
DIVISION OF CHILDRENS INSTITUTIONS
17
Physical Care of Dependent Children The Care and Cure of Euresis or Bedwetting The Development of the Individual Child and The School Ground and Play have been given free to superintndents and board members as aids on their specific problems
Child Placing Unfortunately there is one classe of chilli dren most in need of help that the Depart
ment is powerless to aid the nameless babies According to the law of Georgia no piece of property can pass from one persons hands to those of another without the transaction being carefully recorded but little babies the future citizens of the State can be passed on in any way that the irresponsible or criminal desire and there is no law to protect such helpless little ones It will be remembered that in last years report the Department called attention to the heartless careless manner in which this traffic was being carried on and stressed the need of restrictive legislation As a result a child placing bill was introduced in the Legislature but not proving entirely satisfactory it was dropped and another has been drafted this year which will be introduced in this years Legislature The bill as now drawn provides that no person or organization can place children without a license from the Superior Court It sets forth standards that must be complied with and places upon the Department of Public Welfare the duty of investigating the applicants for license and of putting into the hands of the court its findings The passage of this bill will mean the saving of hundreds of little lives from suffering and eventual dependency on the State as future weak or criminal citizens
II THE DIVISION OF FAMILY SERVICE AND PROBATION
The Department has attempted to render every service possible to those in the counties interested either in individual handicapped families or in the organization of county and community services for the dependent and delinquent
18 DIVISION OF FAMILY SERVICE AND PROBATION
There are three distinct though closely related services for the reclamation of the dependent and delinquent which should be organized as a part of the county governmentthe juvenile court and probation probation in the criminal court and county relief This calls for three volunteer county groupsthe Juvenile Court Advisory Board the Adult Probation Committee and the County Family Service Committee Eventually the chairmen of these groups should compose the County Welfare Board and should have in their employ at least one paid trained family service worker The countys relief and probation work should be reinforced and checked upon by private agencies including the family service association or associated charities the church and parent teacher family service committees etc And in time the work of county and private agencies should be drawn together through representatives of them all meeting in a County Welfare Council which should conduct a confidential exchange to prevent overlapping and duplication of effort
Believing that the checking of delin
Organization of quency jn childhood and the protection Juvenile Courts anj dependent children is the
most urgent service needed in the counties the Department has centered its efforts upon the organization of juvenile courts in the counties The first effort was to secure the designation of juvenile judges in each county by the Superior Courts and as a result of the departments campaign the number of juvenile judges in the State has been increased from 8 to 109 Of these only three are paid special judges the remainder being judges of another court of record
The second step is the appointment by the juvenile judge of his Advisory Board consisting of local interested men and women These have been appointed through the Departments efforts in twelve counties and arrangements are being perfected for the appointment of many additonal ones next fall
DIVISION OF FAMILY SERVICE AND PROBATION 19
The third step is the education of the new juvenile judges and advisory boards as to their duties and responsibilities Members of the Departments Staff have lost no opportunity to confer with juvenile judges and advisory boards To this end also a handbook for Juvenile Courts has been carefully prepared and distributed to all interested in the movement It contains an explanation of the law the modern conception of Juvenile Court methods the State laws for the protection of children and has been pronounced an exceptional and valuable booklet by leading Georgians as well as the secretary of the National Probation Association
A complete set of Juvnile Court forms adapted to Georgia conditions from the best in other courts has been published and is being furnished the courts at moderate cost
The Department has cooperated with a committee on improvements in the Juvenile Court law in the drafting of changes Juvenile Judge Hugh M Gannon of Savannah is chairman of this committee and Mrs Vara Majette of Jesup is secretary The changes proposd are 1 a constitutional amendment to make the Juvenile Court a constitutional court thus giving it concurrent jurisdiction in felony cases and enabling it to try such cases affecting children either with or without indictment by the grand jury As a the matter now stands any child indicted by the grand jury must be held for the regular session of the Superior Court 2 Several changes in the present law including permissable payment of designated judges civil service examinations for paid probation officers punishment for contempt trial of adults contributing to the delinquency or neglect of children and other minor details
County Poor Relief and Little progress has been made Homes for the Aged here due to the limited staff of the Department Contacts have
een established with many individuals and groups who are interested in preventing the awful waste of more than a half
20 DIVISION OF FAMILY SERVICE AND PROBATION
million dollars each year in outdoor relief being doled out in inadequate grants without accompanying constructive service to permanently rehabilitate the dependent families In only nine counties can it be said that reasonably proper methods are employed In three counties the department has been instrumental in improving the method of such relief
A bulletin on County Family Service has been prepared which will be distributed next fall to the county governments and interested citizens and an effort begun to get this work placed on a sound basis
The number of county homes for the aged almshouses inspected by the department during its two years work was brought up to 28 and all of the nine private homes for the aged were paid a second visit Few counties have enough dependent aged to make it possible for them to conduct such a home properly without too great a per capita expense The Department has suggested a plan for district homes for the aged operated cooperatively by the counties in a judicial circuit This plan is being considered by leaders in several sections of the State and in time legislation will be sought to make the plan effective
Floor plans for a modern home for the aged have been drafted and are ready for distribution The department has approved the architects plans for the fine new home in Walker county
The Department feels that the im
Private Family proVement of the services rendered hanService Agencies dicapped families by church fraternal and parentteacher groups is one of the immediate necessities since these groups come in contact with disabled families early enough to save them from being pauperized The staff has accepted every opportunity to speak to their local and State organizations and has prepared bulletins for the guidance of such groups
DIVISION OF FAMILY SERVICE AND PROBATION 21
During the year the staff has made contact with family service associations associated charities in 19 counties advising them as to their methods of dealing with transients and familes not cared for by church fraternal and parentteacher groups and suggesting methods of cooperation between them all A bulletin describing their work has also been prepared
Three very helpful pamphlets of the Russell Sage Foundation have been distributed among these organizations and are still offered for their use Treatment by Porter R Lee Passing On how to handle transients and The Confidential Exchange by Margaret Byington
Trained Family The need for Paid trained family servService Workers ice workers to guide all this effort in the field of prdbation and relief is growing more and more evident The office of the Department is too distant from 160 counties for its staff to give the proper advice and direction or to handle the difficult cases which volunteers are unable to solve Assistance was given the Juvenile Court Advisory Board in Floyd county m securing the appointment of a paid probation officer during the year bringing the number of counties in which there is at least one paid family service worker to fifteen Four of them have workers employed by the county government as probation officers as well as a private family service association with a paid staff Nine others have county paid probation officers and two have paid workers under private auspices
Need of Dis skght headway which the Depart
trict Workers ment has made in curing such paid trained workers has been due to strained financial conditions There are twentyfive additional counties with populations large enough to support a paid worker and the epartment m cooperation with local leaders will endeavor to stimulate the needed action either by the county govern
22
DIVISION OF MENTAL HYGIENE
ment or a private group However the day is too long distant when most small rural Georgia counties can be induced to employ such a worker The Department looks forward to the day therefore when there will be a paid family service worker employed for each of the thirtyone judicial circuits and in time legislation will be sought to make this plan effective It could be accomplished without legislative action provided the county governments within a judicial circuit would agree on the joint financing of the plan
A mass of correspondence has been anCase Corre swerej by the Department giving advice and spondence assistance both to paid workers in the fifteen counties mentioned and volunteers in rural sections The questions vary from how to protect orphan children from a dishonest guardian of their property to where to place a neglected child or how to get an insane person into the sanitarium In some instances a visit to the county by a member of the staff has been necessary Assistance has been rendered agencies outside the State in investigating homes to which children were to be returned arranging for the return of a Georgia citizen from an insane hospital etc
III THE DIVISION OF MENTAL HYGIENE
While the Department is charged with the same responsibilities toward the insane and feebleminded as toward the dependent and delinquent it has never been able to employ trained workers for its staff in this field
However through the Department and The Hutchings cordial cooperation of Governor
Report Hardwick the National Committee for
Mental Hygiene agreed to send a former Georgia Dr R H Hutchings head of the Utica N Y State Insane Hospital to make a study of the treatment of the insane and care of the feebleminded in the State The Department staff gave Dr Hutchings every assistance during his stay in
DIVISION OF COUNTY JAIL INSPECTIONS
23
Georgia and arranged wide publicity for the findings which will no doubt be the basis for legislative action
F r M ntal sta as ven cooperation to the new
Defectives State training school for mental defectives opened last year at Gracewood by assisting the new superintendent Dr George H Preston in his contacts with social workers and agencies throughout the State A cooperative program of publicity explaining the field and work of the institution has been planned and distributed by the Department
A digest of the present laws covering insanity feeblemindedness and institutions for their treatment and care has been prepared by the Department for the Legislature and others who may be interested
IV DIVISION OF COUNTY JAIL INSPECTIONS
Boyce M Edens Director
One hundred and fifty county jails through which about
50000 persons pass annually maintained at an annual expenditure of approximately 750000 administered under the often conflicting and divided responsibility of county commissioners and sheriffs with as many different sets of opinion as to what constitutes humane jail treatment is the field in which the Department of Public Welfare is expected to improve methods by a system of visitation examination and reporting
Handbook of Jail Standards Prepared
Early in 1921 it was decided that the amount of the Departments annual appropriation would not permit inspection of the 150 county jails by personal visit of the one field agent Therefore a sjmple and practical handbook of county jail standards was prepared to be placed in the hands of a local jail visiting committee in every county in
24 DIVISION OF COUNTY JAIL INSPECTIONS
the State and used by the committees as a sort of yardstick in measuring the jails and comparing them with the kind of jails they should be This handbook was completed after several months research and study of the management and inspection of county jails in Georgia and other States Dr 0 F Lewis Secretary of the American Prison Association in a letter to Governor Hardwick stated The Handbook is the most complete practical and helpful pamphlet of the kind that I have seen
Immediately after the handbook was printed the appointment of the local county visiting committees was undertaken Since December 1921 106 committees in as many counties throughout the State have been appointed Only fiftyfour counties remain without committees and before the year is out the Department hopes to have an active committee functioning in all 160 counties Eightyfive of the 106 committees have made their first annual inspection and sent in their first report
Since January 10th 1922 61 written summarized reports based on the reports the 87 committees sent in have been compiled by the Director of Jail Inspections and mailed to the committees to be used by them as a basis for a continuous campaign for jail improvement
Each jail visiting committee is Personnel of Jail composed of three members as the Visiting Committees Uw prescribes an interested and
representative woman as chairman and two male members one of whom is a member of the county board of health if there is such a board Invariably one or both of the male members are professional men such as lawyers doctors ministers or representative business men
The Department is deeply indebted to the State Federation of Womens Clubs for its cooperation in appointing the chairmen of the committees and to the local womans clubs
DIVISION OF COUNTY JAIL INSPECTIONS 25
for their vital interest in improving jail conditions In fact the interest of the federation was so hearty and effective that it resulted in a contest between districts in which the tenth district came out ahead by reporting chairmen appointed in every county by December 15 1921
Methods Employed by 116 committee inspections are not Visiting Committees 1tended to supplant the inspections
cf the grand juries but to supplement them The grand juries in the main are on the job only twice a year but the committees can and do visit the jails at frequent intervals unheralded and are thereby better able to ascertain the normal conditions existing in the jails and report their findings not only to the county officials but to the grand juries as well
When each visiting committee finishes its annual inspection a uniform questionnaire report covering every detail of the inspection is sent to the office of the department where a brief summarized report with recommendations is prepared and sent to the committee for approval and for the signature of the chairman and each member When the report is approved and signed it is presented to the county commissioners or the ordinary to the sheriff and jailer and to the grand jury The committee as a whole presents the report discusses it with the county officials and is thereby enabled to point out the good or bad features of the jail to those whose duty it is to administer it The committees have no power to order changes either in the jail building and equipment or management Their largest usefulness is one of friendly and cooperative advisory service
From year to year in the future the visiting committees will continue to interest themselves and the entire communities in the recommendations for better built and better managed jails Continuity of effort in this respect will be the most potent factor in the accomplishment of desired results Once every three months each committee will visit
26 DIVISION OF COUNTY JAIL INSPECTION
the jails and check up on any improvements or deterioration which may have taken place since the last visit and will report to the department upon each of these visits
Summarizing the recommendations Visiting Committee jajj improvements found in the com
Reports mittees reports we find that
New or completely remodelled jails were recommended in 42 counties
Adequate and cleaner sleeping arrangements were recommended in 49 jails
Better bathing facilities were recommended in 13 jails and regularly enforced bathing change of clothing and provision of soap and towels in 48 jails
Regularly enforced sanitary regulations were recommended in 27 jails
Adequate heating arrangements were recommended in five jails
Children under 16 years of age were confined unlawfully during 1921 in 18 jails and it was recommended in each instance that this practice be discontinued
Three meals a day for prisoners instead of only two were recommended in 48 jails
Thorough medical examination of each newly committed prisoner was recommended in 49 jails
Services of a matron was recommended for six jails in the larger cities
Installation of fire extinguishers was recommended in three nonfireproof jails
Transfer of all white male prisoners and negro female prisoners to a safer and better arranged jail in some other county was recommended in 12 jails
Later in the year the Department will compile and publish a complete summary of conditions reported by the visit
DIVISION OF COUNTY JAIL INSPECTIONS 27
ing committees thus giving for the first time a complete picture of county jail conditions in the State and showing how each county measures up to reasonable standards of humane treatment Detailed recommendations will be included for legislative action looking to the correction of defective and improper conditions
Results of Jail Sufficient time has not yet elapsed to
Committees Work faluate the visiting committees efforts in each individual county More than a year must elapse before this can be done with any fair degree of accuracy However a few definite results are evidenced in a score of enthusiastic quarterly reports which have already been received from as many committees
In spite of the depressed financial conditions felt generally throughout the State the committees in six counties have committed county officials to rebuilding or remodelling the jails in those counties County commissioners in four counties agreed to immediately put into effect every recommendation offered for the improvement of their jails
A number of jails have been thoroughly screened against flies and mosquitos while some reports show kitchens overhauled bathing facilities for prisoners installed bathing rules regularly enforced and prisoners meals greatly improved both as to quantity and quality
Many jails have had their first general sanitary cleanup and paint for years and any number of committees report that the grand juries in certain counties have accepted their reports with recommendations and included them as a part of the general grand jury presentments
Old Jail Buildings The overwhelming number of seri
Serious Problem ous defects found in 78 jails reported
on are largely due to age and improper construction of the jail buildings and to inadequate jail equipment 10 or 13 of these jails were erected 1 to 10 years ago 22 or 26 were erected 11 to 18 years
28
DIVISION OF COUNTY JAIL INSPECTIONS
ago 23 or 26 were erected 20 or 30 years ago 18 or 23 were erected 31 to 40 years ago 1 was erected 48 years ago 1 50 years ago 1 53 years ago 1 72 years ago and 1 107 years ago It has only been during the last ten or fifteen years that jail building and equipment has been seriously considered and carefully planned It will be seen Georgia is faced with the erection and equipping of at least 50 per cent new or completely remodelled old jails
It would seem too expensive and impractical to erect a fully equipped jail in every such county If a state plan of jail building could be adopted the jail provisions in many counties might be limited for use only at time of arrest and trial while one large modern jail in each judicial circuit could care for prisoners awaiting trial Until this or some other such plan is adopted throughout the State very little can be accomplished in the matter of properly separating in the jails the men from the women the white prisoners from the negroes the sick and infected prisoners from the well the dangerous and vicious prisoners from the youthful and first offenders and the occasional insane prisoners from the sane
Much time and study has been Erection of New an given to the planning of new and
Remodelled County Jails better jails ThJ most hopeful
indication of the results in that connection was the erection and equipment of a practically new jail in Reidsville Tattnall county This jail was rebuilt as the direct result of the departments first inspection and subsequent report to the county commissioners and grand jury The jail builder included in the plans certain very necessary improvements and equipment as recommended New jails have also been built since the last report in Floyd county and in Treutlen county
A new jail is in the course of erection in Seminole county the plans for which were carefully studied by the Jail In
DIVISION OF COUNTY JAIL INSPECTIONS 29
spection Director and every suggestion offered to the architect was incorporated in the final plans submitted to the commissioners of that county
New jails are also in prospect in the following counties some as direct result of the departments efforts Bartow Bibb Calhoun Evans Fulton Jasper and Upson Every effort will be made to influence adequate construction and equipment Considerable time has already been given to planning the Bibb county jail and practically every suggestion was incorporated in the tentative plans submitted by the architect to the commissioners of that county If these plans are carried out in the ultimate construction and equipping this new jail it will bring in a new era of jail planning in Georgia as the plans provide for a complete exterior cell arrangement which is more healthy and humane from every standpoint
Special Investigation vson Inspection
of Alleged Mistreatment has been caled upon on several
occasions to inquire into the
mistreatment and neglect of jail prisoners Two of these requests came from the Governor one from a United States Senator and three others from prisoners confined in the jails complained of The findings in no instance warranted prosecution or vigorous measures against the county authorities involved though conditions were corrected in several instances
V THE DIVISION OF EDUCATION AND INFORMATION
Information on the management efficiency and methods of institutions and agencies in Georgia is supplied all inquirers care being taken to give them such facts as they may need to guide them as contributors to various causes or because of their official or organization interest This
30 DIVISION OF EDUCATION AND INFORMATION
information service is proving invaluable to persons solicited for financial support and is being used increasingly
The department cooperated during District Welfare he year with the state Councii 0f Social
Conferences Agencies and the Social Work Depart
ment of the State University in holding five regional welfare conferences in Athens Cartersville Waycross Moultrie and Macon Our field of work was presented to interested groups helpful literature distributed and an invaluable stimulus given toward the proper care of the handicapped classes The newspapers and community leaders met the inauguration of this plan with unusual cordiality Such regional conferences will undoubtedly become an annual event
The third week in July 1922 has Welfare Week at been desjgnated as Welfare Week at State University gate University Summer School at
Athens and the program is being arranged by the Department and the Social Work Department of the University Addresses will be delivered by capable speakers to the entire student body and special courses will be offered during the week in family service probation mental testing and visiting teaching This should be the beginning of a school of Public Welfare at the University as the training of social workers is now the most vital need in the field of Welfare as seen by this department
Civic and community clubs have been circularized with suggestive programs on the probPrograms jems of e handicapped and reports of their being carried out by scores of organizations have reached the office Speakers were furnished for some fifteen meetings
FUTURE PLANS AND NEEDS
31
VI FUTURE PLANS AND NEEDS
Carrying forward the program outlined herein is the task set for the next succeeding years It consists briefly of
1 Raising the standards in childrens institutions and child placing
2 Organization and improvement of the probation and family services in the counties
3 Humanizing the County Jails
4 Improvement of the States services to the mentally diseased and defective
5 Educating the general public on the work for and problems of the handicapped
6 Training family service workers
This work can be aided by legislative action
1 Revising and bringing up to date all the States laws for the protection of children by a childrens code commission
2 A law standardizing county organization for Welfare services and providing for a judicialcircuit Welfare board with a paid supervisor and circuit homes for the aged
3 A revised jail code providing definite humane standards for jail equipment and management and for their enforcement
4 Revision of the insane laws provision for regulating admissions to the sanitarium and feebleminded school and for after care and eventually a State Department for Mental Hygiene to administer all mental institutions and provide mental clinics throughout the State
5 Establishment of a central purchasing and business bureau for all State institutions
32
PUBLICATIONS OF THE DEPARTMENT
Additional Staff Seriously Needed
The department is handicapped by its small staff The following additions are needed
One supervisor of child placing At present this must be done by two overworked institutional inspectors and has to be neglected
Two county organizers The Secretary gives part time to this important work but cannot begin to reach the entire State
One jail inspector The one agent now handling the entire jail improvement program needs one assistant for field work
Two stenographers To handle the additional office work of the increased staff
This would double the present staff and the present appropriation of 1500000 and would equip the department to render effective service The work was inaugurated in 1919 on a minimum appropriation with the evident expectation that it would be increased as soon as its value was demonstrated
Georgias Fight Against Dependency and Delinquency A study of present conditions among the socially handicapped in Georgia and methods employed for their care
In Loco Parentis A handbook for Georgia Juvenile Courts with digest of laws for the protection of children
Humanizing Georgias County Jails A handbook of standards of equipment discipline and management in county jails
PUBLICATIONS OF THE DEPARTMENT
Pamphlets
Bulletins
The State of Georgia at Work on the Problems of the
PUBLICATIONS OF THE DEPARTMENT
33
Helpless and Dependent A simple statement of the objectives and program of the State Department of Public Welfare
The County and Family Service Suggestions to the county commissioners in the handling of county poor relief funds
The Parent Teachers Association and Family Service Simple suggestions for the family service committee of the local parent teacher association in its work for handicapped children
The Church and Family Service Suggestions for church groups interested in relief of the distressed
The Family Service Association in the Small Community Suggestions for the group usually called Associated Charities which is not financially able to employ its own trained staff
The County Welfare Board Suggested organization of all county relief and probation services under one volunteer board
Cooperation Between Public and Private Welfare Agencies Suggestions to prevent overlapping and develop helpfulness
Building Plans
The department has on hand plans for childrens institutions county jails old peoples homes which can be made available for organizations planning new buildings
Record Forms
The department has prepared and has for free distribution or at small cost record forms
For Childrens Institutions
Social History Sheet
Medical History Sheet
34
PUBLICATIONS OF THE DEPARTMENT
For Juvenile Courts
Petition Judgment Investigation Warrant Subpoena Summons Commitment Appearance Bond Application to institution Medical Examination
For Family Service Committees and Associations
Family History Sheet
Confidential Exchange Forms
For County Jails
Questionnaire Report for County Visiting Committee Jail Register
Publications of Other Agencies for Free Distribution
Probation in Childrens Courts United States Childrens Bureau
The following Russell Sage Foundation pamphlets on Childrens Institutions
The Job of Being a Trustee
Round Table Plan for Trustees of Institutions Development of the Individual Child in Institutions Physical Care of Dependent Children in Institutions Cure of Bedwetting in Institutions
Education of Dependent Children in Institutions Admission and Discharge of Children in Institutions School Grounds and Play United States Bureau of Education valuable suggestions for childrens institutions
The Dietary Handbook Georgia State College of Agriculture
The Profession of Social Work A statement prepared for prospective social workers by the American Association of Social Workers
The following Russell Sage Foundation pamphlets on Family Service
Treatment a simple statement of principles f relief Passing On the handling of transients
The Confidential Exchange or central registration of
cases
BUDGET FOR EXPENDITURE OF APPROPRIATION 35
I
BUDGET FOR EXPENDITURE OF APPROPRIATIONS MADE BY LEGISLATURE OF 1921FOR TWO YEARS AND FIVE MONTHS
A Appropriations
Total appropriation for two years and five months beginning
August 1921 3800000
Expended last five months 1921 570013
Balance remaining for two years 3229987
Amount available each year
B Budget for 1922
Salary of Secretary 360000
Salary of Assistant Secretary 240000
Salary of State Agent 275000
Salary of State Agent 200000
Salary of Stenographer 120000
Salary of Stenographer 90000
Traveling 240000
Postage 30000
Literature Supplies Telephone
Telegrams and Miscellaneous 59993
1614993
Total 7 1614993
II
FINANCIAL STATEMENT FOR THE YEAR 1921
Receipts
Received from State Treasurer
Balance 1920 appropriation 302024
From 1921 appropriation 570013
Private subscriptions 475992
Total
1348029
36
BUDGET FOR EXPENDITURE OF APPROPRIATION
Expenditures
Stationery and Supplies 49340
Multigraphing 8123
Postage 23259
Traveling Expenses 138721
Educational Literature 7370
Secretarys salary t 360000
Assistant Secretarys salary 200002
fOne State Agents salary 240528
fOne State Agents salary 140000
One Stenographers salary 127048
One Stenographers salary part
time 47238
Telephone and Telegrams 13229
Miscellaneous 7875
Total 1362733
Expenditures exceed receipts 14704
The Legislature of 1920 having failed to appropriate for the maintenance of the department in 1921 it was necessary that outside funds be sought and that expenditures be cut to the bone to preserve the department until the legislature could act during the 1921 Summer session The 475992 donated was given outright and will not be returned
f During last Summer on account of financial straits the two Agents were dropped from the pay roll for two months
REPORT OF THIRD YEARS WORK
OF THE
GEORGIA STATE DEPARTMENT
OF
PUBLIC WELFARE
ATHENS GEORGIA For the Year Ending June 1 1923
State Department of Public Welfare 306 State Capitol
Rboda Kaufman Acting Secretary
INDEX PRINTING CO ATLANTA GA
STATE DEPARTMENT OF PUBLIC WELFARE
MEMBERS OF THE BOARD
C B Howard Chairman Atlanta Judge Andrew J Cobb Athens J Gr Harrison Macon Miss Annette McDonald Cuthbert Mrs John L Cabell Savannah
STAFF
Miss Rhoda Kaufman Acting Secretary Boyce M Edens Miss Mary C McLeod Miss Helen Muse
Office at the
STATE CAPITOL ATLANTA
To fill unexpired term of Burr Blackburn who resigned January 1 1923 to acccept the Secretaryship of the State Council of Social Agencies
Letter of Transmittal
TO
HON THOMAS W HARDWICK GOVERNOR and MEMBERS OF THE GENERAL ASSEMBLY
Gentlemen
In compliance with the law the State Department of Public Welfare submits herewith its annual report of the completion of its third year of service
It is now four years ago almost to the day that Georgia was horrified by glaring newspaper headlines of the persecution of little children by a demented orphanage superintendent and the fact was brought out that no one in the State was responsible for the supervision of such institutions and the prevention of such happenings
As a result of the awakened conscience the Department of Public Welfare was created by the legislature of 1919 It is only three years since the Department was organized and yet in that short time one other institution has been closed because the children were cruelly beaten and mistreated three immoral superintendents have been removed and numerous cases of alleged cruelty investigated and evils complained of corrected
Were those all the accomplishments of the Department it would more than have demonstrated its value but such things are only the negative side of the work for to the Department is delegated the responsibility not only of wiping out the bad conditions but of advising with the heads of the legitimate institutions and agencies and with communities engaged in caring for the dependent neglected and the delinquent with the object of helping to raise the standard of care given In this way not only the institutions but thousands of Georgias
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LETTER OF TRANSMITTAL
unfortunate classes have benefited from the Department s services
The work has grown in such leaps and bounds that the Department cannot now begin to meet the demands for its service It has reached the point where it must have more funds to be able to fulfill its highest usefulness and properly satisfy the demand in the State for its services t
We respectfully call to your attention the need of increased funds for traveling With the meager appropriation of 15
00000 on which it has been operating the Department has been forced to hold down traveling expenses to a minimum and many a time to transact by letter telegram or telephone a matter which most urgently needed personal attention which we were not able to give because we did not have the funds for traveling
With the duty incumbent upon the Department of visiting 40 childrens institutions 150 jails 75 almshouses 160 juvenile courts and incidental trips on special investigations and copsuiting services it can be seen at a glance that the work cannot be done properly financially handicapped as it is and that sufficient traveling expenses are an absolute essential
Your attention is likewise respectfully called to the peed of additional members on the staff in order to carry out the beneficial requirements of the law The Legislature of 1922 passed the Child Placing Law which put upon the Department the added duty of studying all the child placing work of the State and recommending the granting of licenses to agencies qualifying in this field This added duty however was put upon the already overtaxed workers of the Department without any funds for securing extra help To carry out the provisions of this law the Department must have funds for a child placing worker at present this has to be done by the two overworked institution inspectors
It is impossible for the one jail inspector now on the staff to properly examine more than a small percentage of the 150 odd county jails as the law requires do all the necessary
LETTER OF TRANSMITTAL
3
work incident threto and to organize and give supervision to more than 116 jail visiting committees Another jail inspector is absolutely necessary
The promotion of proper treatment of dependency and development of a constructive program for the prevention of increased burdens of dependency is one of our most vital functions However we have scarcely been able to touch this field At least two additional field workers are necessary for this purpose
The most important work of the Department perhaps though the results are difficult to measure directly is so organizing and directing social activities as to prevent the making of paupers criminals and other classes to be supported by the public at an average direct per capita cost of approximately 300 to 350 a year This work includes the establishment of juvenile and adult probation systems the employment by counties of social workers and coordination of the work of public and private social agencies and advice to individuals and organizations with their social problems It need hardly be pointed out that the state is very much concerned in any work which to the fullest possible extent makes individuals selfsupporting law abiding citizens rather than criminals or paupers
Respectfully submitted
C B Howard Chairman
Judge Andrew J Cobb
Mrs John Cabell
Dr J G Harrison
Miss Annette McDonald
Rhoda Kaufman Acting Secretary
Brief Summary of The Years Work
CHILDRENS INSTITUTIONS AND CHILD PLACING
Regular annual visits to institutions Orphanages 27 Emergency Homes 6 County Reformatories 4 State Training Schools 2 State School for Mental Defectives 1 Juvenile Detention Homes 3 Receiving Home 1
Investigation of charges of cruelty in two institutions
Consultation service to superintendents and board members
Handbook on Childrens Institutions accepted by Federal Childrens Bureau for publication
Arrangement with Child Welfare League of America for a study of admissions and discharges of two institutions
Study of modern plants for childrens institutions and collection of building plans
Influenced two institutions considering new plant to erect modern cottage systems
Conference with group planning to build new institution
Put institutions in touch with workers
Secured passage of Child Placing Law
Study of child placing work of State
Special Study of child placing work of Georgia Childrens Home Society in cooperation with Child Welfare League of America
Issuance of child placing pamphlet
Presented to Childrens Code Commission summary of needed laws for protection of delinquent dependent and neglected children
SUMMARY OF YEARS WORK
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ADULT DELINQUENCY
Secured jail visiting committees in 116 counties
Stayed in touch with each visiting committee and supervised their jail inspections and improvement work
Prepared 74 reports on county jails for committees
Prepared for publication an analysis of 95 county jails inspected during 1922 containing detailed information about these jails as to how they are managed and the people committed to them
Investigated complaints of mistreatment of jail prisoners
Drafted and approved suggested plans for 3 new proposed county jails
Aided in securing survey for need of policewomen in Atlanta Police Department
Assembled and studied best and most practicable county jail laws in the country preparatory to drafting suggested revised code of county jail laws for Georgia
FAMILY SERVICE AND JUVENILE PROBATION
Consultation service to county groups agencies and individuals on relief problems
Distributed pamphlet on Family Service and Parent Teacher Association to State Parent Teacher Association
Distributed pamphlet on The Church and Family Service to 500 church social service chairmen
Inspected almshouses 6 Private Homes for Aged 8 Home for Incurables 1 Confederate Soldiers Home 1 Maternity
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SUMMARY OF YEARS WORK
Home 1 Rescue Homes 5 Emergency Homes 6 Investigation of cruelty in almshouse 1
Drafted suggested plans for model county almshouse for two counties
Pushed campaign for organization of juvenile courts
Distributed Juvenile Court Handbooks and sample record forms to designated juvenile judges
Consultation service to juvenile judges
General Report
Democracy has been defined as the conscious effort to afford to every individual the opportunity to develop into a full normal life The dependent the helpless and the delinquent are by law classified as the special wards of the State To earn the right therefore to be ranked as a true democracy must not Georgia as far as lies within her power guarantee special effort on the part of the State in behalf of these her particular wards
This she attempts to do through the Department of Public Welfare which is charged with the duty of 1 inspecting and reporting on the manner in which the dependent and delinquent are being cared for and 2 of advising with public and private officials with the view of increasing their efficiency and bringing the institutions up to a high and modern standard The field of the department touches the welfare of more than 4000 children in the care of orphanages and agencies deprived of the privileges of living in their own family group through the death misfortune or unfitness of one or both parents Are all of these little ones going to have the opportunity to develop full normal lives It is generally recognized that no institution Po matter how good can ever really be a substitute for a home and mother but the State can through the Department of Welfare help the institutions raise their standards until they approximate as nearly as possible a childs own home and parental care
Some 24000 children come before the courts each year Shall they be immediately classified as criminals and grow up into adult offenders to be a continual burden on the State or shall they have another chance through the work of an understanding sympathetic Juvenile court judge and probation officer such as the Department of Welfare is trying to get functioning in each county
Forty thousand men women and children pass through the 150 jails of Georgia each year five times as many as are confined in all other penal institutions of the State put together
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CHILDRENS INSTITUTIONS
The jail is a detention prison not a punishment prison therefore until proven guilty each individual therein is entitled to the type of care which the State considers each of its citizens should have Yet because of their social isolation these jails easily become some of the unequal places hence the need of the State keeping in touch through some agency such as the Department of Welfare
Every community and county in the State is struggling with the problems of caring for its dependents and over a half million dollars is being spent by themin the effort to solve that problem Is that money being wisely expended Is it relieving those to whom it goes by helping to remove the cause of their dependency and helping them back to an opportunity for lives of independence that shall make them assets and not liabilities to Georgia These are some of the problems that the Department of Public Welfare is helping the State to solve
CHILDRENS INSTITUTIONS
Investigations The Department has during the past year and Advisory visited each of the forty childrens institu
Service tions at least once and in special instances
oftener and has conferred with eleven new superintendents as soon as possible after their taking charge for the purpose of helping them and of giving them advice based on the Departments knowledge of the institutions heeds Frequent conferences have been held wth the Board members of institutions concerning special problems with which they were concerned and interested groups have been given an insight into institutional problems and ways in which they as a group might be helpful
Georgia is fortunate in having a number of institutions that stand out because of their progressive policies and their attitude of studying new methods for the purpose of still further improving their work One of the main functions of the Department of Welfare is to gather the best thought along lines of institutional care throughout the country and by bring
CHILDRENS INSTITUTIONS
9
ing the results to the institutions of the State aid them in their efforts to continually improve themselves The Department feels that there is an increasing realization of the value of this service and that the institutions are coming more and more to see that inspections made by the Department of legitimate institutions are made not for the purpose of being critical but as a basis for helping them with recommendations as to fhe best manner of handling the problems that the inspection shows to be confronting them Every month brings a large number of persons to the office of the Department for information and for the purpose of talking over their problems and an increasing number of letters continue to be received asking advice and the opportunity of consulting with the Department
Institutions During the past year many applications
Put in Touch have been received from workers for insti
With Workers tutional positions It is never the policy of
the Department to recommend workers but they are registered their references communicated with and the information passed on to Boards of Directors and superintendents who are trying to find workers In this way the Department has during the past year been able to put many institutions and agencies in touch with prospective superintendents and supervisors
Charges of During the past year the Department has
Cruelty Investi made two special investigations of charges
fitted of cruelty in two separate institutions In
one the charge was found to have been based on a greatly exaggerated report and the name of the institution was cleared by the Department giving an actual account of the happenings to those members of the public who had heard the charge In the other instance the case was found to be not one of physical cruelty but a misjudgement on the part of a new superintendent who used a crude method of discipline in an effort to handle a critical situation which had arisen from lack of adequate supervision The Department found the board of the institution willing and capable of
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CHILDRENS INSTITUTIONS
handling the situation and following its usual policy of acting in the manner most helpful to the institution consistent with the protection of the children the Department cooperated in every way with the Board in helping them to solve the problem
Special Study During the past year a special study has
by the Depart been made of the most modern plants of
ment childrens institutions and material collect
ed to show what has been done in various parts of the country and what is the newest thought as to building National experts have been consulted and some of the most progressive institutions in the country have been visited
The Department concluded as a result of its study that the onestory frame cottage is particularly adapted to Georgia conditions and climate It is homelike relatively inexpensive because it is not necessary to erect fireproof buildings or heavy foundations is easily replaced permits of planning particularly advantageous to supervision at night and is a saving of the physical energy of the house mothers
Through this study the Department has been able to influence two institutions who were considering rebuilding and a group planning a new institution to decide on modern cottage systems in the suburbs accessible to public schools One of these institutions has already purchased a good suburban location and plans are now being drafted for an uptodate cottage system which when finished will be unique as a modern plant for childrens institutions in Georgia
Two other institutions both of which were undesirably located on account of changing city conditions have bought property in the suburbs
Handbook of It will be remembered that last year the
Childrens Department reported it had in the process
Institutions of preparation a handbook which would serve as a guide to institutional workers This book is now in the hands of the Federal Childrens
CHILDRENS INSTITUTIONS
11
Bureau who propose to publish it after a consultation with child earing agencies throughout the country and we hope within the year to be able to furnish copies to the institutions through the Federal Bureau
Change in Pros In the three years that have elapsed pective since the Department of Welfare began
its campaign of raising the standard of care given dependent children a change of attitude has been noticeable in a good many eases and in general a steadily growing consciousness of the real significance of what child care means is coming to beexpressed in a change of emphasis
Supervision the The majority of our institutions are High Point in coming to recognize as the best among
Institutional Life them always have that the institution cam best be judged not by its elaborate building but by the homelike atmosphere which prevails and by the type of house mother who is placed instead of the childs own mother They are coming to realize that a house mother is much more than a mender of clothes and a sweeper of floors The change in attitude toward supervision from the superintendency down to the person who teaches the girls to cook or the boy to plow has been quite noticeable in the three years the Department has been observing Georgia Institutions During the past year 10 of the 21 instituions and schools for white dependent children have secured new superintendents three institutions having changed twice These changes have meant in most instances a betterment of conditions and in several cases the change was a conscious effort to raise the standard of care
Although a number of the institutions have had a high standard for their personnel and other institutions are becoming increasingly conscious of this need still more emphasis needs to be placed upon the necessity of paying adequate salaries in order to secure for house mothers women of intelligence refinement and force In several institutions this has been recognized and higher salaries are being paid The
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CHILDRENS INSTITUTIONS
salary scale has been too low being from 15 to 50 a month as a rule Recently two small institutions of fifteen or eighteen girls respectively have paid their house mother 100 a month each and the assistants 75 each There certainly is no more important job in any institution than the direction and training of these girls for womanhood
Character Build The character building processes such
ing Emphasized as high class supervision recreation edu
cation of the institutional child along with the child in the community economic training and not the building of massive plants and the raising of funds are coming to absorb the interest of more superintendents and board members
To be sure adequate physical equipment is important for although effective workers may do good work even with poor tools they need good equipment and plant in order to accomplish the best results The time has about arrived when this fact can almost be taken for granted in any reputable institution
Occasionally it is still found that an institution is emphasizing the physical equipment and care chiefly but on the whole the tendency now is to find that a genuine awakening to the needs even along this line leads to a general vision of the larger needs in every line This balanced development which has been noticed in certain institutions in the state is a most heartening sign It means the beginning of a real levelingup process a smoothing out of some of the uneven places for it means that the institutional child is coming more and more to be reared and trained like other children
Admission and The outstanding problem in all our inDischarge stitutions almost without exception is that
of the admission and discharge of children particularly the admissions
CHILDRENS INSTITUTIONS
13
The emphasis now among all forward looking social workers is upon that first institution the home We are beginning to realize that even an ignorant parent can bring rare and special abilities to the problems of his own child that the daily affairs of the family have an educational content of great value that mothers and fathers are the basic forces through which the protective and cultural things of civilization seek their expression that the family is the most fundamental place in which to work out civic or social reforms that there is something in the parenthood relationship upon which we are not sufficiently building
In order however for the institution to do its share toward keeping homes together trained workers are needed to carefully study the home conditions of every child who is an applicant for admission to the institution 1 to determine whether or not the childs family should be broken up This is too delicate a work for volunteers especially if they are people with a profession or business of their own which demands most of their time 2 if the home should be kept together to work out plans and means whereby this can be done The Department therefore has continued to point out this need and the possibilities of meeting it either by each institution employing a trained social worker to make the investigations for admissions and to follow up the children when discharged or by several institutions jointly employing such a worker
The Job of the We find that the institutions are coming tb Institution a clearer realization that their real function is to give temporary care to children from homes broken for a time since if the home is permanently broken the child can usually be placed
However the card records in the office of this Department show that some of the institutions still keep children for long periods of time although they were committed for some apparently temporary reason such as sickness etc This indicates the need of the institution keeping in touch with the
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CHILDRENS INSTITUTIONS
parents or relatives after the child has been committed in order to determine when the child should be returned and here again we find the need of the special worker part of whose job such work would be
Mothers Aid At the present time the statistics of the admissions received in the office of this Department indicate that about 25 per cent of the children in institutions are there because their mothers are widows In time when the state shall provide as most states already have done state aid for widowed mothers the institutions will have help in carrying this part of the burden of dependency One institution in Georgia has maintained a system of mothers aid of its own for years They have at present fortysix wards living with their mothers visited by committees in the community representing the Home and which report to the Home and the Department has brought this to the attention of the other institutions as a possible plan for all calling attention also to the fact that the per capita cost of maintaining children in their own homes would be no larger than the per capita cost in the institution
Institutions Overcrowded Remedy Suggested
inore institutions
All our institutions have been found to be crowded and a number have waiting lists or have had to turn down applications for lack of room The Department has pointed out that the remedy is not to build We already have a sufficient number for our population The remedy is to select from all who come those who really need the institution After all if home life is the level of our civilization is it not part of the job of the institution to throw back on relatives their responsibility whenever possible and let the institutions concentrate its efforts on providing a higher type of care for those who need its ministrations while the community forces of church school and local social agencies bend their efforts toward their job of home building and home maintaining Two of our institutions feel so keenly that
CHILDRENS INSTITUTIONS
15
they have admitted many children who should not have been admitted and that they are keeping many whose homes have been rehabilitated by now that they have accepted the Departments offer to make an intensive study of a cross section of their population Through the generous cooperation of the Child Welfare League of America the Department was able to grant the request and such a study is now being made
Childrens Code Realizing how much the problems of the Commission institutions were complicated by the lack
of laws for the protection of children the Department recommended two years ago to tne Legislature that a Childrens Code Commission be appointed to study the need of legislation regarding children In 1922 this was taken up and pushed by the State Council of Social Agencies with the result that the Legislature of 1922 created such a Commission appointed by the Governor This commission is now making a study of the Georgia statutes concerning children for the purpose of presenting to the legislature at the opportune time a code of laws touching all the groups of children who are in need of protection
The Department expects to furnish to the Commission the facts accumulated through the statistical cards sent in by the childrens institutions reporting the civil and social conditions of the children in such institutions and revealing the causes of dependency as these figures show clearly the need of mothers pensions better desertion laws etc
CHILD PLACING
Passage of Child It will be remembered that in its first
Placing Law report the Department called attention to
the promiscuous giving away of children as one of the most serious conditions in the State and pointed out the need of regulating the placement of children and had introduced the child placing law which was passed by the 1922 legislature
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CHILD PLACING
This law was an effort to apply democracy in a very concrete way to some unequal places to protect children from becoming mere victims of chance so that they might find their way into at least a level place in life and not fall into the low places where poverty or crime hedged them in
Provisions The law requires that any hospital maternity of Law home agency institution official or person other than the childs parents wishing to place children in homes other than those of relatives within the second degree must be licensed by the judge of the Superior Court in the district in which the applicant has headquarters The license is to be granted on recommendation of the State Department of Public Welfare after study by the Department of the work done by the applicant during the six months period allowed after filing of application report of the Department to be based on the extent to which the applicant has met the requirements of the law with reference to 1 study of family of child to prevent the child leaving his own parents or relatives if possible 2 investigation of fitness of foster home 3 supervision of child in foster home
Other Regula The law requires also that any licensee tions wishing to bring a child into the State for
placement must file bond of 1000 with the Department as guarantee to care for such child if he becomes dependent
Regulation of it specifies that adoptions may not be Adoptions granted by the Superior Courts until a child has been placed six months in foster home b person or agency having placed child shall by written permit agree to such adoption
Issuance of Pamphlet A pamphlet was issued by the DeSetting Forth the partment early in December 1922 the Law and Its Workings law going into effect January 1 1923
to institutions agencies hospitals maternity homes officials and persons engaged in or interested in doing work for children in Georgia explaining the require
CHILD PLACING
17
ments of the law and suggesting practical plans by which the institutions could comply with it
Study of Child The bill placing upon the Department the Placing responsibility for the enforcement of child
placing standards originally carried with it an appropriation of 5000 to cover the additional workers and traveling expenses necessary to carry on the work However the appropriation was dropped from the bill and the Department would not have been able to carry out the provisions of the law had it not been fortunate enough to secure the assistance of the Child Welfare League of America which is most generously giving four months service of an experienced child placing worker who is making a study of the agency specializing on child placing in order to make constructive suggestions to the agency as to means of strengthening its work
Advisory Service With Regard to Operation of the Law
The Department has conferred frequently with persons directly affected by the law and has written numerous letters in answer to inquiries with reference thereto
Agencies Which Have Most of the institutions realizing Applied for a License that child placing is a very specialized job and one requiring equipment and training on the part of workers with the expense of travel in order to follow up the children into the homes into which they have been given have decided that it was wise to secure the services of the Georgia Childrens Home Society which centers its efforts entirely on this one kind of work
Hence only one institution as yet has applied for a license to do its own placing
A commercial maternity home which formerly gave babies away now places them through the Georgia Childrens Home Society
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FAMILY SERVICE
AH the juvenile courts and family agencies do their placement for adoption through the Georgia Childrens Home Society
However one of the agencies doing family welfare work and some of the juvenile probation officers who find it necessary at times to board children temporarily in private homes locally have applied for licenses to do temporary placement
Ruling of Attor There having arisen some questions as to ney General re whether or not the law applies to juvenile
Juvenile Courts court officials the Attorney General of the State was asked to render a decision on this point Under date of April 18 1923 Attorney General Napier handed down his decision that Section 1 of the Act which readsno person agency hospital maternity home or institution or official public or private in this State shall receive or accept a child under sixteen years of age for placement or adoption or place such a child either temporarily or permanently in a home other than the home of the child s relatives within the second degree or solicit money in behalf of
such agency unless it has received a license applies
also to juvenile court officials
FAMILY SERVICE AND PROBATION
Need of So One of the goals of the Department has been rial Worker a trained social worker in every county of
25000 population or over and where this is not practical a social worker for the combined counties of the judicial circuit Unfortunately however we have so long taken for granted that the poor we have with us always that it has been a process of slow education on the part of the Department to convince communities and counties that dependency is riot a normal condition but one due to family breakdown which has resulted from some social
FAMILY SERVICE
19
maladjustment that giving material relief without at the same time trying to find out and remove the cause of dependency is like a physician giving morphine to relieve physical pain without removing the cause of the pain which will continue to return Moreover just as it takes a physician to diagnose physical ailments and prescribe the proper treatment so does it take a trained social worker to diagnose and treat social breakdowns Hence the need of such a worker in every county
Advisory At present there are such workers available
Service in only fifteen counties but several other
to Counties counties have begun to realize the need and have turned to the Department for advice and assistance in solving the problem Because of lack of staff the Department has not been able always to answer these calls with advisory visits by field workers as it should but it has tried to partially meet the need during th past year through the publication and distribution of pamphlets on County Government and Family Service and The Family Service Association in the Small Community
Educational However as the physician is dependent on
Pamphlets untrained people to care for persons who are
to Volunteer not critically ill to know when to call in a
Groups doctor and to carry out his instructions just
so the trained social worker is dependent upon untrained volunteer groups in the community to discover families in need of service to give them first aid treatment to cdll in the trained worker when complications become serious and to carry out the workers instructions To such volunteer groups also the Department has during the past year given assistance through educational talks consultation service and the publication of the Church and Family Service and ParentTeacher Association and Family Service These pamphlets have been given wide distribution throughout the State and have brought about a noticeable education of the public at large as to some of the unequal places and the best methods of changing them
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JUVENILE COURTS AND PROBATION
Juvenile Courts The Department has continued to push and Probation its campaign to bring about the designation of Juvenile Courts in every county in the State with the result that there are now Judges designated in 108 counties This leaves 52 still not designated It has been estimated by those who have made a study of groups of adult offenders that 75 per cent began their careers of crime as children A generation ago there wTas no differentiation in the treatment of a juvenile offender from an adult and the chances were that the child who started out on a career of wrongdoing continued that career Today however we have provided in our State law for special courts for children based on the fundamental idea of cure and prevention and not punishment The Juvenile Court law recognizes that erring children are in a state of delinquency because of some social cause and that the removal of that cause is the function of society Therefore an effective Juvenile Court should operate on the theory of doing something for a child because of what he needs instead of something to a child for what he has done To help them reach this standard is one of the functions of the Department of Public Welfare
Aid to In During the past year the Department has experienced found that many of the Juvenile Court Judges Judges though glad to serve when designated by the Superior Court Judge felt unprepared for the special responsibility of doing social work with children in which they have had no experience The Department should have a staff sufficiently large to permit of frequent visits to them for advisory service but because of its small staff such service by the Department has of necessity been limited However as each Judge has been designated the Department has furnished him with the Juvenile Court Handbook and Samples of Eecord Forms prepared especially for use by Juvenile Court workers and offered its advisory service on the most difficult cases It has urged too the appointment by the Judge of an advisory board
JUVENILE COURTS AND PROBATION
21
such board to be used to help the Judge in various ways but primarily by serving as a case committee with whom he can talk over cases and get help in deciding what is best for the child Then too such board members can be called on by him to serve as volunteer probation officers
Probation It is still difficult for some judges to realize
the Solution that the correctional institutions should be
of the Prob used as the last resort in dealing with the
lem child who should first be given every oppor
tunity to make good under supervision in his own community The Department has strongly urged that members of advisory boards should be used as much as possible in this connection as volunteer probation officers but pointed out always that the big outstanding need is a paid probation officer Several counties are working toward such a worker and within the last few weeks Muscogee county appropriated money for a trained woman probation officer and for part time assistance of a white man and a negro woman
County Re Several counties have consulted with the formatories Department as to the advisability of building Discouraged county institutions for delinquents and the Department has in every instance strongly discouraged this idea 1 because such a movement usually indicates a lack of probation work and lays emphasis on the wrong place namely on the institution rather than on probation An institution is never a substitute for probation and an effort to make it so indicates serious weakness in the probation work 2 because such procedure would take thousands of dollars a small percentage of which if put into probation would eliminate much of the apparent need of an institution 3 Because the county cannot afford to build and conduct the proper type of institution with adequate supervision and vocational training 4 Because every effort should be made to secure such adequate support of the State Training Schools as would enable them to take care of all the States delinquents who need institutional care
22
MENTAL HYGIENE
State Train The two state training schools one for boys
ing Schools and one for girls are in dire distress for funds
to enable them to meet the States needs Because of lack of funds the girls school has even had to close one of its cottages The Department recommends most urgently to the Legislature that the appropriation for these institutions be increased
MENTAL HYGIENE
During the past year the Department has cooperated with the State Council of Social Agencies in reorganizing the Georgia Society for Mental Hygiene which as an opinion making agency can do much to develop mental clinics study the needs of the Sanitarium and the School for Mental Defectives as well as educate the laymen on the treatment and prevention of mental diseases Since last year a Mental Hygiene Society has been formed in Savannah and a clinic opened in that city The mental clinic in Macon has been reopened and a group in Atlanta are in touch with the Commonwealth Fund in the effort to have them locate a demonstration mental clinic in that city
Both the State Sanitarium for the Insane and the School for Mental Defectives at Gracewood are greatly in need of funds There are at present only fifty inmates at Gracewood with a waiting list of over two hundred and the Sanitarium is woefully overcrowded and lacking in funds for many necessary and vital improvements
The Department recommends most earnestly that the Legislature make increased and adequate appropriation for these two institutions
ADULT DELINQUENCY
County Jail Some one has said the county jail is a necesInspections sary evil yet if the question of guilt and penalty is to be determined deliberately and judicially and if it is to be certain that persons charged with
COUNTY JAILS
23
crime shall appear for trial at the proper time there must be jails in which persons accused of crime can be held for trial The vicious criminals who are unfit to mingle with their fellows in society and the poor petty offenders the misdemeanants who are unable to make bond largely make up the jail population of our State The jail is not a punishment prison but merely a place of detention where men and women and even little children are temporarily detained for their own protection and for the interest of the State Many unfortunates committed to jail are not found guilty in the courts and it is the responsibility of the State to accord all persons awaiting trial in county jails such treatment as will safeguard and not jeopardize their health that will stimulate their self respect and that will build up and not break down their morale
According to reports from the sheriffs of 135 counties 42215 men women and children of both races make up the sad commitment toll claimed by the jails in those counties during 1921 Information obtained from reliable sources shows that during 1921 only 8658 persons were confined in all State and County punishment prisons so by comparison it will be seen that nearly five times as many persons were committed to jail than were confined in the punishment prisons From that standpoint the county jails stand out conspicuously as presenting the greatest penal institution problem in the State
In what manner of jails was this host of unfortunate Georgians confined awaiting trial to determine their innocence or guilt How were they treated during their sojourn in close confinement there To determine these and many other poignant questions of county jail management and administration is a part of the duty of the Department of Public Welfare under the law The Department is also charged by law to suggest such corrective measures as are necessary to mitigate bad conditions generally throughout the Slate and to stimulate a wholesome desire for better jails and better treatment of jail prisoners where needed
24
COUNTY JAILS
Jail Visiting Early in the history of the Department it was Committees found to be impossible as well as impracticable for one inspector which is all the meager annual appropriation will permit to inspect personally each of the 150 odd county jails throughout the State and to carry on all the other necessary work incident thereto After the jail inspector had personally visited and systematically examined some 50 odd jails in the different sections of the State in 1920 it was determined that the jail needs of Georgia could not be brought forcibly home to each county unless a volunteer group of thoughtful representative citizens in each county composed of both men and women unhampered by political influence and partisan bias could be induced to systematically visit and inspect the jails of their respective counties to see how they are conducted so as to be able to interpret their jail needs to the county officials charged by law with their management and control and to the citizens of the counties at large
Happily the law makes definite provision for the Department to appoint a jail visiting committee in every county that has a jail Each committee is composed of one representative woman as chairman and two male members one of whom is a member of the county board of health if there is such a board Invariably both male members are professional men such as lawyers doctors ministers or representative business men While these committees are an integral part of the Departments official family so to speak they serve without remuneration Their incentive in taking part in this necessary and important service is to have a part in the awakening of the State to its responsibility towards the jails and jail prisoners thereby helping to make the democracy we believe in effective in the unequal places and among the unequal classes
Since June 1st 1922 at which time there were active jail visiting committees in 87 counties 33 new committees have been added which brings the total number of counties now having committees up to 120 Eighty of this number have each
COUNTY JAILS
25
made one or more inspections of their jails during the first six months of 1923 and have sent in to the Department as they are required to do by law a complete report of their inspections and are actively engaged in trying to secure such jail improvements as are needed in their respective counties
This year the outlook for establishing a visiting committee in every county in the State is more promising than it was last year In addition to the State Federation of Womens Clubs several State Womens Auxiliaries of the various denominations and the State W C T U are lending their hearty cooperation in that direction and we hope with the aid of these splendid organizations to establish an active visiting committee in every county in the State that has a jail before January 1st 1924
How Inspections Each visiting committee is furnished with a Are Made carefully adapted series of county jail stan
dards that were worked out by the Department after an exhaustive study of the best jails and jail methods in this and other States throughout the country The committees visit the jails perodically and painstakingly examine every feature of them and apply the standards thus bringing to light every good and bad feature of the jails and are thereby enabled to render their respective counties a helpful service which it would be difficult to perform as effectively in any other manner The committees also render systematic reports containing constructive comment and recommendations to their county commissioners sheriffs jailers and grand juries and when necessary to the citizens of their countiees through the press and other methods of publicity
Summarized Report of The Department has rendered the 95 Jail Inspections State a significant service in organiz
Made By Visiting ing and supervising the work of these
Committees Dur volunteer county jail visiting commiting 1922 tees In this respect it is carrying out
in this phase of its work the spirit of the motto of the worthy founders of the State Not For Self But others Like Sir James Edward Oglethorpe the founder
26
COUNTY JAILS
of the State these 95 visiting committees composed of 277 of Georgians good neighbors visited the jails seeking a better and more humane way of detaining and treating the unfortunate in prison All of what these good neighbors saw in their county jails has been written and tabulated by the Department and will be published soon so that all who wish to may see and by seeing be helped to a better understanding of the delinquency problem Only a brief digest of the outstanding features of their reports can be presented here
Jail Conditions The Department is opposed to coddling Reported by the jail prisoners and that too is the expressed Committees sentiment of the committees Some might
contend that almost any kind of prison is too good for those convicted of crime yet all will surely agree that the thousands detained annually in the county jails awaiting trials are entitled to living conditions that are conducive at least to good health and the promotion of self respect Many of them are innocent and none are guilty in the eyes of the law until convicted in the courts
Among the outstanding weaknesses the committees reports show that 77 of these jails are more than 15 years old and 30 are more than 30 years old The reports further show that 54 are not even equipped with more than two separate cell compartments so that when both sexes of both races are present at the same time they cannot be decently segregated and this actually happened in 43 of these jails last year
The reports further show that 21 of these jails are not fireproof as all jails most certainly should be and 31 of the jailers do not live in the building thereby leaving the prisoners all night and most of the day at the mercy of each other and without supervision 62 do not have adequate and reasonably comfortable bunks for prisoners to sleep on 26 do not have sufficient window area for proper light and ventilation 68 are so poorly lighted as to make entrance into the compartments dangerous for jailers at night 73 do not have adequate heating facilities and 37 do not have anything like adequate bathing facilities for prisoners
COUNTY JAILS
27
In 16 of these jails prisoners were sleeping on bunks without mattresses in 11 there was inadequate bed covering and in 11 jails prisoners were found actually suffering from cold at the time the inspections were made In 51 blankets were found dirty and are never laundered in 93 the counties provided no change of clothing for filthy prisoners and in 77 bathing is not enforced but left optional with prisoners Prisoners are not given the necessary medical examination upon admission in 98 while contagious and infectious diseases are not even isolated in 74
An average of 61 cents per day per prisoner is allowed the sheriffs as a dieting fee in these 95 jails and in 85 only two meals a day are served the prisoners In 33 the prisoners remain in idleness not even being allowed or encouraged to participate in cleaning the jail daily
The foregoing gives a general idea of the weaknesses in the jails inspected from the standpoint of equipment and management It does not however show the fearful overcrowding in many of the larger jails nor the general inadequacy of the smaller jails The eommttees reports do not show that all the jails inspected are bad in every respect and it is not the intention of this report to convey that idea Some of the counties show real pride in their jails and the jailers in many instances are usually kind and considerate The outstanding defect is of course the serious lack of equipment and the custom handed down from one jailer to another that because of that serious handicap there is small incentive to keep the jails clean and orderly The committees reports give credit where credit is due but at the same time they show conclusively that in some counties many of the standards at which some backward jail officials scoff as being too ideal are actually observed by more progressive jail officials in other counties In spite of equipment weaknesses one thing that is needed most is for jailers to adopt and enforce regularly without fear or favor adequate sanitation prisoners personal hygiene and other very necessary daily regulations
28
COUNTY JAILS
Some Results of Georgias county jail system has been Committees Inspec in operation now for more than a centions and Work tury and up to 1920 but few beneficial changes have been made in it Such neglect as the jails reflect has become more or less a matter of custom so naturally the system cannot be radically changed in a short time The improving process is going to be slow nevertheless it is a source of gratification to note in the committees reports from different parts of the State the following improvements which are directly attributable to their efforts in reducing the jail problem to a minimum
General sanitary conditions reported greatly improved in 13 jails regular bathing regulations enforced in 3 jails change of underclothing provided for prisoners in 4 jails three meals a day furnished to prisoners where only two were provided heretofore in 2 jails and medical examinations provided for all newlycommitted prisoners in 3 jails
Two windows put in to improve light and ventilation in 1 jail building rennovated and cell equipment added to provide better separation of white prisoners from negroes in 2 jails bath tubs lavatories and toilets installed in 3 jails new mattresses to take the place of old worn out ones in 5 jails new blankets and more of them provided in 4 jails seats provided for prisoners in 1 jail much needed repairs to plumbing in 4 jails cell interiors repainted in 3 jails
In addition to the foregoing improvements committees in many counties have reported that cordial and cooperative relations have been established with county jail officials Such relations are absolutely necessary to furtherance of the work throughout the State It is also gratifying to note the manner in which a number of committees have sought and obtained the cooperation of church organizations civic clubs chambers of commerce and womens clubs in getting their work before the public A few committees have published their reports in county newspapers and have later commented in the press upon the improvements made in their jails
COUNTY JAILS
29
New And Remodeled The most hopeful sign of general jail Jals improvement due largely to the De
partments continuous Better Jail Campaign is the evergrowing tendency upon the part of many counties to erect new jails and remodel enlarge and reequip old ones Tattnall county has recently completed their new jail Evans countys new jail will be ready for occupancy soon If recent reports reaching the Department are true Bibb county will soon have one of the most adequate and convenient new jails in the State on top of its new court house Recent reports also indicate that Fulton county the largest from the standpoint of population and wealth in the State is seriously considering erecting a new jail adjacent to its court house
Wilkinson county one of the typical small rural counties in middle Georgia will soon let a contract for an entirely new jail This is one of the first counties to take such action directly after the visiting commitee had recommended a new jail Muscogee another one of the larger counties and Harris one of the smaller rural counties are negotiating with jail builders and architects for the erection of substantial additions to their jails Additional cell work has recently been installed in the Rockdale county jail and a temporary small jail was completed recently in Lamar county
Needed Changes The inevitable conclusion of anyone who In Present has carefully examined and studied the
Jail Laws county jails of Georgia and the jail system
as a whole is that better and more inclusive laws are essentially necessary Very little had been done along this line prior to 1920 Indeed some of the jail laws now in force have been changed materially only as to verbiage since the latter part of the eighteenth century
Early in the study of the county jails the necessity for remedial jail legislation was keenly felt During the past year the Department has segregated all of the jail laws from the
30
ADULT PROBATION
Code collected the very best jail laws of other states and the opinions of practical jail experts the country over and compared the two carefully and now has in the course of preparation a revised code of county jail laws
The 150 county jails with their 50000 yearly commitments with an annual approximate maintenance cost of 75000000 is far too great a State responsibility to continue to be treated as lightly as they have been during the past The Department realizes this responsibility and is bending every ef fort towards completing the jail code which of course cannot be presented to the Legislature until every phase of the problems involved is understood as thoroughly as possible
Adult Probation The Department has in the course of preparation a pamphlet on the treatment of adult delinquency which will be published for the furtherance of the work of crimnal courts with the first and youthful offenders and with the other more hopeful adult delinquent classes
Early in 1923 there developed in Atlanta an unusually promising interest in the treatment of female delinquents at the time of arrest and before trial by the Police Department The Department of Public Welfare aided in correlating this interest and with the aid of the Social Work Agencies in Atlanta and the Atlanta Womans Club planned a survey of the need for a Womans Bureau in the Atlanta Police Department which was made by an expert organizer and surveyor provided by the American Social Hygiene Association The survey expense was borne by the Welfare Department of the Atlanta Womans Club
The report of the survey with recommendations for a Womans Bureau was unanimously adopted by Police Committee of Atlanta City Council and the Department is aiding in the search for a competent and skillful social worker to head up the Bureau
CRIME STATISTICS
31
This is decidedly a step forward in the proper treatment of female delinquents by the city police and one which it is hoped will be emulated by every city police department in the State Indeed another step forward in that direction was taken by Savannah who hearing of the survey in Atlanta requested the surveyor to stop off in Savannah As the result of her visit Savannah is to have policewomen to handle the female delinquency problems of its Police Department
Statistics On While the law provides that the De
Adult Delinquency partment shall collect compile and publish statistics and information regarding the delinquent classes both in and out of institutions within the State the Department has not been able heretofore to comply with this part of the law because of insufficient appropriation
There is an evergrowing demand throughout the State for an accurate knowledge of the reasons for the Crime Wave that is said to be sweeping the country One county reported on January 1st this year that its criminal court docket contained a full years work for the court at that ime Is crime appreciably on the increase or decrease in Georgia That is a question that cannot be accurately answered to the Law Makers and the Judiciary until the facts can be compiled for comparison
The Department has been at work for sometime in the effort to have a Crime Statistics Survey made of the State through the aid of the American Institute of Criminal Law and Criminology which now bids fair to succeed at an early date Such a survey would be financed by the Institute and made by the Department
32
FINANCIAL REPORT
APPROPRIATION RESOURCES FOR YEAR ENDING DECEMBER 31 1923
Appropriation for 19221923 3000000
Balance from special appropriation of 1921 229987
Total appropriation available for 19221923 3229987
Expenditure for 1922 See detail following 1547912
To cover budget for 1923 1682075
DETAIL EXPENDITURES FOR YEAR ENDING DECEMBER 31 1922
Bank Overdraft Brought Over From 1921 14704
Stationery and Supplies 49411
Mutigraphing1 23843
Postage 35117
Traveling Expenses 111442
Educational Literature 12991
Secretarys Salary 360000
Assistant Secertarys Salary 238500
One State Agents Salary 275603
One State Agents Salary 200003
One Stenographers Salary 119000
One Stenographers Salary Part Time 25800
One Stenographer Salary Part Time 70650
Telephone and Telegrams 6145
Miscellaneous 4703
Total 1547912
Increase in budget for 1923 necessitated by the passage of the Child Placing Act which placed upon the Department added duties without providing any appropriation for carrying out same
REPORT OF FOURTH YEARS WORK
OF THE
GEORGIA STATE DEPARTMENT
OF
PUBLIC WELFARE

For the Year Ending June I 1924
State Department of Public Welfare
306 State Capitol Rhoda Kaufman Secretary
STEIN PRINTING CO ATLANTA GA
REPORT OF FOURTH YEARS WORK
OF THE
GEORGIA STATE DEPARTMENT
OF
PUBLIC WELFARE
For the Year Ending June 1 1924
State Department of Public Welfare
306 State Capitol
Rhoda Kaufman Secretary
fc
I
STEIN PRINTING CO ATLANTA GA
STATE DEPARTMENT OF PUBLIC WELFARE
MEMBERS OF THE BOARD
C B Howard Chairman Atlanta G A H Harris Jr Rome J G Harrison Macon Miss Annette McDonald Cuthbert Mrs John L Cabell Savannah
STAFF
Miss Rhoda Kaufman Secretary Hugh N Fuller
Miss Mary C McLeod Harold J Matthews Miss Helen Muse
Office at the
STATE CAPITOL ATLANTA
General Report
The State Department of Public Welfare herewith submits a report of its activities during the fourth year of its existence
A growing recognition by the social agencies and the State at large of the services for which the Department may be called on and the added task of the supervision of child placing put upon it by the legislature of 1922 has so increased the amount of the work of the Department that with the small appropriation available it would have been impossible to have rendered the services required had it not been for the splendid help and cooperation that it has been able to secure from national sources Outstanding instances of this were 1 a study of Juvenile Courts in thirty counties of the state by the Federal Childrens Bureau 2 a study of a crosssection of the admissions and discharges of two of the largest institutions and the child placing work of the Georgia Childrens Home Society made for the Department by the Child Welfare League of America and 3 the financing by the American Institute of Criminal Law and Criminology of the gathering of criminal statistics in five counties
Recognizing the inadequacy of the Departments appropriation the legislature of 1923 voted an additional five thousand dollars 500000 which became available January 1 1924 and which enabled the childrens division to take on the rapidly increasing duties of the child placing laid upon the department by the law This was accomplished by adding another field agent to the staff to take over the family service and probation work formerly carried by the childrens division
In February Miss Rhoda Kaufman Acting Secretary for the previous year was elected Secretary of the Department and Mr Harold J Matthews formerly County Superintendent of Welfare Cole County Missouri was added to the staff in charge of family service and probation Mr Hugh N Fuller of the Atlanta Bar who made the criminal statistics survey for us upon the completion of the study came with the Department in charge of the Division of Adult Delinquency to succeed Mr Edens resigned The division of Childrens Institutions and Child Placing continues under the able direction of Miss Mary McLeod assisted by Miss Helen Muse
The Department which is charged with the duty of raising the standard of care given the helpless and dependent classes has
3
found in the four years of its activities that this wording of the law is typical of the way in which all too long communities and agencies have approached the problem of caring for those who should be the special wards of the state Our wards have been thought of as classes or groups and group remedies applied forgetful of the fact that every group is composed of just that many individual human beings each different from the other in his makeup and in his needs and until we recognize this fact we can never effectively minister to them
With this in mind the Department has during the past year concentrated its efforts on trying to find out just how far the public really knows the individuals whom it is serving and their needs The results are startling in the proofs of how little we have known in the past and how the progressive communities institutions and agencies are beginning to realize this and mold their work accordingly
The cross section study mentioned above of the two large orphanages showed to what a small extent we have been studying the needs of the individual child and to what a great extent we have been applying a universal remedy when confronted with the problem of the dependent child The orphanages of our state are crowded and overflowing and there is constant talk of solving the situation by starting more orphanages Yet this study showed that onethird of the children now in the orphanages of the state are there because their fathers are dead and these children have been sent to the orphanages and separated from their mothers because our communities have thought of that as the only remedy when for less money the mother could have been aided to maintain her home and keep the child with her Other percentages just as startling are mentioned in the body of this report
Only by careful study of each child to find out his special needs and the treatment best adapted to meeting his needs can such conditions be changed Recognizing this one institution has recently employed a special welfare worker whose duty will be just such study and planning for each individual child referred to him
To find out who is the child who passes through the Juvenile C ourt and how his needs are being met was the object of the study made of thirty counties by the Federal Childrens Bureau Here again was found the tendency to apply a universal stereotyped
4
remedy although the law specifies that each child is to be handled by a juvenile court acting in loco parentis with the idea of ministering to him as a parent All too prevalent was found the old custom of letting children just automatically go through the criminal courts as they did before the juvenile court law was in effect Even where the juvenile court was found in operation all too often even there only the stereotyped remedy of the reformatory was thought of without finding out whether because of special circumstances that was the thing that would meet the childs need Probation officers through whom careful study and follow up of each child might be effected exist in only fifteen counties in the state
Just who the adults are who are passing through our criminal courts in ever increasing numbers was the object of the study financed by the American Institute of Criminal Law and Criminology Here the results are even more startling for the study proved
that all that we know of our criminals is what was done to them and the records show absolutely nothing about the individual criminal except the nature of his crime The behavioristic psychologist has come to know perfectly well that a particular type of act may be comitted by all sorts of individuals and is the result of all sorts of situations so that no understanding of the reason for a particular act can ever be had without an understanding of the individual who committed it and not only that but an understanding of that individual in the situation out of which the act grew Between 1916 and 1921 crime increased more than seven times as fast as the population Isn t it time that we were finding out some of the causes
The encouraging part of the past years work has been that the above mentioned and similar studies are apparently beginning to bring home to the public what the Department of Welfare is trying to do and during the year there has been a growing spirit of understanding and cooperation on the part of courts institutions and agencies and manifestations of the desire to pull together to raise the standard of care being given to the wards of the state by introducing into their work methods which have as their objective the individual and his needs
There has been a growing recognition also of the responsibility of the individual community for the care of its own wards and a growing number of calls from the counties to the Department for
5
assistance in organizing to meet the responsibility It has been pointed out that the services of a trained social worker available for each county or group of counties is always the great underlying need and the goal toward which to work Eventually the employment of a welfare worker as a responsibility of the county should be written into our state law inasmuch as the state is vitally concerned in the matter for she is eventually compelled to assume the burden of the care of the dependent in proportion as local effort fails The Department however does not think that the time is yet ripe in Georgia for such a law Not until we have had a chance for a period of educating the public as to the needs and practicability thereof Moreover when we reccommend such a law we want to be sure of its adaptability to Georgias conditions
An event of outstanding value during the past year in the education of the public at large in its social problems was the State Conference of Social Work held under the auspices of the State Council of Social Agencies the Department cooperating closely in the programs of the divisions on Child Welfare Adult Delinquency and Family Welfare The Conference was attended by five hundred social workers and laymen and a significant occurence was the reorganization with the hearty cooperation of the Department of the State Association of Childrens Institutions originally called together by the Department three years ago This Association affords a unique opportunity of united action and mutual benefit to those interested in the same problems May Georgians by more and more of just such united counseling prepare themselves for effective service
6
DIVISION OF CHILDREN S INSTITUTIONS AND CHILD PLACING
Mary C McLeod Director
During the past year regular annual visits have been made to the following institutions 29 orphanages 4 emergency homes 5 county reformatories 2 state training schools 1 State Training School for Mental Defectives 3 juvenile detention homes 2 receiving homes 1 maternity home nursery 2 schools taking dependents
Some of the other services rendered were
Cooperation with Augusta Survey helping with Child Welfare and Family Welfare Committee studies
Revision of the history sheet Cl No 3 for Institutions to make it more effective for use as both history sheet and admission blank These forms are furnished free to institutions wishing to use them
Cooperation with the Federal Childrens Bureau in getting into final shape the handbook prepared by the Department and in 1923 accepted and taken over by the Bureau to be published during 1924 as a federal publication on childrens institutions
Cooperation with the Childrens Code Commission by furnishing facts and statistics showing need of revision of laws for dependent defective and delinquent children
News Items Among Four institutions were discontinued durthe Institutions ing the year as follows Paul Moss
Orphanage for colored boys Augusta St Benedicts Orphanage for colord girls Augusta General State Baptist Reformatory for colored delinquents Macon St Johns Haven for white boys St Simons Island
There were three new institutions as follows Hebron Home at Tallapoosa Private auspices Mrs Carrie Gable of the Pentecostal Holiness Church To give free care or to board children whose parents wish to place them
7
Sunshine Cottage Cedartown Auspices Wayside Club of Cedartown Superintendent Mrs G L Post For dependent girls of all ages of Polk County and vicinity
Chatham Protective Home Savannah for delinquent colored girls committed by Chatam County Juvenile Court Auspices Savannah Federated Colored Womens Clubs
The Georgia Association of Childrens Institutions which came into existence at the State Conference of Social Workers in March fills an urgent need and means the getting together of the Georgia superintendents to talk over their mutual problems The Department cordially welcomes this organization as there are many times the Department would like to take up vital matters with the institutions as a group and when it is very difficult to lay matters before some 50 institutions of various kinds
The Department considers it very desirable also that the institutions be organized in order to express themselves as a group in the developing social work program of the state
One very good feature of this association is the local group meetings suggested by the superintendent of an Atlanta institution In April 1924 the Atlanta superintendents had their first meeting and discussed problems of interest
The institutions are thinking more than ever in terms of preventive medical work Three large institutions had hookworm tests of all their children One institution showed about 26 infection another about 40 and another also 26 Yet these institutions are not poor institutions but have been supplied plentifully with food and clothing etc No doubt many of these children came to the institution with the infection and have had it for years It has doubtless been responsible for the apparent apathy and dullness of some of the children in the pastparticularly noticeable formerly in the school work in one of these institutions
If this condition could exist in some of the better institutions the wonder is what may be the conditions among some of the institutions with low standards of care such as still exist in a few in the state
The Hebrew Orphans Home Board at the annual meeting November 1923 raised the mothers aid fund to 1000000 and work is
now being done on revision of family budgets as the feeling is that allowances have not been adequate in some cases This Board is also considering the employment of a social worker to do the family work out side of Atlanta and all the admission discharge and subsidy and after care work
The Masonic Grand Lodge has employed a welfare worker who does the social work in connection with the Home
The following Atlanta Childrens Institutions are now financed by the Community Chest Atlanta Childs Home Home of Friendless Carrie Steele Orphanage Leonard Street Orphanage Hebrew Orphans Home
The outstanding features of the Departments years work in connection with the institutions and which are of special significance are 1 The cross section case study made of two institutions by the Child Welfare League of America for the Department 2 Analysis of the statistics gathered from all the institutions with reference to admission and discharge
Study of Two During the first half of 1923 the Department Institutions was able through the courtesy of the Child Welfare League of America to offer to two large institutions an intensive study of their admissions and discharges This offer was made for the purpose of helping the institutions get a general view of the circumstances of the children for whom they were caring and a detailed and intimate view of a selected number of their inmates Only one Georgia institution at the time had a social worker to make investigations for admission and discharge and all the others had to depend upon volunteers in the communities busy and untrained people
The study could be offered last year to only two institutions although others would like to have had it but the Department hopes during the ensuing year to offer this service to one or two other progressive Superintendents and Boards who are interested in making thir institutions better serve the children for whom they exist and who recognize the need of working out a plan by which the children who most need the institution shall be cared for and by which at the same time the institution shall not be contributing to the pauperizing of persons who are willing to shift their responsibility to the broad shoulders of the public These two studies
9
showed conclusively that these results can only be obtained through full investigation of each case by a trained worker
In each institution study was made first of the records to determine general policies of admission It was not possibleto learn much from the records about the circumstances of families or even names of relatives because the records of these two like those of practically every institution in Georgia were very meager for two reasons 1 The local people who put the children in the institutions usually send to the Superintendent only a partly filled out application blank and in some cases a letter with something of the family story usually very sketchy 2 The Superintendent with all his other duties and usually inadequate staff has not time to record all the facts which come to him through visits of parents or relatives of from local people in conversation etc The lack of of significant or useful records in the institutions is a condition to be expected until some plan for real social investigations is worked out either by the individual institutions or childrens bureaus
Following a study of the records a cross section of the cases was selected and visits made to the families and relatives and other sources of information The studies showed that the children fell roughly into five classes
1 Those who had a good father or mother who could have been helped so that the children could remain in the home
2 Those who had or have interested and competent relatives
3 Those with family situations requiring social adjustments
4 Those who were without parents and for other reasons were available for adoption
5 Those in which the children will probably have to remain in the institution
1 Those who had a good father or mother who could have been helped so that the children could have remained at home
In one of the institutions onethird and in the other onefourth of the children studied were found to be pensionable that is in each case there was a good father mother or relative who could care for the child if given some financial aid
One mother had been able for over a year after the death of the father to keep the family together on her own small wages and if at that time she could have had a little help she would have been
10
able to keep her children with her and they would not have been deprived the care and companionship of this good woman This situation is also one in which some good social work could be done Mrs X is working for 5 a week as housekeeper She would unquestionably be able to earn more than his She might be able to find a place for herself so that she could have one of the children with her assuming that it were not possible to help her so that she could make a home for all of them
2 Children who have more or less competent relatives
In both institutions over onehalf of the children were found to have relatives who were still interested and competent
The time to get relatives to assume their responsibility is at the time children are left dependent by death or other misfortune for as time goes on and the grief is to a large degree forgotten relatives lose enthusiasm for caring for the children and drift away from thought of them Even if it is necessary for the institution to take the child a social worker could keep in touch with home and relatives
3 Those with family situations requiring social adjustments
In both institutions about one half of the cases studied showed the need of the services of a social worker to make adjustments in the home or with relatives
This does not mean that the children would not come to the institution in a good many cases for the institution serves its highest purpose in caring for children while family adjustments are being made but many of the children who remain for years in the institutions could be returned to their own homes and their own people if social work were done with them
In the case of illness of a parent for example it is necessary for the worker to keep closely in touch with the family to know when the members may be reunited and to help them work out plans for reestablishing the home instead of letting the children remain in the institution
A social worker of some experience is needed for these cases Other family difficulties have to be worked out also such as a deserting father brought back and made responsible for his family Moreover conditions change in family situations and a social worker
11
is needed to work out each situation as it comes Often children are kept on indefinitely forgotten as it were because no one is responsible for linking them with their families or resources One example was that of a family of children sent to the institution before the war by local people The father who was rather worthless having deserted the family at the time later went into military service and was incapacitated and died so that 1000000 insurance was left to the family It was known that the man had gone into the service but as nothing further was done nothing was known about the children being in a position to receive money enough to maintain and educate them Meanwhile the contributors to the institution were supporting the children while their aunt was getting the money apparently thinking the children were placed for life in the institution
In another case a mother whose children were in the institution was living in an expensive apartment and keeping a maid and the means of her securing these luxuries was questionable There was need of finding out if the mother were living right and if not whether or not the children should be provided for other wise Moreover the question arises as to what extent the original giving up of her children led to her uncertain mode of living So many times tPe downfall of a woman begins when she gives up her children especially if required to transfer her legal right to them so that she loses her grip
4 Orphans without competent or fit relatives who should be placed
A childrens institution is not the place for orphans One of three things should be done with them 1 Place in private homes for adoption if without ties 2 Require relatives to be responsible for their care if able 3 Subsidize with relatives if the relatives are financially unable but otherwise can furnish a suitable foster home for the child
It is then only the exceptional orphan child who should be found in an institution the child who for some reason cannot be adjusted in a private home but there would be few such if careful social work were done
5 Children whose family situations require that they remain for some time and perhaps indefinitely in the institution These children were found to be as a rule from families in which there
12
was a long time disability such as illness etc in which the institution stepped in to fill a need in order to prevent such homes from being permanently broken up
Conclusions It is significant that the study of the actual cases in these two institutions reveals that the situations maintaining in the two institutions are typical of those existing in practically all as indicated by the statistics secured by the Department
On the whole the study showed
1 That the method of handling family investigations through local people as is now done by the institutions is both cumbersome and ineffective In addition to lack of time and training some of the reasons are
a Local people often are faced with making plans for the children and not knowing what else to do their interest is to get the institution to take the child and they are therefore especially interested in making as good a case as possible for such commitment
b Local people are very often not in a position to risk getting the ill will of relatives or other interested persons by suggesting that children be not accepted even when in their judgment more desirable plans could be made This is often complicated by family disagreements into which local people hesitate to go Cases were found in which some of the relatives although quite able and willing to care for the children were not consulted because another relative sometimes on the other side of the family was unfriendly to this relative and placed the children in an institution rather than let the disliked relative have any chance to care for them
2 The need of mothersaid for children of widows This should be done under careful supervision and requires the service of a social worker or it will be ineffective and the money sometimes misplaced and misused
3 Urgent need of thorough investigation before admission
4 Necessity for continuous contacts with the families and relatives of children from the time they enter for the purpose of returning them to their own people as soon as possible meanwhile
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seeing that the family has help in getting on its own feet This requires the services of someone who knows how to work out family problems in other words a social worker
Results of The Masonic Grand Lodge of Georgia recognizing Studies these facts at its annual meeting in Macon in November voted to employ a welfare worker who began his work about January 1 1924 He makes investigations keeps in touch with the families makes plans for the childrens discharge and otherwise keeps in touch with the institution linking it with the local lodges and interpreting its pruposes and aims Some few families have already been aided in their own homes and it is hoped this plan will gradually be enlarged The important fundamental step has been taken in securing the worker The superintendents of several other institutions are particularly interested in securing a social worker and aid for mothers
Numbers and The statistics gathered by the Department
Social Conditions for the past four years show that there were of Children in the 2720 children who received care in the inInstitutions stitutions during the year 1923 although
not all at one time The population at the beginning of the year was 2139 and 581 were admitted during the year while 567 were discharged leaving 2153 in the institutions January 1 1924 861 of these were white 139 colored
565 were girls 435 boys
The significant fact is that the largest single disability was that of children made dependent by the death of their fathers 315 and therefore potentially pensionable in their own homes as were onethird in each of the two institutions in which the special studies were made as indicated above
The question arises in connection with this large group as to how many might have been kept in their own homes if the institutions all had a fund for making it possible to keep together the homes of most of these children as the indications are that most of the mothers could have cared for their children at home if given financial help
If most of this 31 of the children were kept with their mothers it would fully relieve the crowded conditions of the institutions which are due at present to two things 1 Lack of mothers aid
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funds 2 Lack of social work in the communities from which the children come or in connection with the admission and discharge work of the institution by which through other plans many children could be kept out of the institution entirely and many returned more quickly to their homes thus leaving the places in the institutions for the children who need institutional care
As the total maintenance cost of the institutions for 1923 was 64353986 the cost of keeping this group of children in institutions instead of with their own mothers was 19949735 or practically 20000000 which if used to keep homes together would mean a tremendous accomplishment in humane treatment
26 had both parents living and the figures indicated that sickness and desertion of parents were largely responsible for the childrens admission The fact that 431 children were cared for last year because of deserting parents shows the need of securing an effective desertion law These childredn 16 of all cost the contributors of the state 10296638 for their maintenance only It is certainly time to start at the prevention end of this job
18 were orphans which is still too large a number indicating lack of social work in the communities as well as in connection with the admission and discharge work of the institutions because most of these children should have been kept with relatives or if thorough work in that direction failed should have been placed in good private homes
Whence the The largest number were received from parents or Children guardian260 or 447 and from relatives 122
Came or 569practically 57 which came directly
from the family group itself so that the proportion of children with relatives is larger than the onehalf found in the two institutions given special study and undoubtedly the number of relatives able or fit to care for the children out of the total number would amount to about 50 in all the institutions The question is why did so many families give up their children to an institution Did poverty overcome them or illness overtake them or why did these parents give away their children even for a time
Undoubtedly a good many of the children especially in cases of sickness in the family should be placed in the institutions temporarily while family problems are being worked out but this large number
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of broken families indicated also the urgent need of agencies with trained social workers in the local communities for many of these homes were broken up wholly because the local untrained persons who were trying to help the families did not know of anything else to do except apply to the institutions for admission of the children
187 came through the Courts 14 from a social agency or other institution and 8 through churches
To Whom The largest number of children discharged from the Do They Go institutions were returned to parents332 while 88 went to relatives It is desirable that children should be returned to their own people whenever possible but it is desirable that this be done with full knowledge on the part of the institution of the exact home conditions and with someone to keep in touch with the home for some time to see that all is well
So the social worker is needed in connection with discharge as well as with admissions indeed all along the line
Child Placing The study made of the Georgia Childrens Home Society the one child placing organization in the State was more intensive and extensive than those made of the two institutions and formed the basis of recommendations to the Superior Court as basis for its action in connection with the licensing as required under the child placing law passed in 1922 This study included children received and placed out in 1908 in order to trace the results of the placements over a period of years Another section of admissions and placements in 1922 and 1923 to the date of the study were taken in order to determine the methods at the time In all 108 cases were studied or about 25 of the cases under care scattered over the state
The study showed the most urgent need to be trained case supervision and the Board of Directors recognizing this need secured the services of a well trained child placing worker who was employed to direct the case work
In addition to the license recommended for this Society it has been necessary to recommend for license a number of other agencies all but one of which were licensed to place children for temporary care only These licenses were all granted to probaton officers or welfare workers located in rural counties or else in urban counties
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in which the Georgia Childrens Home Society has not yet developed the local work to the stage that they can take children for emergency care immediately In the case of probation officers a license is necessary because the workers use private homes for detention or in connection with probationers One institution was licensed to place for adoption The entire list of licenses granted by Superior Courts on recommendation of the Department were Georgia Childrens Home Society1 Childrens Institutions1 Family Welfare Agency2 Red Cross1 Juvenile Court Probation Officers6 Applications pending3
Much of the work of the Department in connection with the new child placing law during 1923 was educational in nature Not only was advice given and explanation of the work made to a good many of the license applicants who were not trained in this specialized service but also representatives of the Department called upon most of the hospital superintendents in the state to talk over with them the situation with reference to abandoned babies which are often brought to hospitals for temporary care and illegitimate babies whose mothers wish to give them away on leaving the hospital Advice was given as to whom such cases should be referred in the state or community for the protection of the child in compliance with the law Many talks were made as to the purposes and functions of the law and in some instances interested persons referred to the Department persons who would have placed the children inadvertently without knowing about the law but who were glad to direct the placement through the proper channels when they knew of it
The Department has a registration of all the children placed by the licensees or applicants for license which means that there will be in the future a record in the office of the Department of all children placed legally in Georgia This is of course as required by the law and designed to protect the child
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DIVISION OF FAMILY SERVICE AND PROBATION
Harold J Matthews Director
The three outstanding events in the Departments work in this division were 1 the rearrangement of work and the addition of another member to the staff which will make it possible to render more effective help to the local communities by advising with them as to methods of handling their problems of dependency and delinquency 2 study of juvenile deliquency in 30 counties made by the Federal Childrens Bureau and 3 the participation by the Department in the community survey of Augusta
Visits have been made to 9 private homes for aged the Confederate Soldiers Home 1Home for Incurables 7Emergency Homes for Women and Children 2Emergency Homes for Men 4Rescue and Maternity Homes and 11Almshouses county homes
Augusta In the Augusta Survey requested of the State
Survey Council of Social Agencies by Augusta the de
department took the responsibility of the study of the family and child welfare work of the community In this the Department asked and secured the cooperation of the American Association for Organizing Family Social Work the Southern Division Red Cross the National Travelers Aid and the Federal Childrens Bureau Some interesting facts brought out by the survey were that more than a quarter of a million dollars was spent in the past year in family and child welfare work indicating tremendous amount of uncoordinated effort with a large amount of duplication and showed the need of a coordinated program and more trained service The recommendation for the organization by th community of a Central Council of Social Agencies was accepted and steps are now being taken to secure a trained executive for the Council which action should result in continued study by the agencies of themselves and coordination of their activities with the ultimate organization of a Community Chest
Family The conditions and problems existing in Augusta
Service exist in varying degrees of intensity in every county
in the state The need of coordination and wise use of money now being expended may be gauged by the fact that the counties of Georgia are spending three quarters of a million
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dollars in outdoor relief alone not to mention the cost of maintaining a growing number of almshouses and the constantly increasing amounts disbursed by private societies etc in undirected haphazard fashion As said in our general report the great outstanding need is a social worker available to every county or group of counties in a circuit but the needed advice and service of such worker is available in only sixteen counties
Every county now has its pauper list and the recipients of the pathetic doles of relief are decided upon in various ways sometines by the grand juries publicly designating and publishing the names of those whose appeal for help they grant
Aside from the degrading influence of this custom its folly and extravagance may be gauged by dozens of stories like the following In one county where a social worker was engaged almost the first family on the pauper list which she visited was one that had been helped by the county for years Over 120000 having been given them because no adult in the family was strong enough to work Being trained to look for causes the social worker had a doctor examine them free of charge he found all severely afflicted with hookworm and other ailments free treatment and hospital care were secured and when cured jobs were found for them and the family is now on its feet Had the social worker gotten in in the beginning she could have saved the county enough to pay her ary for a year
When the pauper lists get too heavy our counties invariably begin to think of an almshouse as a solution and the result is seventyfive almshouses which are only too often places of filth and disease that are a disgrace to the state and in many instances filled with people whom careful investigation by a social worker would show either should not be receiving care from the county at all or who could be more economically cared for in their own homes or boarded in the community
Under the existing state law the counties can legally employ a social worker as probation officer in the juvenile court and the Department has pointed out how this worker might then be given also the responsibility of dispensing the pauper fund investigating applicants to the almshouses and of acting in an advisory capacity to the private welfare agencies in the community Where the counties cannot be convinced of the need we have urged the private
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agencies to jointly employ such a worker as a demonstration to the county Each county of course has its special problems and one of the goals of the Department has always been to render advice and assistance to them in organizing to meet these problems Unfortunately because of lack of staff the Department could do but little of this up until April of this year However as pointed out in the general report by rearrangement of work and increased staff the Department can give more of this type of service and in the past few months has helped several counties line up and plan for the employment of a worker
Juvenile Courts Unfortunately most of the counties in the and Probation state are convinced that their juvenile delinquency problem and the need of a juvenile court is negligible and even where the juvenile court has existed it has in only too many instances not functioned The Department has always believed that if it only had sufficient field staff it could show that juvenile delinquency did exist even though the communities were not conscious of it either because the children reported to the authorities continued to go through the criminal court and never reached the juvenile court in spite of the law or else that many delinquents were never reported to the authorities because those who knew of them were not familiar with the juvenile court law and were unwilling to have them go through the adult courts
Study of Juve Moreover we have felt that these condinile Courts tions were in many instances due not only to
defects in the juvenile court law itself but in our various laws or lack thereof for the protection of children The Department therefore asked the Federal Childrens Bureau to make a study of juvenile delinquency in Georgia for the purpose of finding out existing conditions and any needed changes in the law The Bureau consented and for three months had four workers studying some thirty counties which resulted in detail findings regarding the juvenile courts in these counties and the results of ineffective laws It is hoped that the detailed report will be available for distribution at a later date but we give herewith some of the findings which have been turned over by the Department to the Childrens Code Commission for their information and guidance in revising the laws
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Courts In only 16 of the 30 counties covered by the study
Functioning had j uvenile courts been designated and were found to be functioning in only 14 of the 30 counties was probation service available and in most of these it was inadequate It is true that in 22 counties of the 30 a juvenile court judge had been designated 8 of these being city courts but the ordinaries who had been designated in 12 instances had refused to serve in 5 although the AttorneyGeneral has held October 271920 that when the Juvenile Court has been designated it is established for all time and the judge must serve as juvenile judge The fact that no compensation is permitted does not alter the condition and the performance of the ministerial duties imposed upon the court designated as juvenile court can be enforced by mandamus
In the counties which had no designated juvenile court the superior city or police courts handled childrens cases The two latter in direct violation of the law In only about half of the counties studied therefore was the intent of the law being followed out in practice namely that there be a juvenile court for the hearing of childrens cases in every county
Number of According to the court records the surprising numChildren ber of 1257 children appeared last year before the courts of the 30 counties studied and this number does not represent the true state of affairs There is an undoubted omission of many cases coming before the ordinary criminal courts because age data unfortunately is lacking The 1257 deliquent dependent and neglected children appearing before the courts were handled by the various tribunals as follows
Number of Whole
Juvenile Courts 909 72
Recorders Courts 242 19
City Courts 64 5
Superior Courts 35 3
Courts of Ordinary 4
Justice of the Peace 3
In the 14 counties where the juvenile courts did not functon there were practically no cases of dependency and neglect of children brought before the ordinary criminal courts Evidently unless
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there is a juvenile court problems of these unfortunate children are ignored by or at least unknown to the courts
Gases not A comparison of the cases coming to the attention Reached of a well organized court with proper equipment for investigation and supervision of cases and the situation in counties having no such service shows conclusively the extent to which delinquency and neglect problems are disregarded One hundred and three children were dealt with by the Juvenile court in a county where a probation officer had through her investigations and supervision of cases made the court a constructive social agency in the county In comparison the Juvenile Court of a county with no probation service had dealt with the cases of only 14 children during the same year all of whom were reported because of delinquencies In the first county over half the cases were known to the court because of dependency or neglect The total population in the second county was somewhat less than that of the first county but the county seat had 3000 more inhabitants than that of the first county and thus the child problem would undoubtedly be as great
It is safe to say on the basis of the findings in regard to the failure to deal with existing delinquency where no special court facilities were available that not onehalf ofthe children in Georgia are receiving the benefits intended by the law which provides that Juvenile Court procedure should be available to every child in the State
Probation One of the most important of the specific provisions of the Georgia law directs that a paid probation officer be appointed in every county in the State This is a fundamental point in the organization of juvenile court work but the report shows that of the 30 counties only 4 had full time paid probation officers Ten other counties had some probation service available 7 with part time and 3 with definite volunteer service Of the seven giving part time to the juvenile probation three devoted their entire time to social work one being also adult probation officer for the city and superior courts and two were employed by the counties to do all the county welfare work Two male officers were engaged in private law practise one was chief of police Definite volunteer probation service was used by the juvenile courts in 3 counties
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According to the report the most prevalent method of bringing children to the attention of the court was through arrest by the police or the sheriff All but three of the counties in fact reported that children were formally arrested and this happened even in the counties where there were juvenile courts with probation service Four counties however reported this procedure was seldom used In three counties definite statement was made that children were taken to the police station or the county jail upon arrest
In the majority of counties studied in which a juvenile court had been designated the recognized standards as to privacy and uniformity in the hearing of childrens cases were carried out very acceptably
Detention An unfortunate condition is shown by the study as to the practise in 23 counties of detaining children in the county jails A total of 163 children under 16 years of age were detained in these jails during 1923 Fortyfour of these children were white38 boys and 6 girls 119 were colored112 boys and 7 girls
City jails or lock ups were used for the detention of children under 16 years in twelve county seats Information could be secured from only six counties as to the number of children under 16 detained during 1923 Of the total 148 children 50 were white boys and eight white girls 67 were negro boys and 23 negro girls The periods of detention for the county jail cases were as follows
Less than 1 day 13 12 weeks 28
1 day 11 23 weeks 12
2 days 22 3 weeks to 1 month 6
3 days 20 12 months 11
4 days 19 23 months 4
5 days 11 34 months 1
6 days 4 No record 14
The seriousness of this problem can only be realized when it is known that in most instances children while in jail associated with The adult prisoners resulting in such things as the following In one instance an adult prisoner said of a boy in jail This boy should not be here He will learn more than he ever dreamed of In another instance a 13 year old girl was found in conversation with a woman who had been convicted of killing her illegitimate
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child and in another county a 14 year old girl white confessed to having had immoral relations with a prisoner while detained in jail
The matter of frequency of hearings in childrens cases is exceedingly important However only three of the sixteen juvenile courts that were functioning reported any regularity in the hearings The court in one of the more populous counties held daily hearings but in two counties with equally large populations there were only weekly hearings In other counties it was reported that juvenile cases were heard whenever necessary In counties where there are no juvenile courts the length of time that elapses before a child is brought before the court after apprehension was found to be a most serious matter because of the custom of the Criminal Court of being held only periodically
Cases Against According to the findings of the report prosecu
Adults tions in cases of adults committing crimes
against children were very rare The method of procedure was that of a criminal court with the child being placed on the stand and crossexamined before a court room packed with curious onlookers There was no provision for social investigation in the crimnal courts and practically no steps were taken to safeguard the children involved in these cases The study reports only 44 cases involving 45 children and 46 adults as on the dockets of the courts in the counties covered In 27 of these cases the charge was rape 7 assault with intent to rape 5 seduction 2 incest 1 fornication 1 sodomy and 1 immorality
NonSupport That the small number of nonsupport and desertion cases coming to the attention of the courts is not an indication of a small number of instances of abandonment is a conclusion of the study Rather is this small number due to the fact that the courts under the existing law seem unable to do much toward helping affairs and therefore deserted and destitute families think it useless to make the appeal A total of 96 cases of abandonment are reported Thirtyfive of these resulted in a chain gang sentence or an order to support the family
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Adoptions In considering the matter of adoptions the study shows that the courts are in general not making any special inquiries in regard to matters of interest to the childs welfare Inadequate as information is on this point it would seem that the death of both parents was the occasion for adoption in only a small proportion of cases but that illegitimacy was a very common cause about half of the adoption cases involving children of illegitimate birth The study of adoptions brought out particularly the need for information as to the desirability of allowing the child to be relinquished by its natural parents and the absolute necessity of inquiry into the conditions in the prospective adoptive home Practically no effort according to the study is now expended along these lines Another essential is a trial period in the home before a decree is granted A third essential is state supervision of the adoption to the end that the interests of all parties may be safeguarded
The present child placing law is designed to protect children placed by agencies which are supervised by the state Department as release for adoption by the placing agency is required but the great weakness in the law is that children may be given away promiscuously by parents and with no safeguard as to their adoption
The study indicates but little attention as being paid to the question of proper custody of children in divorce and other cases although certain exceptions to this general rule are pointed out
Child The prevalency of child marriage is found to be
Marriages due to the ease with which marriage licenses are granted in Georgia and much of the divorce problem and the nonsupport and adoption problems are due to this condition As to illegitimacy it is of special interest to note that of the 80 white mothers for whom illegitimate births were reported 17 were under 16 years of age when the child was born and 27 were between 16 and 18 years of age Thus over onehalf of these mothers were themselves children in need of special protection and such supervision as would make a recurrence of the difficulty less likely The character of the court trials were not such that these young mothers were helped to readjust their lives but on the contrary the cases discovered include some in which it was
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obviously to the serious disadvantage of the young girl to have been through the experience of a public trial The need of revision of the law for the protection of mother and child was obvious
According to the findings the problem of children in almshouses is apparently not very considerable in Georgia
Recommendations The report urges that consideration be given to the relation of the juvenile courts to the broad field of court actions involving the welfare of children including in addition to juvenile and delinquency cases the following Determination of custody adoptions adults committing offenses against children or contributing to dependency or delinquency nonsupport or desertion by parents of minor children determination of paternity and the support of children born out of wedlock and regulation of marriages of children
DIVISION OF ADULT DELINQUENCY
Hugh N Fuller Director
Jails as Georgia is very fortunate in that the county jails
Detention maintained by the 160 counties throughout the
Prisons State are detention prisons and not places of punishment In this respect Georgia is among the most progressive states of the Union This situation means that while defendants are confined to our county jails in idleness while awaiting trial yet after trial and conviction they are ordinarily sent either to the State Prison Farm at Milledgeville or to one of the couny chaingangs for labor on the public works of the county Under the law misdemeanants may be sentenced to confinement in the jail but investigation by the Department during the past year shows that the courts seldom exercise this power but instead send the convicted prisoner elsewhere to the benefit of both the State and of the prisoner himself There is almost nothing so destructive of morale as confinement in absolute idleness in association with the usual run of prisoners found in our county jails Progressive thought throughout the country abhors this condition and our State is to be congratulated upon the fact that it confines its unfortunates in the jail only in default of bond and even then only until the case can be reached by the courts
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Jail Since under our system the prisoner in the jail is
Standard legally an innocent person until his conviction by the court he is entitled to decent humane treatment He has the right to expect that the races and the sexes will be separated If he is not a hardened and repeated offender he has the right to expect that he will not be thrown into close contact with that class of prisoners at least until he has had opportunity to demonstrate his innocence The prisoner is entitled to have such a place of confinement as will safeguard his health and his morals The jail should be adequately heated it should be reasonable light and it goes without saying it should be strong enough to withstand attacks from without and attempts to escape from within The prisoner has the right to expect a sufficiency of plain clean wholesome food He is entitled to clean bedding and a clean place to sleep together with the opportunity to keep himself clean in person Morover he is entitled to expect that the authorities will enforce cleanliness of person upon the other prisoners with whom he is confined if these prisoners will not or do not voluntarily keep themselves clean
These matters may appear petty to any one who has never studied the jails When ones neighbor lives in the next house fifty feet or fifty yards or fifty rods away the matter of this neighbors personal cleanliness may be of comparatively minor importance but when four neighbors are sleeping together in a steel cell seven feet square and eight feet high this petty matter becomes a thing of prime importance It is because of this olose contact between individuals that jails are so difficult to keep clean and habitable and it is this fact which makes rigid discipline by the jail authorities so highly necessary
Jail Inspec Recognizing these facts as true the lawmakers of tion Service our State gave to this Department the authority to go into the jails and oversee their conduct comparing the various standards in force throughout Georgia and throughout the country and making report of the conditions as found to the persons responsible for them The wisdom of this action has been manifest The jails of Georgia in 1924 are better than they were in 1920 Improvement there has certainly been but it has been so gradual that there has been little of the sensational or startling about it Georgia jails are still far from satis
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factory as a whole and some of the jails are still entirely unfit for the confinement of prisoners when measured by the standards outlined above The policy of the Department has always been that prisoners should not be pampered and that the jail management should be strict first and kindly afterwards but it has always maintained that the jails as an absolute minimum should be safe clean reasonably healthful places of temporary detention
Inspection Since nearly every one of out 160 counties has a Committees Jail it has been impossible for the one jail inspector to go into each of these jails every year As many jails have been personally inspected by the jail inspector as the appropriation and the time available would permit The selection of the particular counties for this visitation is governed by the facts and circumstances at the time On a continuation of the plan as outlined last year most of the inspections of the Department have been made by local committees of public spirited citizens who serve the State without compensation and whose only reward is the knowledge that they are doing something for the unfortunate people of their communities This system was provided for by the laws creating the Department of Public Welfare and in practise has operated with much success Since January 1st of the present year 81 jails have been visited by these local committees acting under the instruction of the Department and these committees have thoroughly studied the particular conditions existing in their local jails
Method of The visits to the jail of these local committees
Inspection have not been mere haphazard calls Each com
mittee was furnished by the Department with a set of standards by which they could measure their jail These standards were studied by the committees in advance of their visits and when the visits were made they were without warning to the authorities so that the jails were seen as they actually are in their usual operation The visits of inspection covered the jails from roof to cellar and comprehensive reports on every feature of the jails and their population were prepared by the committees and sent to the Department Founded on these reports and the other information collected in the files of the Department reports were made by the committees and the Department to the county commissioners and the sheriffs as to the condition of the jails
28
and covering any needed suggestions as to their betterment Copies of these reports were furnished the several grand juries and not infrequently the jail committees of the various grand juries have adopted the report of the Department as their own findings
Public All of this work tends to center the interest of the
Interest community upon the jail and its inmates Just as the good people of a county are interested in the roads of the county in its court house and in the other things owned by the county or operated by it so should these good citizens be interested in the jail owned and operated by the county and in the people who are in that jail why they are there what happens to them while they are there and what finally becomes of them The operation of the jail committees has done more than any other one thing to awaken this interest This was evidenced during the late winter and early spring of the present year by the action of one of the great Protestant Churches in studying the jails over a period of weeks and seeking to find out the very things listed above The State Federation of Womens Clubs too have been highly interested in the jail situation and through a system of close cooperation the Federation expects to continue to be of great aid to the Department The prisoners in the jail being out of sight are likely to be out of mind unless there is some agency whose duty it is to bear them in mind and to care for their general wellbeing
Tangible Im While this great intangible improvement has proyements been taking place there have been no small number of concrete improvements made in the jail plants throughout the State and in the manner in which the various county jails are operated A few of these are enumerated below in order to show just what some of the counties are doing
Additional hammocks installed Interior of cells scoured every day and were clean when inspected Prisoners clothing is treated to destroy vermin Prisoners having contagious or infectious diseases are isolated
The metal parts of the cages have been painted and prisoners having tuberculosis or infectious diseases are isolated
There are electric lights in each prisoners exercise corridor
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Flush toilets The floors are swept every day Drinking cups are provided
Windows and outside doors in jail are being screened Bath towels are furnished to each prisoner
New mattresses have been provided
Mattresses are covered with removable slips
Jailers corridor and outside walls have been whitewashed
Metal parts of cell cages have been painted Prisoners are required to bathe
Metal parts of cell cages painted cell compartment walls and ceilings painted
These are only samples from an extensive list of the sort of tangible improvements which have been obtained
The Department has approved plans for a new jail in Bibb County A new jail in Houston County is nearing completion Muscogee County has recently asked the advice of the Department upon quite a large project for that county The commissioners have called in the Department for aid and suggestions on the jail problems of Cobb County and Spalding County has made certain improvements All in all the Department has been very gratified that the county authorities have seemed inclined to make use of the resources of the Department The Department is here for such service and is always more than ready to cooperate with the counties whenever needed
Analysis of Since our last annual report the Department has 95 Jails distributed An Analysis of NinetyFive Georgia County Jails which was in preparation last year This analysis is a pamphlet of about 125 pages covering in detail the actual condition of these ninetyfive jails as reported by the county authorities and as shown by the Departmental inspections The conditions revealed by this analysis are not such as to be a cause of pride to the State of Georgia The Analysis undoubtedly shows that the county jails as a whole are inadequately equipped to handle the more than 50000 people committed to them each year There are moreoever no legal standards or enforcing machinery and so it is no wonder that the study shows neglect of humane
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provisions for the prisoners needs The inevitable conclusion of the whole matter is that reasonable standards and a method of their enforcement ought to be provided by law
The publication of this jail analysis created considerable interest and comment throughout the State and many requests for copies have reached the Department not only from Georgia citizens but from interested persons and organizations throughout the United States
Adult In connection with the statistical survey made dur
Probation ing the past year a matter which is discussed below
the Department has made a brief study of adult probation in the Fulton County Courts covering one year 1921 It was found that of the defendants charged with crime in that year 3980 were given a misdemeanor sentence of imprisonment or imprisonment with the option of a fine Of these 3980 defendants 346 were placed on probation this is 87 per cent of the total Of these 346 cases of probation 176 per cent were failures It was found that probation was largely used in cases of abandonment of child It was also often used in cases of drawing checks without funds vagrancy forgery and cheating and swindling It was little used in cases of assault and battery carrying concealed weapons including carrying a pistol without a license and gaming
There has been some discussion throughout the State about some form of institution to receive young adult offenders who it is felt ought not to be sent to the penitentiary The Department is in cordial sympathy with such an idea but judging from the good success obtained by probation as shown by the figures quoted it appears that a more general use of probation for young offenders under strict supervision would prove a step in the right direction and a procedure which might be more widely invoked than at present before the institution is resorted to The number of counties now having paid probation officers and the use of the probation law by which the young offender would be kept out of an institution is still almost negligible The practise which has grown up in some counties of using the court officials as probation officers is usually unsatisfactory The court officials usually have an abundance of work without carrying this additional burden and
31
often they are not particularly suited to probation work either by personality or previous training The use of trained paid probation officers is recommended
Program for No radical changes are contemplated in the work 19241925 of the Department as to adult delinquency for the year 1925 It is expected that if adequate transportation can be provided that closer contact will be maintained between the Department and the local jail committees and that this may make possible the inspection of somewhat more jails by members of the Department staff It is hoped too that it will be possible to continue to some extent the getting of statistical information covering the treatment of delinquents in the Courts
Crime Within the past few years the cry of Crime Wave
Statistics has gone up from almost every quarter Often attempts have been made to set out in various detail certain statistics to prove some particular theory as to the alleged increase of crime in a given locality These attempts to quote accurate or semiaccurate statistics have been abortive for the very simple reason that there have been no such statistics
Science and An examination of the history of all battles waged Disease against any social meance shows that before it
can be put down there must first be at least an intelligent understanding of the extent and scope of that menace By extent is meant how prevalent it is and by scope what part of society is affected by it We speak of birth rates and death rates with considerable certainty because there has been provided a way in almost every state and the United States of ascertaining the number of births and deaths We know to the person how many die of typhoid malaria small pox measles diphtheria tuberculosis and many other diseases It was upon the basis of such accurate statistical knowledge that men of science have been inspired to spend years in laboratories in order to combat and forestall the ravages of disease Crime with all of its ravages continues unabated largely for the lack of the same sort of intelligent understanding of the extent and scope of it as the beginning point from which to put it down
Science and In the report of the Department last year it was Crime said While the law provides that the Depart
ment shall collect compile and publish statistics and information regarding the delinquent classes both in and out of institutions within the State the Department has not been able heretofore to comply with this part of the law because of insufficient appropriation The Department has been at work for some time in the effort to have a Crime Statistics Survey made of the state through the aid of the American Institute of Criminal Law and Criminology which now bids fair to succeed at an early date Such a survey would be financed by the Institute and made by the Department
The Department is now happy to report that through the generosity of the American Institute of Criminal Law and Criminology in granting the sum of 2500 for this purpose this survey has now been made and the report covering the nine months study is now in press The study covered 12062 criminal court records in five Georgia counties these records representing the criminal cases begun in the superior and city courts of Bibb Lowndes Randolph and Tift counties durng 1916 and 1921 and those begun in the superior and city court of Fulton county during the year 1921 These counties contain oneeighth of the total population of the State of Georgia
The Use of In the conduct of the survey and the production of
Crime the report the Department hopes it has made a
Statistics significant contribution toward the better understanding of crime and its treatment by the courts The intrinsic value of the report in all probability does not rest in a demand for it as popular reading matter Perhaps the highest purpose and broadest usefulness of the report will be realized only by its searching inferential study and consideration by the Governor of the State the General Assembly Criminal Court Judges city and State bar associations lawyers individually and in smaller groups thoughtful laymen interested in the welfare of their less fortunate neighbors social workers doctors psychiatrists and last but not least by the citizens of the five counties included in the survey
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Statistics Before the actual work on the survey was started
and Justice it was hoped that much helpful social history and
information regarding the thousand of defendants could be obtained from the criminal court records When it was ascertained that 28 out of every one thousand persons in the five counties included in the survey would be taken into consideration the Department being interested more largely in the human aspects of the task before it wished to present such facts for consideration of this most important element of the crime problem in Georgia Laws defective in failing to prescribe the proper social content of criminal court records completely thwarted the survey in this respect How many of these 12000 odd human beings appearing before the bar of justice were youths between the ages of 16 and 21 How many were bread winners of families containing dependent wives and children How many were first offenders How many were confirmed criminals recidivists seered with the brand of prison life How many were negroes How many were aged persons What of the physical and mental condition of all of them These and many other of the most necessary elements were missing from the court records that were briefed Even sex had to be determined by the defendants given names which necessarily threw a small number into an undetermined classification
It is not that the criminal courts of Georgia lack a real human interest in the thousands of men women and children passing before them and from that standpoint fail to keep adequate court records containing vital social history and something of the human frailties of these wards of society It is only that those responsible for making the laws governing these matters and those who must enforce the laws need to be aroused to an understanding that without sufficient data of this kind respecting the criminal classes we can neither study these classes in the light of their handicaps nor justly treat them Individuals differ the causes of crime differ the treatment of delinquency should differ True justice cannot be standardized or stereotyped
Some Findings The statistics gathered in the survey and the of Fact facts discovered are entirely too voluminous
for reproduction here but the following are some of the facts indicated by the report on the survey
34
1 Between 1916 and 1921 crime increased seven times as fast as population
2 In the city courts pleas of guilty have greatly increased and convictions have decreased
3 Nol prosses have greatly increased in the superior courts and have maintained a high level in the city courts
4 Penalties for crime have increased in severity in the superior courts and have decreased in the city courts
5 The proportion of straight prison sentences has decreased
6 Of defendents charged with crime in 1921 38 per cent plead guilty 15 per cent were convicted 9 per cent were acquitted 21 per cent were nol pressed 3 per cent were otherwise disposed of and 14 per cent of the cases were still pending 18 months after filing
7 A speedy trial under 3 months increases the chances of punishment more than 125 per cent over the chances if the trial is long delayed over 9 months
8 Gaming prohibition violations simple larcenies and carryconcealed weapons are the most frequent crimes
9 There is an almost total lack of social data regarding persons accused of crime
Conclusions James Bronson Reynolds former president of the American Institute of Criminal Law and Criminology and one of the most learned criminologists of his time stated on one occasion How long will it be before out National Government assumes the task now borne by practically all civilized governments of collecting and publishing annually statistics of crime and court and prison records The answer to that question rests with the people and with Congress Georgia will be remiss if she does not take cognizance of her duty as a state and through the General Assembly enact a law to provide the following
a Establishment of a Bureau of Crime Statistics in some State department as far removed from political influence as possible charged with the duty of collecting compiling and publishing helpful information pertaining to crime the courts and the criminal
35
b Uniform court jail and prison records the form of which shall be prescribed by law with the provision for regular reports by the proper court jail and prison officials to the Bureau of Crime Statistics
c Adequate appropriation for the operation of such a Bureau and proper enforcement of the law
36
FINANCIAL REPORT
Balance sheet for year ending December 31 1923
Balance on hand January 1 1923 117815
Received from State Appropriation 1468090
Received from sale juvenile court
blanks 996
Received from Miscellaneous Sources 100 1587001
EXPENSES
Multigraphing 11926
Postage
Traveling Expenses
Educational literature
Telephone and Telegraph
Supplies
Special study by Child Welfare League of America
Miscellaneous
Acting Secretary
One State Agent
One State Agent
One State Agent Part
time
One Stenographer
One Stenographer
One Stenographer Part timer
Balance on Hand Dec 31 1923
32100 189210
9686
19431
33352
50000 20769
272076
284216
209166
142500
135625
96250
60220 1566527
204 74 1587001
37
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fg Report of Fifth Years Work
ail P June 1 1925
H STATE DEPARTMENT OF PUBLIC
WELFARE
general library
3 p University of Georgia
P ATHENS GEORGIA
gr Rhoda Kaufman Secretary
Sr

STATE DEPARTMENT OF PUBLIC WELFARE
MEMBERS OF THE BOARD
John G Harrison Chairman Macon
Mrs John L Cabell Savannah
G A H Harris Jr
J S Kennedy Atlanta
Mrs E Suarez Cuthbert
STAFF
Rhoda Kaufman Secretary
Hugh N Fuller
Mary C McLeod
Harold J Matthews
Ruth A Brown
Office at
STATE CAPITOL ATLANTA
FOOTPRINTS
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Report of Fifth Years Work
June 1 1925
STATE DEPARTMENT OF PUBLIC WELFARE
Rhoda Kaufman Secretary
Uh

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CONTENTS
Page
General Report 1
Division of County Organization 6
Division of Childrens Institution and Child Placing 20
Division of Adult Delinquency 36
Bibliography on Social WorkI 47
General Report
To
HON CLIFFORD WALTER GQVERNQR and MEMBERS OF THE GENERAL ASSEMBLY
Gentlemen
The State Board of Public Welfare herewith submits a report of its activities during the fifth year of its existence When the board was created in 1919 the duty was placed upon it to visit inspect and examine once a year or oftener county jails the state county municipal and private institutions and organizations which are jf an eleemosynary charitable correctional or reformatory character or which are for the care custody or training of the orphaned defective dependent delinquent or criminal classes With the view of increasing the efficiency of public and private officials and bringing institutions up to a high and modem standard it is required to distribute among such officials literature bearing upon subjects embraced under this Act
It will be recalled that shortly after the creation of the Board it was necessary fqr several instances of cruelty to be corrected and even during the past year cases of serious neglect of little children have been brought to the attention of the Board These cases have involved charges against institutions which are being operated for profit and incidentally have brought to our attention a defect in our law The attorneygeneral has ruled that child caring institutions which are commercial do not come under our jurisdiction and we have brought the need of amending the law to the attention of the Childrens Code Commission The child is the ward of the State and should have its protection under all circumstances and those who mistreat little ones whom they are paid to care for should certainly come under the strictest supervision of the State
However while such cases show that unremitting vigilance is still necessary Georgia has gone very far since the days when the Board was first created While it was originally thought of as an agency with police power the Department of Public Welfare is more and more turning its activities from the inspectional phase of the work to that of educational and advisory service whereby institutions agencies and communities may learn year
1
by year how to give better cajre to the handicapped with whose care they are changed It is with gratification that we are able to report on the part of these institutions agencies and communities a growing consciousness of the value of the assistance that they may secure from the Department
The Board believes that the day is coming when it will be generally realized that to guide the footsteps of public charges away from permanent social disability from moral and social death is as much of a civic and moral obligation as guiding the footsteps of the man woman or child who is walking unknowingly toward a steep precipice and physical death or serious physical injury The Department is trying to hasten the day when the idea of maintaining ambulances to carry away the physically handicapped who are allowed to fall over the precipice will fill us with no more horror than a system of maintaining many institutions and community agencies to care for the social wrecks whom we have allowed to become such for lack of guiding their steps in time
In the report which is submitted herewith attempt has been made to show the wastefulness and extravagance in cold dollars and cents of our past social policy By haphazard doling out relief to county pauper lists without accompanying it with constructive service Georgia has tended to perpetuate poverty instead of preventing it and the costs have risen higher and higher until now they amount to a halfmillion dollars annually The Department is trying to show how in county after county this mounting figure is the price that is being paid for having failed to guide the footsteps and is trying to show the convincing need of a trained social worker in every county Almshouses have been costing counties 26000 per capita for each inmate totalling a quarter of a million in the past year With the employment of a social worker the average county would need no almshouse and the total saving might easily be computed Counties have been spending hundreds of thousands on jails annually and instead of trying to decrease the cost by decreasing the number for whom they must care in the future they have by permitting promiscuous intermingling of men and women adults and children been making confirmed criminals who will return to the jails to be again cared for and who will return to the courts for new and expensive trials There has been much talk in the State of youthful crime its cost and its
2
increase and the Department is trying to show that the way to save cost in lives and dollars is again by preventionthrough juvenile courts and probation service Each inmate in an institution costs several hundred dollars A probation officer at a salary of 180000 can care for fifty to sity delinquents That same number in an institution would cost 1800000 at least yet the Department has had difficulty in keeping many counties from building reformatories
From the States angle there is even a more practical question of dollars and cents involved for failure of the county or community to properly care for its handicapped citizens means that many of them eventually drift for care into the eleemosynary institutions maintained by the State Theiefore it is of vital importance to the State how the counties are caring for or not caring for their dependent and delinquent Even when the c ounties take their legitimate share of the burdens the State still has much at stake in the type of care which its own institutions give to the wards who eventually reach them How these institutions are fulfilling their function and what can be done to make their service more effective is another question which the following report attempts to answer
It may be asked if the public will ever learn the full significance and the difficulties of the task of guiding the footsteps of the socially handicapped To teach it to do so is one of the responsibilities of the Department of Public Welfare and every opportunity of speaking to civic church and student groups has been eagerly sought by the Department so that our people may be helped to recognize the many phases of the problem and the needs and opportunities for constructive service
Many county commissioners judges and individual citizens are coming to realize the inhumanity and the wastefulness of the old system and are calling on the Department for advice and aid There is a steadily growing consciousness of the need of a more efficient humane and economical policy and definite progress has been made by groups and communities The specific aid which the Department has given in helping them take stock of themselves and work out better plans is reported in the following chapters
The cooperation that we have received from the organized women of the state has been an inspiration Typical of the new attitude of both women and men is the recent action of State
Kiwanis This group of level headed progressive business men have adopted the slogan a social worker in every county in Georgia because they believe that building the future citizen through aid to the underprivileged child is real economy Such action is prophetic of the oncoming day when throughout th state social work will be considered sound business
For the Department to bring the social needs to agencies communities and state on the meager appropriation which it has is of course a matter of utter impossibility The only increase over the small appropriation of 1500000 that the Department has had since it was created five years ago was 500000 in 1923 and this was appropriated to cover the extra duties which the child placing act of 1922 put upon our already overburdened shoulders It is utterly impossible to inspect fifty childrens institutions thirty three adult institutions fourteen agencies five state institutions one hundred fiftysix jails sixtytwo almshouses and go on call to one hundred sixtyone counties for advisory service on juvenile courts and organization problems with our present staff of five The task was colossal when we began work five years ago but as the servipe that the Department can render is better recognized more and more are the calls and demands upon it The appropriation of 3100000 as submitted to the budget committee is imperative and we respectfully submit in the light of the report which follows that the granting of this sum is an investment of a few dollars that will ultimately save the State millions not only in dollars and cents of needlessly expended money but in human lives and souls
The work of the Department has received national recognition in several fields and its service felt beyond the Georgia borders A handbook of standards for children s institutions originally planned as a Georgia handbook will form the basis of a federal handbook for childrens institutions to be published by the Federal Childrens Bureau in the near future The American Institute of Criminal Law and Criminology had the confidence in our work to finance a compilation of crime statistics which we were empowered to collect but for which we had no funds Both the American Social Hygiene Bureau and the Harvard Law School have felt this study to be of such value not only to Georgia but to the country at large that they have offered to
4
bear the expense of printing it Our Division of County Organization by its method of planning for public welfare organization county by county according to the individual countys needs rather than through superimposing any set scheme of organization is doing a piece of work that is being watched by experts interested in this field
In the light of these splendid starts which have been made in the various divisions of its activities we submit the work of the Department to the Legislature for careful consideration and request their earnest study of its needs and the impossibility of future service if its needs are not met by adequate appropria tion
JOHN G HARRISON Chairman MRS JOHN L CABELL
G A H HARRIS Jr
J S KENNEDY
MRS E SUAREZ
RHQDA KAUFMAN Secretary
DIVISION OF COUNTY ORGANIZATION
Harold J Matthews Director
The most significant sign of progress in Georgia is the rapi dity with which a considerable number of the counties are coming to see that the fundamental need in the welfare program of caring for the delinquent and dependent is the organization of county forces under trained leadership for the effective cooperation of all interested groups and the coordination of efforts which have hitherto been dissipated by working blindly and at cross purposes It is the newer spirit abroad in the landthe spirit of applying scientific and business methods to the art of help ing the delinquent and dependent with the realization that the skilled worker is needed in planning the building of lives as wel 1 as in the building of bridges It is a recognition of the moral obligation as well as the good business involved in directing the foot steps of those who are becoming dependent or delinquent into paths that lead from the costliness and waste of dependency and delinquency to the investment returns of constructive citizenship
The footprints of hundreds of mqn women and children now in public and private institutions being cared for at an expense of hundreds of thousands of dollars can be traced back to hundreds of broken families in the individual counties who unfortunately were not given the kind of aid that would have led their footsteps to where they would have become assets to the State instead of liabilities
Nor is the state government together with private state agencies carrying all the burden of these families Thousands of dollars were spent on the men women and children before they reached the state institutions by the county governments in hit or miss fashion through pauper relief that did not relieve and literally hundreds of thousands are still being unsystematically spent by the counties onthe members of these and other families who remain on their hands
Duty of the As the official investigatory and advisory Department agency it is the duty of the State Department of Public Welfare through its Division of County Organization to find how each county is caring for its dependent and to discover if the methods are such as lead toward
6
rehabilitation of the socially handicapped so that they may be returned as productive citizens and whether this is being done in the most economical way possible Where methods are found to be wasteful or inefficient it is the duty of this division to show how the county may organize its forces to do the job as it should be done
County Cost Georgia has 161 counties which spend on out
of Present door relief to dependent families through
System county government approximately 40000000
This amount is usually handed out in pitiful doles in various haphazard unbusinesslike ways to what is known as the pauper list with no facilities for finding out the real needs of those applying for aid
A survey of the state during the past year has shown that although some counties are spending little money most of them spend at least 100000 each annually on the pauper list and many of them spend as much as 600000 The expression of one county commissioner would fit in varying degree nearly every county in the state when he said The delinquent and dependent of our county is the biggest thing we have to deal with We spend from 50000 to 60000 a month on the dependent and disorganized families It increases every month and we are getting nowhere
County People are placed on the list usually by a
Relief petition from family or friends in the neigh
borhood who see that an individual is ill or has some other problem that makes it difficult for him to get along financially The only solution these good people see is either to place the person on the pension list or in the county almshouse They therefore frequently circulate a petition have a large number of voters sign it and it is then presented to the commissioners who in turn place the person on the list or in the county almshouse No study is made of the person or family to see what are the real conditions whether the pension is really needed or whether service instead of the monthly dole could not be given and the person or family put on a selfsupporting basis
7
Waste of In older to show some of the results of the Money present system the Department has made
during the past year an intensive study of the situation in several counties Among the cases in two counties which were carefully studied some very startling things were found One of the recipients of the countys aid was dead and relatives or people living at the old address were getting the money because the county had no method of investigation Another had left the county and was having the check forwarded Many of them were capable of supporting themselves and were making a living or had children well able to care for them Some of them had been on the county list for ten fifteen and twenty years and no one had ever visited them to see whether or not they still needed the aid and what their condition was In one case the Departments agent talked to the pensioner in a room well furnished in nice Windsor furniture She was living with her daughter and soninlaw both of whom were working at well paid positions The pensioner had another manied daughter whose husband was receiving a salary above the average The woman said the pension was given her twenty years ago when her gills were not working or married and their father was bedfast Within two or three years the father died and the girls were supporting theii mother and had been doing so ever since She stated that they had not needed the pension for about fifteen years but thought she would continue taking it to try and save some money After the agent left she got in touch with the County Commissioners and asked to be taken fiom the list that she did not care to receive the pension if they were going to look into the matter This is a good example of what happens when there is no followup work There were several cases very similar to this one There were also some cases of people who needed temporary financial aid and service to help them over a little crisis They were placed on the county pension list at the time and never taken off remaining on for years and years costing the county hundreds of dollars and pauperizing the lives of the recipients Bad business to say the least
Ineffective In one of these counties studied there were
ness of the thirtysix people on the list Every family
System was visited by the Departments agent some
of their relatives and friends were seen and a
8
history written of each family It was discovered that there was no reason whatsoever for twelve of the families being on the list and relief was discontinued by the county as soon as the report was sent in There were fifteen additional families who could easily have been removed from the same countys list if it had been possible to secure for them the services of a welfare worker to solve the problems which were handicapping them Some cases on the list were being woefully neglected because they were in dire need of services of various kinds such as the following examples show
There was one young fellow suffering from inflamatory rheumatism and completely helpless in a filthy bed amid vermin and flies His father had deserted him and refused to help him He was living on a pathetically inadequate monthly dole of 300 and what the neighbors gave him What a pitiful case and what good work could have been done by a trained social worker whose salary could be met by what was wasted on other cases She would have gotten this man into a hospital gotten in touch with his brothers and sisters who did not know of his condition and would soon have had him wefi and cared for by those whose charge he legitimately was This would have been not pnly humane but good business as well
In another county there were eighteen families on the pauper list Seven of them did not need the aid at all and six others could have been removed from the list through the services of a social worker One applicant who was drawing a legular monthly allowance could not be found at all There were four families of the eighteen who needed a great deal more aid than was being given beside the services and supervision of a social worker But the county authorities knew nothing of their pitiful condition
Fortunately the counties are fast beginning to realize the extravagance and inefficiency of the method and as will be shown later in the report several have called on the Department for advice as to how to remedy the situation
County Frequently it was found that when counties do
Almshouse not know what else to do with their poor and disabled they send them to the almshouse or poor farm Our study has shown the following
9
Numbers Counties in Georgia 161
Counties having almshouses 62 Total almshousepopulation 856 Cost Total almshouse maintenance
cost1924 22287011
Average annual per capita
cost26066
These costs do not include property investment and depreciation or hundreds of dollars worth of vegetables meat and milk raised on the farms to feed the inmates and which are seldom taken into consideration in the bookkeeping of the farm activities
Location An examination of the map of the state shows
that almshouses are found in groups there being few instances of isolated ones which means that counties are inclined to do what their neighbors do Most of the almshouses are located in the northern part of the state and about Fulton county with one small group in the southern part of the state The fact that the weather is colder in the northern part of the state may have something to do with the larger number located there yet the extreme northern tier of counties does not
have almshouses
Inmates Number Counties
None 3
Less than 5 19
Between 5 and 10 19
Bet ween 10 and 2012
Between 20 and 35 6
If we could judge then by the actual use only six or seven of the counties including the three large city counties not in the above list really have need of an institution for the care of their dependent persons
Almshouse a That the average county uses an almshouse
Stereotyped when it does not know the better way tp solve
Remedy its dependency problems is shown by some
significant comparisons Forty seven of the 59 rural counties that have almshouses are below 30000 in popula
19
tion yet Colquitt county with a population of about 30000 discontinued its poor faim when a social worker got on the job and found better and lees expensive methods of caring for each inmate of the almshouse which the county had maintained for years
Walker county with a population of only about 24000 has no social worker and had 35 inmates in its almshouse on the date of inspection Apparently in this county the temptation to use the excellent building provided overcame any attempts to try out the possibilities of providing more humane and economical care Muscogee on the other hand with a population of more than
44000 almost twice as large as Walker and owning also a good almshouse had when visited only 33 inmates because of good social work Other comparisons might be made but it is evident that the size of the county has little bearing upon the almshouse situation in the state It is rather a matter of organization and method
Type of Care Moreover the type of care given in all but four or five of the almshouses in the state is far from satisfactory Most of those in rural counties are inaccessible to the community and to sanitary facilities usually illkept old frame buildings often vermin ridden heated by grates which are always a menace to the aged without adequate health service and most tragic of all nqt taking into account the social needs of those who apply Yet for this unsatisfactory care these age worn institutions are costing the 62 counties nearly a quarter of a million dollars
Typical The following typical stories show the inhu
Stories manity and the bad business of our present
system One almshouse held 17 people only 2 of whom were inmates One old old man was found who was put there when he was young because his eyes were bad He s now totally blind and has been a charge on the county all these onely years One man who was blind from cataract was found by the Department in an almshouse where he would apparently have stayed until he died had we not called the attention of the coun ty commissioners to the remedial nature of his trouble They vot ed 15000 for an operation which cured him
11
The actual Studies of the almshouse inmates have revealed
Needs that they present the same problem as the
people receiving county relief but with one
difference namely that among the almshouse population are
found many more of the chronically sick the blind the disabled
the infirm and helpless aged In fact the kind of institution a
county needs for these problems is a hospital for the incurabl e
the infirm and the aged All the others can and should be care d
for in their own homes or maintained in the homes of other people
in the community with county relief administered by a trained
ocial worker s
With the latter it is possible to provide humane care for the sick or home life for the able bodied which means a much happier existence than the institution for the beneficiaiy while less expensive for the county It is her job as already set forth to study the individual and family problems make selfsupporting those who can be made so and see that the failing aged are humanely cared for through adequate relief provision
Moreover one of the main jobs of the social worker is to prevent people from needing even hospital care as she can do in many cases by discovering health problems in time to prevent chronic conditions and long months and years of care at the countys expense A large amount of dependency for example is due to disease and cooperation with health and educational facilities in the community will do much to prevent the making of chronic pauperized beggars who have become a life burden on so many counties under the old system
Several counties have been seriously considering the problems involved and the need of a change of system to include a social worker and the extent to which they themselves have been dissatisfied with the almshouse as a solution is indicated by the fact that1 in the past couple of years eight or nine have been discontinued Two or three are now standing empty and besides the case cf Colquitt cited above another county which has only two inmates in its almshouse costing at the rate of 5000 each per month is seriously considering discontinuing the almshouse on the basis of the facts that the Department has put before them
While it is to be deplored that Georgia is spending a quarter of a million on almshouses nevertheless we are fortunate in
12
having fewer of these institutions in proportion to the number of counties than most states Moreover as pointed out in the above paragraph many communities may soon be expected to follow the constructive example of Colquitt
Legal Provis Next in importance to the countys problem of ions for Juve dependency is its juvenile delinquency The nile Courts law of Georgia is mandatory in its provision for a juvenile court in every county Courts of three classes are provided for as follows
1 Special judge mandatorycounties 60000 and over
2 Special judges optional that is subject to recommendation of two grand juriescounties 35000 to 60000
3 Designated judges mandatorycounties under 35000 Any court of record usually the ordinary can be designated Unfortunately the present law does not permit a county of this class to have a special paid judge Only recently a live county wished to make such provision for its children but could not legally do so
Possibility There are many other defects in the existing law of revision of which the Childrens Code Commission has law carefully studied and revised There is urgent
need for better protection of Georgias children through a law better adapted to present conditions and such a law will be introduced by the Commission at the coming legislature
Existing Juve Special Courts paid judges county 60000 nile Courts and over and Probation Officers
Counties
Fulton
Bibb
Chatham
Richmond
Probation officers White Colored 3 0
1 0
2 1
2 0
Designated Courts with Probation officers
1 Colquitt 4 Glynn 7 Stephens
2 Floyd 5 Muscogee 8 Wayne
3 Grady 6 Lowndes 9 Thomas
Designated Courts with no Probation officer 97
Help for Frequently we have found that the judge who
New Judges is designated is a busy city court judge or an ordinary who has had no experience along this line and since the law provides no way of paying them they are hesitant about taking on the new duties However the Department has in several instances called their attention to the provision in the law regarding the possibility of appointing advisory boards of citizens whom they can call in to confer with them and help make decisions on the individual cases and also thp possibility of using members of such advisory board as volunteer probation officers Some judges have been fearful of appointing probation officers lest it increase their work and attempt has been made to show these how exactly the opposite is true
Need of Pro The Pobation Officer is the eye and the ear of bation officers the court It is his business to make all investigations of juvenile cases before they come to the court for hearing to find out the family conditions which have caused the child to be in a state of delinquency dependency or neglect and make recommendations to the court on the basis of his study of the child and his home The judge cannot act as judge and probation officer too and after the judge makes the decision on the basis of the probation officers social investigation it is then the duty of the probation officer to carry out the plan of treatment whether it be a change of enviroment placement in another hqme than his own school attendance employment wholesome recreation an adjustment within the home or teaching the parents their responsibility to the child and interpreting him to them There is of course the need of thorough physical examination to find out to what extent physical abnormalities are affecting the childs conduct and there is need of the mental test and personality study which is lacking in our
H
Georgia communities Often the probation officer is a healer of homes and an interpreter of personalities in addition to the more simple duties involved in the matter of investigation difficult as that is Through insight into the underlying difficulties the probation officer labors to remove the causes of delinquency usually centered in the home and the community
The above statement of the job of the probation officer indicates clearly that he is primarily a family service worker and should add an awareness to all the forces in the community which make for both good and evil He or she must understand child life and the effect of the various forces of home and school and community upon it Not a job for a blunderer or an unskilled workman It is this idea of the possibilities of the task which the Department has been attempting to bring home to the ipdividual counties and to show them how even the smallest county really has enough neglected and truant children to more than keep one person busy
Stephens county though only 12000 in population has realized this and here as well as in Glynn Colquitt and Thomas there is a worker who does the probation and school attendance work Dougherty has just voted to employ a juvenile court probation officer the condition on which the vote was made being that the worker must be trained in social service This is a real recognition by county authorities not only of an unmet need but a recognition that the need can only be met by trained service
Some other There is a state law which requires that each
problems of county have an officer to enforce school at
children tendance Unfortunately this is usually done
in a way that does not always bring good results The school superintendent is sometimes forced to act as attendance officer and already having more duties than he can conveniently care for is not able to give much time to this In some cases the fire chief or county policeman or some old man is given the job and paid from 2500 to 7500 per morith This policy is pursued because the only idea is that of merely going after the child and putting him back in school not realizing that this is just so much wasted effort if the cause of the childs being out of school is not found and removed No untrained person can do this It calls for a trained welfare worker
15
Experience and statistics go to show that children are frequently out of school because of disturbed home conditions School attendance can never be enforced by merely supplying the child with clothing when that excuse happens to be given but by working with the childs family to find the real trouble of which the need of clothing is only a symptom It may be illness on the part of the breadwinner father out of employment disorganization of the family or complete indifference on the part of the parents In other words nonschool attendance is a family problem and the law can be enforced only on a family case work basis The one who enforces the law then should be a trained family welfare worker and may well be the same person who serves as probation officer as is now the case in the counties starred on the list above
A Welfare We see then the importance of trained welfare
Worker the service in a community as the solution of the
Practical communitys social problems in dependency Solution delinquency and nonattendance at school In
the average rural Georgia county one trained welfare worker can handle the work with the countys poor its juvenile court and its school attendance with the assistance of the volunteer help of churches and civic organizations Studies of several counties have shown conclusively that enough money may frequently be saved to the county by the proper investigation of its pauper list to pay the salary of a trained welfare worker particularly if the money now being paid by the county for school attendance work were also paid her The measure of success in the undertaking depends entirely on the training and equipment of the worker
No set plan Georgia has no specific law as have some other for Organiza states by which county organization for welfare tion work is mandatory Neither does the Depart
ment attempt to suggest county organization according to any one stereotyped plan In each county the problem has been approached by the State Department ofPublic Welfare open mindedly with no preconceived ideas Each county situation is considered individually by the Department
16
and on its own merits and advisory service as to organization is rendered in the spirit of cooperation and helpfulness There is no desire to dictate local policies but only a desire to render trained advisory service toward a successful and happy working out of the countywide program
As the official state agency with the duties and responsibilities of developing a state welfare program the Department has tried to study the social problems in each county which present themselves constantly to county officials and private citizens It has tried to see these problems from the standpoint of the county official in his efforts to be systematic and save money from the standpoint of the citizen who would like to see service rendered to unfortunate people and from the standpoint of the individual to whom service is rendered
Legal Bases of While Georgia has no stereotyped plan for Possiblities county oiganization for welfare work neverin County theless as has been pointed out there are three Organization phases of the problem namely the lelief work the juvenile delinquency and the school attendance which logically seem to tie up in the small county The juvenile court law Section 900 of the Code makes legal provision for the appointment of a probation officer The school attendance law makes mandatory provision for attendance officer and a commissioner of the poor may be appointed according to Section 550 On the basis of any one or all of these laws and of the potentialities of the countys private agencies various plans may be worked out
The method of procedure in order to get a welfare worker is through the organization of the forces in the county interested inthe dependents and delinquents into a businesslike plan for efficient service at a minimum cost
Service reji Citizens and county officials are more and more dered counties beginning to realize that from a business standby Depart point an organized county with at least one
ment social worker means system and a big saving of
dollars and cents and as a humanitarian propo17
sition it means effective and intelligent care of tjie unfortunate people the rehabitation of individuals and families Calls from counties for help in organizing for public welfare work have been so numerous that it has been impossible to reach them all as quickly and as often as we should
During the past fiscal year visits were made to thirtythree counties for the purpose of rendering assistance in county organization From a few hours to two months was spent in each county Fiftyfour additional county visits were made making a total of eightyseven to inspect county almshouses or help in some matter pertaining to juvenile court or welfare work of the county private or public
Some typical In one county of about thirtytwo thousand County Or population through the foresight of a few ganizations leaders an organization of the forces interested in public welfare was recently completed and the following plan is being carried out which is a good example of how two forces private and public agencies may come together for the common and extremely important countywide program for public welfare
Associated Charities Chapter American Red Cross Womans Club Parents Teachers Association Business and Professional Womens Club
Superior Court County Commissioners Juvenile Court County School Board City School Board
Each above agency came into the organization pledging its money and moral support for the operation of a county welfare department which should be headed by a social worker trained for the job
This worker will handle all cases on the county pauper list and in the almshouse and all new applicants will be repoited to her before action is taken She will act as probation officer for the Juvenile Court enforce the school attendance law for the school board and handle all cases coming before the Red Cross and Associated Charities and advise with the superior court in any cases where there is a family problem involved or an adult to be placed on probation She will act as advisor to all volunteer social workers or organizations in any of their programs for the community
Through this organization the county will save money therefore they will actually spend less money while paying the salary and expenses of the office than under the previous haphazard um organized method There will be a minimum of duplication of wo rk and a maximum of service rendered the people
In another county larger than the above the county voted recently to pay a trained probation officer who will also do the truancy work and the Red Cross is to pay her traveling expenses
In one county the city government paid the salary of the worker the private agencies and churches supplied the relief and the county government came in with 5000 a month to pay traveling expenses The workers duties were about as they are in the first county discussed Later the school board came in on the scheme so the worker could take charge of the enforcement of the school attendance law There is also a private organization that does seme work and will cooperate with the county worker
Service to Besides calls from county officials and groups Workers for aid in organizing to secure a welfare worker
the Department has received during the past year a continual ly growing number of calls for advice from social workers on the job and has in several instances spent time with them helping them solve some of their problems Educational literature has been distributed and arrangements made for workers to secure further training
Departments The need now is for this development to spread Inblity to to more counties immediately and eventually meet calls on to all A vital opportunity will be lost within present the next two years unless the Department can
budget be provided with funds to extend its service to
the counties which are becoming conscious of their need and to those which are eager to work out a constructive plan but need experienced advice and service from the Department to direct their enthusiastic efforts in accordance with the most effective methods
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DIVISION OF CHILDRENS INSTITUTIONS AND CHILD PLACING
Mary C McLeod Director Ruth A Brown Assistant
The activities of the Division of Children s Institutions and Child Placing may be summarized as follows
1 Visits to childrens institutionsinspection supervision
and advice
Dependents 40
Orphanages 35
White28
Colored 7
Day Nurseries 4
Receiving Home 1
Delinquents 10
State 2
White 1 girls
White and colored 1 boys
County Industrial Farms 5
White 1 beys
Colored 4 3 boys1
girls
Detention Homes3
Defectives 1
StateGeorgia Training School Mental Defectives
TOTAL 51
The childrens institutions are concentrated for the most part in the five largest cities Atlanta Augusta Macon Savannah and Columbus Accordingly in these centers the children s division studies the community program of which the childrens work is a vital part and consequently visits all the institutions and agencies in those centers for both children and adults except almshouses and jails In all then the childrens division has during the past year inspected 84 institutions and has visited 14 agencies These institutions included privately conducted homes for the aged9 emergency homesmen 3 women 7 home for incurables1 colored industrial schools4 Confederate Soldiers Home 1 hospitals for unmanied mothers with babies5 homes
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for girls1 settlements2 home for women and children1 The agencies are fcmily welfare Societies5 Red Cross chapters 1 Salvation army relief agency4 juvenile courts5
Early in 1925 the Department cooperated with the Atlanta Community Chest by making the child welfare study of the agencies caring for white children and financed by the Chest Reports of this study were submitted and after being passed upon by the Chest Committees the matter of recommended changes in program of the agencies will be taken up with the agencies by the Executive Committee of the Chest
2 Reports on the institutions inspected were made on individual institutions to executives and board members or to any interested individual and filed in the records of the Department
3 Statisticsregistration and interpretation
The addition of a registrar to the Departments staff has made it possible to check more accurately than ever before the registration of children admitted to and d scharged from the insitutions On January 1 1925 there were 2195 ch ldren in the institutions for dependents ot which 89 were white and 11 colored
4 ServicesInformationThe Department has innumerable calls for information in connection with institutions and agencies and of a genera nature in connection with child care
Help in securing workers A number of workers have been referred to institutions On special request of two institutions records of workers were referred to them from which they employed their superintendents The Department is continuing to register workers in the institutions and agencies
Referiing of childrens cases to proper agencies and some preliminary work to determine which agencyDozens of cases have been so referred
Check of building plans and suggestions made The Depart ment has been called upon to check and help with the plans for a new cottage of one institution and plans for two new plants in accordance with Section 8 ot the law creating the Department
5 Talks were made to various groups in order to let the state know not only the work of existing agencies but also needs in the childrens field and what the Department is doing to meet them
Child Placing The work of enforcing the child placing law includes the following
1 Study of applications and recommendation for license
Agencies licensed 9 5 renewals
Pending3
2 Educational work including talks information conferences on cases which come up for adjustment with reference to the enforcement of the law
Georgia Childrens During the past five years the Depart Home Society ment has been working for satisfactory
conditions within this Society and last year a trained case supervisor was secured by the Society who however left the middip of June On the resignation of the Superintendent in December 1924 the directors went to work t o secure a trained executive at qnce Due to the closing of the Southern Division office of the American Red Cross it was possible for them to secure its Manager Mr Joseph Logan as Executive Secretary to take charge March 1 It was most fortunate that Mr Logan was available at this time for it places the Society under the direction of one of the ablest executives and social workers in the south Late in April a trained childrens worker took charge of the case supervision
It has been necessary to reorganize the Society as well as to finance it as there was a maintenance debt of nearly 900000 to wipe out beside the necessity of securing funds for current expenses
Already however the improvements in the Society in the short time of reorganization have meant that two family agencies have been willing to withdraw requests for renewal of childplac ing licenses because they felt that the Society could now handle the work in their community
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This Society is the one agency in Georgia organized especially to do child placing and its failure to function properly has seriously handicapped the childrens program of the state but now that it has already begun to work in accordance with modern constructive child placing methods it is going to be possible to count on it for its large and vital share in the childrens program
Direction of The footprints in the childrens field very
Footprints clearly indicate that the institutions and agen
cies have been traveling in the way of progress during the past five years One of the most hopeful signs is that the agencies in the various fields of child care in Georgia as elsewhere in the United States are walking closer and closer together There is coming to be a better understanding on the part of all the agencies that the family agency the institution the child placing or other case working agency all have their place in the program and that the job of each is to analyze its own program and study the present social needs in order to evaluate more accurately its own program in the light of present conditions More and more they are coming also to realize that all social agencies must redefine their programs to meet the changing conditions of social life and that many of the old methods must be displaced by new ones adapted to the present demands
Social Case Worker This adaption of program to modern needs for Institutions involves a gradual process of change Family Preservation The footprints indicate a gradual turning from wornout paths to fields untrod in the history of child care in Georgia The main tendency is toward the case worker or field worker in connection with institutions Last year the Department reported the employment of a welfare worker by the Masonic Lodge of Georgia a man who is a combined educational worker and welfare director part of whose job is to interpret to the local lodges the social needs in connection with the Masonic Home
The Tuttle Newton Home Augusta has for the past five years been broadening its program First it included child placing while continuing the care of the children whom the institution had already accepted and pledged to educate The first change
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was the plan of cooperation with the Georgia Childrens Home Society and the acceptance of children for adoption placements A local branch of the Society was started at Augusta and gradually the adoption placement service has been broadening into a childrens case work program and for almost two years has included some aid for children remaining with their mothers instead of placement in the institution or foster home In April of this year this service had broadened to include the care of thirty children with their mothers in their own homes The institution has come to fe 1 that its particular field of usefulness lies in childrens case work apart from the institutional feature and therefore as the children still under institutional care have been graduating the population has been reduced from 66 in 1920 to 12 at the present time
On February 1 1925 the Board of Directors of the Hebrew Orphans Home at their annual meeting voted to employ a social case worker to have charge of admission applications to the He me aftercare work with children demitted either to their own home to relatives to work or to private homes and to supervise the subsidized homes and make all recommendations in connection with the maintaining of children in their own homes The mothers subsidy plan which was adopted by this institution fifteen years ago has been carried on until now through local committees of the board of trustees The chairman of their subsidy committee strongly urged the employment of this case worker as her experience in working with the homes had proved to her the need of a worker trained in the delicate job of dealing with human relationships Late in 1924 this same Board voted to adopt also a plan for aid of disabled fathers or relatives The success of this plan however depends wholly on a social worker and cannot be safely undertaken without such skilled service
Other progressive institutional superintendents particularly those in two of our largest institutions are interested in having field workers and in order to show this need to their Boards are taking their time in addition to their executive work to investigate some of their cases We feel sure that before very long Georgia will have several institutions with a trained worker One of our smaller institutions with progressive policies has under consideration right now the employment of a worker jointly with some
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other institutions or the use of local childrens agencies with payment for service rendered
During 1924 five institutions the combined capacity of which is about 700 had over 500 applicants which they could not admit for lack of room although many of these undoubtedly needed care in the institutions Meanwhile the institutions are crowded with children who might be kept in their own homes if there were social workers available to work out plans thus enabling the institutions to enlarge their service to dependent children Several of the institutions make sufficient inquiry in connection with all applications which they cannot accept to be able to make a helpful suggestion as to what might be done in each case A social worker connected with the institution would perform a very important service in working out a constructive plan for each child who cannot be admitted or to see that the responsibility is placed where it belongs if it is a community problem
Local people are beginning to discover and become conscious of their social problems and this is doubtless the main reason institutions and agencies have been swamped with requests for help The sense of local responsibility however has developed less rapidly than the consciousness of the problems which have recently obtruded themselves Compulsory educational laws the closer contracts of community life and other forces have brought the difficulties to light Now they need to learn how to meet them
Place of Mothers Because so many children are turned Aid in the Program away from our institutions some people suggest new institutions Meanwhile a little over 30 of the children in the institutions each year have widowed mothers and are therefore potentially aid eases Even allowing for the unfitness of some of these mothers if most of this 30 could be cared for in their own homes the institutions could accommodate most of the children who need their care but who cannot now be admitted The economical as well as the humane procedure would be to relieve the institutions of this 30 by caring for these children in their own homes when that is possible thus leaving room for those who need admission Moreover this 30 can be given home care at half the cost to the conti ibuting public
25
The Federal Childrens Bureau published in 1923 a study of mothers aid in 9 counties in various parts of the United States some rural and some urban shows the average cost of care per child to be 17434 The average cost per white child in an institution in Georgia according to our latest average was 32515 and that is generally considered a low institutional per capita The Hebrew Orphans Home which cares for children according to both methods spends more than twice as much on the child within the walls as on those in their own homes
State Mothers Nothing worth while along the line of Mothers aid can be done by the state government until its financial system shall be revised hence it is apparent that the footprints in this direction will have to be made as in the past they have been made in other types of child care by the church groups Already one denomination has blazed the way in caring for children through home subsidy in connection with their institutional work and it is to be hoped that some of the others will join the progressive procession for it seems to the Department that the demonstration in Georgia of the possibilities of Mothers Aid will be most effectively made in this way
The passing of a state mothers aid law by the legislature without adequate machinery for its administration would mean a waste of money and while the legislature is trying to untangle the states finances on which all plans depend it is to be hoped the organized religious groups will lead the way here as they have in some other states by showing the need and place of mothers aid in a present day program
Although Georgia has no special mothers aid law the county poor law could function as such were the counties conscious of the need Code of Georgia Section 553 provides thatFemales with helpless children are entitled to relief where they are without means or the ability to maintain the family However the money would be wasted without a trained county social worker to administer it to find out whether the family is actually in need to get help from the relatives when possible and to otherwise give adequate relief instead of a dole of from 300 to 500 a month as most counties do now and which has a pauperizing effect
26
Relationship of the Even when social workers shall be County to the Program secured for the institutions they
cannot take the place of local social workers but will have to be concerned with the institutions own problems in the way already indicated If the application for help for a child is made to the county social worker she will after careful investigation of the case work it out as a local family problem if she finds it to be that Otherwise she will refer it to the institution or child placing agency as the need may require On the other hand if the application is made to the institution or the child placing agency these agencies will refer to the county worker those cases which seem to need her services Often they will work out together a case which may need the services of all the workers and at all times there will need to be a very clear understanding among all these agencies of each others place in the program The main thing is that the individual child be considered and a skillful study made of his needs
The community worker has to help in the salvage part of the job as does the institution and agency but has the larger opportunity in the preventive end of the job which is the fundamental one after all Hers is the opportunity to discover the failure of the school and the home to meet the needs of child life in that community and to point out some of the needs so that all the community forces can be brought to bear on correcting the underlying difficulties
It is hers also to educate the community on the best way to meet its individual problems and to face them squarely after it has been shown what they are to seek for causes of the destroyers of child life and to try to get at those causes
Cooperation the modem Thus we see that in the field of child Keynote care with reference to the dependent
child we have really one big job with several approaches and with several types of care provided The institution the child placing agency and the county worker have their place and all need to work closely together to supplement each others work and yet to prevent overlapping of effort
27
Local The road which leads to the childs own family
Responsibility home leads back to the local community where the family is located The situation has been in the past that when a home was broken up by death or illness of one or both paients or by desertion unemployment etc the first thought of the interested neighbois who meant to be kind was to write hurriedly to some institution or child placing agency for help Sometimes in their ignorant enthusiam they wired they would arrive on the next train with a family of children this happened only recently to a Georgia institution or even arrived with the children without giving notice only to find no room for the children It is always hard for local people to understand why the institution or child placing agency cannot expand its walls or its staff to take care of their communitys particular problem which seems so pressing and urgent to them in their helpless eagerness which is usually a genuine wish to help but sometimes merely a desiie to get the credit for relieving the community of a problem they do not know what to do with
A typical case Such a case but with a happier outcome than bundling the children off to the child placing agency or to an institution was one which was reported recently to a local welfare worker who acts in a local county as probation officer welfare worker and school attendance officer A committee of the good neighbors reported to the worker that the father of a certain family of five children had just died after a long illness which had exhausted all the resources of the family of seven living on a small south Georgia farm with the hard farming conditions of three years ago The family was being fed temporarily by these kind neighbors because the family had nothing to eat no clothing had just lost the cow and mule because of debts and there was some mortgage therefore there was nothing to do according to the neighbors but place the children which was the request they made of the social worker
She found the story as described by the neighbors all too true There was nothing left for the lonely and discouraged mother but the legacy of debt on the little farm except her children and yes she would give these up because there was nothing else to do She had worked hard all her life and had had little chance for an education but she wanted the children to be somewhere that
28
they could stay in school and learn to do things All she had ever done all she could do was farm and care for the children Yet the suggestion of the really kind neighbors was to take from her the only two things she could do The worker however added knowledge to kindness She asked the mother if she would like to keep her children if she thought she and the oldest children who were in their early teens could work the place if she could get help for them They talked over plans and the woman wept with joy at the very thought that she might not have to be separated from her children and her little home Everybody had expected she would have to give them up
The worker could not find any relatives able to help the family so she then talked to a local minister who interested his church to give food clothing money for a cow and mule and other necessities The neighbors who had never thought of this kind of plan said they would be glad to help The men got together and plowed the land and planted the crop The woman and the older children cultivated it and all picked the cotton crop and gathered the corn although it was required that the children attend the nearby school regularly
At the end of the third year the mother came to the worker and said If the weather and the boll weevil permit me to make a
good crop this fall I can finish paying off all my debt and then
then I am going to begin to pay you back The self respect of the family had been maintained and their sense of independence along with the development of the family life and the education of the childien through having a part in planning for owning their own farm securing their own education sharing in the give and take of family life the doing for each other
While of course the real value in such service is the maintenance of the family life together with self respect and stimulation of self effort let us look also at the financial angle Had the five children been sent to an institution as the neighbors requested they would have cost between 150000 to 200000 a year for institutional care if satisfactory is necessarily expensive As it was they cost the church and community only about 50000 for the entire outlay together with some personal service and thought and effort
29
Moreover the five places were left in some institution for five other children who had no homes of their own which could be built up and no responsible mother to put her devoted service into their training as a labor of love alone
Community re The footprints then in Georgia are pointed sponsibility the back towards the counties since the homes foundation of are located there This is the heart of the
child care childrens problem If the local communities
were prepared to undertake their share of the task then the state wide agencies and the institutions could be free the better to do their part of the job as they cannot do when they are being swamped with many appeals which should never come to them and burdened with many responsibilities which should never be theirs
Gaps in present There are several gaps in the state childrens program program but these will be filled when their
need is sufficiently recognized We have found that next to the need for community consciousness of local responsibility just referred to the most serious gap in the Georgia program of child care is the inadequate provision for the mentally defective child
The Defective We have not one child guidance clinic or even
Child a mental clinic The small clinic started
about a year ago at Augusta in connection with work of the Georgia Childrens Home Society and Tuttle Newton Home had to be discontinued temporarily on account of the resignation of Dr Preston Superintendent of the Georgia Training School for Mental Defectives who had it in charge If the Community Chest funds can be brought up to meet the budget there is a possibility of a revival of the Macon clinic which was started early in 1924 and to which the National Mental Hygiene Committee gave a six weeks demonstration The mental hygene committee in Savannah is working slowly on the problem there but the failure of the Community Chest there this past Fall has affected the program in that city
30
Georgia Training Capacity60 Population59 Type of School for Mental inmates Trainable mental defectives only Defectives Grace This institution is still struggling along on woo the pitiful appropriation of 2500000 a
year caring for about 60 children with a waiting list of 300 and hundreds more who should be on the list would be if there were any chanpe of getting them admitted On double the appropriation four times as many children could be cared for as per capitas are necessarily higher for a small than for a large number Late in 1924 the dependent children s institutions alone listed 60 children who showed mental abnormalities and needed some kind of special care the tests showing that about half of them should be in Gracewood Yet the school can take only 8 or 10 of these under a special plan With their already heavy burdens the institutions for dependents therefore must struggle with these defectives
Moreover there is no provision whatsoever for epileptics imbeciles and idiots who should be provided for as soon as possible in a colony division of the institution for feebleminded
We have found that the agencies are at times quite desperate as to what to do with serious forms of mental abnormality in which specialized institutional care is urgently needed Failure of the state to provide this care is not only doing an injustice to the unfortunate children who need the training and protection which the state should give but also the state is accumulating problems which it will have to handle later in the form of crime and immorality
Boarding Homos Another gap is the lack of development of boarding homes for children especially fo older children or those presenting special problems who need careful placement under trained supervision When the Georgia Childrens Home Society affects its reorganization and further develops its general case work there is no doubt they will provide this fundamental service also Indeed they have already begun to place some of their own receiving home babies in boarding homes because private homes are better for them
31
The Delinquent The Departments studies prove year by Child year how the delinquent child is the result of
the broken home or family break down of some kind The figures of the Department show the following concerning the children in the institutions for delinquents in Georgia
Orphans 10
Father dead24
Mother dead 20
Foundling Illegitimate or Unknown 10
Total 64
Both parents living 36
Even of this 36 more than half came from homes broken by desertion of parents separationillness immorality etc Therefore less than onefifth of these children came from homes that were not known to be broken The question forces itself upon the attention as to whether these children might have not been saved from delinquency if the counties from which they came had aided the families before the break down This is therefore primarily a community responsibility and most of the local cases of delinquents should and could be worked out through the county juvenile courts by local probation or welfare officers as described under that head in the report in the chapter on County Organization
Some few cannot be helped while in homes which have so long failed with them that they have reached the place where the discipline of a correctional institution seems necessary but there would be many less institutional cases if probation service were organized The amount of institutional care a county demands for its delinquents is a pretty good indication of the quality of its juvenile court probation service for a well functioning juvenile court does not place many children in correctional institutions The institutional care is provided as follows
State Institutions
Georgia Training School for girls Atlanta
Capacity 125
Population 85
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The one great need of this institution is money so that the unused cottage which has been closed for three years for lack of maintenance appropriation should be reopened during the present year Its capacity is about 40 girls
This institution has the beginning of a very good plant two cottages and a receiving cottage However because of lack of funds there is little provision for vocational training which the girls should have to fit them for making a living when discharged A girl with a record of delinquency needs this preparation as one of the resources on which she can depend when she gets out
Parole service also is needed to adjust the girls back into society on their discharge Much of the good work done in a correctional institution may be lost by the girls going out without someone who can follow them from the time of discharge and befriend them in all the vicissitudes of those first years in the community
We have found communities considering starting local instistutions to take their delinquent girls off the street because the local county made inadequate probation provision and the state insufficient institutional provision for its delinquent girls With 161 counties and a present capacity of 85 at the school and that with girls on cots put up in halls at night and taken down in the morning about half of the counties cannot be served at all and none of the counties are served adequately
Care of Colored As the state makes no provision for delinGirls quent colored girls the State Federation of
Colored Womens Clubs have interested themselves in securing some provision Accordingly a committee of the Federation has been working and funds have been secured to buy a piece of land which funds they plan to offer the state at the coming legislative session for the establishment of a training school for colored girls This is a most urgent need which has been felt by all the functioning juvenile courts of the state
Georgia Training Capacity130 Population White63 School for Boys Colored46 Total109
Milledgeville It will be noticed this institution is working below capacity although the juvenile courts are crying for places for boys the reason being lack of appropri
33
ation for equipment and maintenance This institution like tha one for girls needs money but it needs more than that It should be moved from its present location for even with increased appropriation it cannot function properly where it is for the following reasons
1 The land is so poor that the education of the boys especially the vocational is bound to be subordinated to the necessity of trying to cultivate land which is almost useless except for one or two purposes and those of comparatively little value
2 The farm is too large and farming is now almost the only vocational training Boys sent to this institution should when they leave be prepared to do some work which would help them in making a living A good portion of them are city boys and return to the city conditions having learned no trade and almost nothing but farming which they will not use
Even the boys who may return to rural communities are likely to be quite discouraged with the farming they have been taught under such adverse conditions as exist at this school
3 The fact that the Training School was formerly part of the State Penitentiary and located close to the prison at Milledgeville reflects on the boys and removal from the present location would do much to dissociate the two institutions
4 The present plant is unsuited to the purpose A cottage system is needed so the various types of delinquents can be segregated and treatment suited to the needs of the boys the most serious delinquents needing to be taken entirely from others Theie should by all means be a receiving cottage Buildings could be erected which would not be very expensive The present old buildings are in need repairs which would be expensive if they were put into good shape Moreover the building are not planned for their present use
We suggest therefore that steps be taken to secure another location and either sell this land or ee if it might be needed for use by some of the other state institutions at Milledgeville We
suggest that some centrally located community be approached about this and one which is more accessible by railroad than Milledgeville
Another need of the institution is parole service
All three of the above mentioned institutions are to be commended for the good work they are doing in spite of the serious handicap of lack of money and the facilities they need The managements of all three have constructive plans which they are ready to carry out as soon as the money is available
Summary In the childrens field then we find with reference to the dependent child that the footprints aie leading to case work in institution child placing agency county and community so that the individual needs of the child may be met and all the agencies of whatever kind are working with the central idea that the childs greatest need is his own family and home life
With reference to the delinquent and defectve child the urgent need in addition to probation is for adequate provision for the institutions maintained by the state and which should be equipped to give the high type of care necessary to accomplish any lasting results
The whole childrens field is preventive and the citizens of the state are becoming increasingly conscious of that fact but it is important that a greater awareness be developed on the pait of those who are able to see that humane and intelligent care pays from every angle of business and future good However the Department believes that our citizens are interested not so much in the fact that poor work and indifferent caie now is costly later but in the fact that every child born into the lowliest and poorest home in Georgia should have its individual chance as well as the ones who are more fortunate by reason of birth or natural endowment
4MSB
35
DIVISION OP ADULT DELINQUENCY
Hugh N Fuller Director
Not so many years ago the county jail of the usual community was pictured in the public mind as a twostory brick building located somewhere in the shadow of the court house tucked away if possible out of sight and certainly out of mind The good citizen of the community when it was necessary for him to pass the jail went by on the other side of the street Later on in the history of our community development people began to understand that the jail could not correctly be described merely as a brick building with barred windows but that withiD these barred windows there were confined people who were very much like those upon the outside This was a distinct step toward a better understanding of jail problems The jail inspection service during the past year has shown that many Georgia communities are still thinking of their jails merely as twostory brick buildings some have advanced the step and are thinking of these institutions in connection with their inmates
There is a third step upon this path to enlightenment which our communities must take before there is any real probability of solving the many and difficult problems of the county jail People must realize that the county jail is net simply the building and the people in it but that it is the building the people in the building and the community itself The jail is a part of community life just as the court house and the doings in the court house are parts of the community life The jail must be considered just as the prayer meeting at the neighborhood church must be considered in forming an estimate of the community and its problems Just as the corner drug store the moving picture show and the other places in the community contribute their parts to the communitys life and conscience so does the jail Few if any Georgia counties have taken this third step towards an understanding of just why it is the desire of the good people of the community to pass by the jail on the other side of the street
Community Many years ago not so many at that we spelled Footprints jail gaol and pronounced it jail Now we spell it jail and pronounce it as spelled In many places this change in spelling has been about all the change
36
that has taken place On the surface of things we do not now put people in jail foi debt nor do we torture them but in general when they are confined many comities see fit to treat prisoners pretty much as they did decades ago Our doctors dont practice medicine as they used to We conduct our business affairs in more systematic scientific and expeditious ways we dont farm as we once did but many communities have not changed their ideas regarding those of their citizens who must be placed in temporary confinement
We walk across a field a few times and form a path It then becomes easier and easier for us to follow this path as it becomes more and more a beaten trail Scientists tell us that the working of the brain is more or less like this and so if we think a thing through once we are very apt at each succeeding time to think it through in exactly the same way This is certainly true as to our actions regarding our unfortunate delinquents and so it would seem that our thoughts regarding these people have not suffered a great deal of change We have been following the footsteps of past and forgotten generations in the treatment of our criminals
While we have been following in these footstep progress has been made in other lines changes have taken place in the factors causing delinquency and our jail system has been falling further and further behind progressive methods in other lines of endeavor
Extent of The Division of Adult Delinquency since its jail service formation has been trying as best it could to instill into the minds of the various communities a better understanding of the fact that crime is interlocked with lother community affairs that the jail cannot be considered by itself alone and that because we have been doing a thing a ong while does not necessarily mean there can be no improvement in the methods employed It is the belief of those intimately associated with these efforts that some degree of success has accompanied them The law says that among its other activities this Division shall inspect each jail each year and make report upon the condition of the jail to those responsible for it This has been done to the best of the ability of the personnel of the Department Every effort was made to make each inspection and each report based upon it not a stereotyped thing but a real study of the needs of the particular institution in conjunction
37
with the needs and abilities of the entire community Since the last annual report of June 1 1924 121 jails have had this service It will be seen that it has been impossible to cover every jail in the state with the money and the personnel available
Inspection vs In saying so many counties have had jail Service inspection service just that is meant
Service does not mean that a casual visit has been made to the institution with a pencil in one hand and a club in the other In some counties numbers of visits have been made In one jail the inspection has been almost continuous several hundreds of visits having been made during the year at no expense to the State in quite a number of counties the jails have been visited from one to four times a month But inspection is scarcely the proper term to apply to the methods used Criticism has been unsparing when justified but even more has there been an effort upon the part of the Department and its representatives to aid the jail authorities in the actual solution of the serious problems of administration which continually arise in the average jail This attitude and this effort have caused some counties to render thanksto the Department for the aid and information furnished
But the work of the Division has not stopped merely with the jail inspection service itself Much educational literature has been furnished interested citizens in Georgia and elsewhere various addresses have been made to schools college and civic groups and interest upon the part of many good citizens has been enlisted The work of the Division has touched 158 Georgia counties in some manner or form
Casework Too much emphasis cannot be placed upon the with Jails necessity for individual study and treatment of each countys problems Counties differ just as individuals differ A county of 40000 people will have a different situation from one with 15000 people A mountain county will have a different problem from one on the coastal plain The proportion of negroes to white people in different communities will make a great difference in the crime situation Moreover the conditions will change in the same county from time to time Have electric light and water works been installed in the county seat If so the jail situation has changed Has a new railroad been built in the county or a factory or a new
38
highway These mean changes Has a new superior or city court judge been appointed Are business conditions better or worse Yes even the weather itself will make temporary changes in jail population and therefore in jail problems
Volunteer In order to make the money and the personnel of Committees the Department go as far as possible the policy has been continued of using volunteer unpaid citizens of the community as local committees to inspect and report upon their local institution whenever such assistance could be obtained Volunteer local assistance has been received in 72 counties since our last annual report In spite of its rather evident defects this plan has given lesults which are surprisingly good The Department wishes at this time in all sincerity and all thankfulness to acknowledge its indebtedness to these self denying public spirited citizens who have seen fit to give to the State of Georgia their time and services without thought of personal glory or financial reward In this work the Depaitment has been materially assisted by various womens organizations throughout the state especially the women of the various religious denominations women of Christian Temperance Unions and women of the Federated Womens Clubs All of these organizations have shown much interest and a surprising grasp of the problems involved and especial acknowledgement is made to Mrs B F Boykin Carrollton Mrs J E McElroy Norcross Mrs J A Thomas Savannah and Mrs W A Turner Newnan
The work of a volunteer committee is difficult It is so difficult that it is frequently impossible to obtain committees and often committees refuse to retain their positions because of the time and labor which they must expend This is especially true where results are not immediately shown but from experience it is evident that the committees do bring definite and worth while results where the work is continuous The use of jail committees in Georgia has had many interested spectators elsewhere For the benefit of these spectators it may be stated that the Georgia system is dependent upon the committee personnel and the continuity of effort year by year Where a county has a good jail committee and the work is continuous in that county for 3 or 4 years the Georgia committee system works Where either of these two factors is absent the system does not work The following extracts from the first and fourth annual reports on the same county jail may be illuminating
39
Report May 31 1922 The jail proper was filthy The toilets wash stands and hath tubs were caked with dirt The tubs looked as if they had never been used and the sheriff was not sure whether they were in working order or not Prisoners complained of never having an opportunity to bathe nor even having any clean bed clothes The floors of corridors had not been swept for a week perhaps Food consisting of grits and corn bread was thrown in corridors
Report Feb 19 1925
Our committee found jail in very good condition and clean New furnace installed in fall so building was very comfortable indeed The conditions aie improved so feel our work will be much more pleasant and satisfactory
We have followed the footsteps of the past so long that important jail improvement does not happen in a month or a year but there is concrete evidence that the system employed in Georgia does eventually bring results In order to learn what was happening throughout the state where volunteer jail committees had been at work twelve counties were taken at random in which this committee work had gone on for four consecutive years These counties were Bibb Butts Cobb Decatur Floyd Gordon Hart Jackson Oconee Putnam Troup and Walker In every one of these 12 counties with one exception distinct and definite improvement in the treatment of prisoners was shown
The volunteer work of the county committees has been in addition of course to the personal visitation of staff members of the Department to some 90 counties throughout the state It is also in addition to the investigation by the Department of jail complaints in several counties
Footprints of The jails of Georgia speaking generally are Progress improving in several ways At the 1924 meet
ing of the American Prison Association Georgia was mentioned along with New York Massachusetts and Pennsylvania as showing the greatest jail improvement i the country By this statement the Association probably means that we now
40
have a state consciousness of th jail situation as has already been said we certainly do not yet have the necessary county conciousness It would be unfortunate to think that the mere erection of a new modem jail building is the ultimate goal of jail improvement Better jail buildings are a means to an end and not an end in themselves In time the new building will be an old building and the end will be the same as the beginning The phrase better jails means also better jail keeping and above all better understanding of the prisoner himself
Georgia is making a great deal of progress in better jail buildings it is making slower progress in better jail housekeeping However it still happens that jails will be visited which are modem in their construction and have various classifications so that it is unnecessary that young and old prisioners or vhite and black prisoners be confined together and yet where the sheriff or jailer through mistaken kindness will open the doors of the several compartments and allow the prisoners to mix and mingle indiscriminately In one jail visited recently a colored man and a colored boy who said he was 11 years of age were confined in the same compartment with a number of white men although there was another cell compartment in the jail which was entirely vacant This still happens all too frequently and in these instances the better planned jail is little or no improvement over the old out of date structure Classifications shower baths and other physical improvements do little good unless use is made of them There are other jails which are utterly without any attempt at sanitary routine where blankets for instance are never washed but are used successively by various generations of prisoners until the blankets finally become so filthy that they are burned All of this requires the conversion of the sheriffs and jailers to the newer and better way No small part of the time of the Division of Adult Delinquency during the past year has been spent in an effort toward a better and more complete understanding between the Department and the county authorities This job is far from completed but the progress is encouraging
One of the first contacts the delinquent has with the county is his contact with the county jail If as in the past the delinquent is placed in a jail where through lack of classifications or through the failure to use the classifications at hand he is allowed
41
to complete a course in the school of crime under the tutelage of older and more experienced criminals this education is sure to be manifest in the conduct of the individual when he finally returns to the body of the community Society has too long neglected this factor and has paid and is paying the penalty for this neglect in the sum it is now contributing to the criminal class through robberies thefts and other like crimes Intelligence in the handling of delinquents is not only practical Christianity but it is good business as well People on the inside of jails differ just as those outside differ and until we deal with individuals as individuals we shall not get far in our effort to decrease dependency and crime The courts the jail and the community must realize that people are not like peas in a pod Their histories are different their iniquities are different and their possibilities are very very different
Whos Who An interesting change in the general makebut not why up of Georgias jail population has become apparent from a study of the reports of the various sheriffs covering the jail population for 1924 In 1921 the figures at hand show that the jail population was 33 per cent white and 67 per cent colored In 1924 the white population was 42 per cent of the total and the negro only 58 per cent In the more rural counties Fulton Chatham Bibb Richmond and Muscogee being excluded from consideration there was a general decrease in jail population in 1924 from 1921 but a much greater decrease in colored than in white prisoners White prisoners in the smaller counties decreased 14 per cent but colored prisoners decreased 46 per cent Whether this indicates better behavior upon the part of the colored people or whether it is caused by changing econqmic and social conditions cannot be determined from the jail figures
The composition of the jail population in Georgia per 1000 in
1921 and 1924 was as follows 1921 1924
White Men 304 385
Women 18 28
Boys 4 5
Girls 1 1
Total White 327 419
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Negro Men 599 486
Women 65 86
Boys 8 8
Girls 1 1
Total Negroes 673 581
1000 1000
Probation a Another economic loss to the State of Georgia is matter of the failure to make full use of the possibilities of dollars and probation Probation is not utilized to its
sense highest degree anywhere in the state In too
many instances it is viewed merely as an avenue of escape for the criminal This may be correct for haphazard probation but nothing is further from real active intensive probationary supervision
Studies in the State of Massachusetts where probation has its highest present development show that where good probation work is done 3 men out of 4 whose probation record is satisfactory may be expected to have no subsequent court record whatsover This implies of course that where the probationers conduct becomes unsatisfactory during the probationary period he will immediately be brought back to the court for further action and this implies moreover that the probation officer is in constant intimate and understanding contact with the probationer at all times during the term of his probation
Where such a large proportion of reformations may be expected under the guidance of good probation officers how foolish it is economically to lock so many prisoners up or put them on the chaingang where they are a heavy expense to the county and where their families are probably a charge upon the charity of the community when they can be handled through probation at a fraction of the cost and can be paying their own way at the time
The National Probation Association figures the money cost of good probation to be onefifteenth of the cost of imprisoning the offender In New York State last year in addition to this form of saving 200000000 was collected from probationers for the support of their dependents
Probation under intelligent and well trained probation officers
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is a tremendous economic help to the community probation under the mere general oversight of some well intentioned court attache is just what many people think it to be an easy avenue of escape for the criminal Too often this is the Georgia situation It may not be out of place just here to quote our Georgia law dealing with the appointment of probation officers
The Grand Jury of any county may recommend to the judge of its superior court that he appoint a county probation officer and such assistants as may be deemed necessary who shall have supervision and oversight of all probationers from the several courts of criminal jurisdiction in the county and it shall be the duty of the judge to appoint such person or persons as seem best qualified for the duties devolving upon a probation officer to serve during the pleasure of the court making the appointment and to fix the salary which shall be paid out of the county treasury as part of the court expenses
Crime and During the past year the Department has issued the Georgia a volume of statistics based on the study of over Courts 12000 individual cases covei ing the work of certain of Georgias criminal courts The results shown by this study were forecast in the annual repoit of the Department for 1924 in which we pointed out that just as our jail records fail to give us any real idea who the men are in our jails so do our court records fail to tell us who and what kind of people are passing through our courts There is much talk of the increasing number of youthful offenders but whether this is true whether our offenders are men women or children black or white first offenders or recidivisits the records fail to disclose Good business alone should make such stock taking possible to say nothing of the significance of trying to handle the individual criminal without knowing something of him as an individual
While we could not get such social facts we were able to get most illuminating information on our court procedure
The reception of this study has been gratifying many of Georgias largest newspapers devoting many columns of valuable space to the study and its conclusions In addition to its recepstion in Georgia it has had notable attention elsewhere The tates of Missour i and Illinois are paying Georgia the compliment
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of following Georgia s lead and attempting to take stock of their crime problems The American Institute of Criminal Law and Criminology and the Bureau of Social Hygiene New York are sufficiently interested in the Georgia study to publish it and Harvard University also has offered to bear the financial burden which the Department was unable to carry
While made by the State Department of Public Welfare this study was privately financed and the chief desire of the sponsor was to learn if it were possible for essential facts to be gathered from the criminal court records in any typical American jurisdiction It had never before been attempted
In England and Wales in Canada in France and elsewhere such data is gathered annually for the purpose of assisting the courts and the lawmaking authorities to a better understanding of the trend of criminal matters When a new criminal statute is passed in England it is possible within the space of a short time through the medium of just such statistics as were gathered in Georgia to know definitely and accurately just what effect the passage of the particular law has had and whether this effect is good or bad For instance if the laws regulating the sale of liquors at public houses has been further restricted by statute it would be expected that this would make some difference in the number of cases of drunkenness appearing before the courts Such a law might be expected to make a difference in the number of certain other related crimes In England it is possible to know the results not through guesswork estimate or opinion but actually and accurately
The gathering of information about crime and our courts is not an end in itself but if such information were available in Georgia we might see much more clearly than at present what if anything is wrong with our criminal courts and our criminal laws
Need Justice The immediate object of such work is to give be Blind the earnest thoughtful judge and solicitor a view of his own acts in retrospect an audit of his business house during the past year If the presiding judge is satisfied with the results of his court well and good if the figures
45
show to his mind ways and means whereby he can improve the effectiveness of his court so much the better It is a poor business house whose president does not from time to time call in someone to look over his books figure his overhead his stock turnover and see if he is making or losing money Such an auditor does not attempt to tell the president how to run his business but he does attempt to show him the results of his labor for the preceding twelve months
The Georgia study showed that there is a surprising lack of information about the individual defendant which is available to the court The court records show nothing of the age sex color previous history previous convictions or characteristics of the individual Without information of this kind the courts are terribly handicapped in attempting to deal adequately with the prisoner If undertaken it is hoped that future studies of our courts will make it possible for the magistrate to know more about the man who stands awaiting judgement
While Georgia has made the first important conti ibution toward an accurate scientific understanding of our American criminal problem en masse yet the ground has scarcely been broken in this important field of endeavor It is earnestly hoped that money will be provided so that the Department can go forward with this work and collect at least a small part of the statistical information which it is authorized and instructed to obtain but for which no appropriation has ever been available The amount of money is so small and the possibilities of the work are so great that provision should be made
46
OTHER PUBLICATIONS OF THE DEPARTMENT
For Free Distribution
First nnral Rejort of the State Eoard of Fublic Welfare supplyexhausted
Georgias Fight Against Dependency and Delinquency Report of the first years work of the Department
Economy Through Public Welfare Report of the second years work of the Department
Report of the Third Years Work of the Georgia State Depart ment of Public Welfare
Report of the Fourth Years Work of the Georgia State Department of Public Welfare
PAMPHLETS
In Loco Parentis A Handbook for Georgia Juvenile Courts with digest of laws for the protection of children
Humanizing Georgias County Jails A handbook of standards of equipment discipline and management on county jails
Analysis of 95 Georgia Jails
Crime and Georgia Courts A statistical survey of 12CC0 actual criminal cases
BULLETINS
The County Government and Family Service Suggestions to the County Commissioners in the handling of county poor relief funds
The ParentTeachers Association and Family Service Simple suggestions for the family service committee of the local parentteacher association
The Church and Family Service Suggestions for church groups interested in relief of the distressed
The Family Service Association in the Small Community Suggestions for the group usually called Associated Charities which is not financially able to employ its own staff
The Georgia Child Placing Law Text and full explanation of act regulating placement of children in foster homes
During 1922 277 of Georgias Best Citizens Went to Jail
BUILDING PLANS
The department has on hand floor plans for childrens institutions county jails old peoples homes which can be made available for organizations planning new buildings
RECORD FORMS
The department has prepared and has for free distribution or at small cost record forms
For Childrens Institutions Social Sheet Medical History Sheet
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For Juvenile Courts Petition Judgment Investigation Warrant Subpoena Summons Commitment Appearance Bond Application to Institution Medical Examination
For Family Service Committees and Associations Family History Sheet Confidential Exchange Forms
For County Jails Questionnarie Report for County Visiting Committee Jail Register
PUBLICATION OF OTHER AGENCIES
For Free Distribution or At Small Cost
Juvenile Delinquency
Probation in Childrens Courts United States Childrens Bureau
Juvenile Court Standards United States Childrens Bureau
The practical Value of Scientific Study of Juvenile Delinquents United States Childrens Bureau
The Legal Aspect of the Juvenile Court Flexner and Oppenheimer United States Childrens Bureau
The Federal Courts and the Deliquent Child United States Childrens Bureau
Child Placing
The Selection of Foster Homes for Children Doran Reynolds New York School of Social Work
The Child in the Foster Home Theis and Goodrich New York SchODl of Social Work
Foster Home Care for Dependent Children United States Childrens Bureau
The Need for Psychological Interpretation in the Placement of Dependent Children Taft Child Welfare League of America
What Dependent Children Need Williams Child Welfare League of America
The Problem of the Unmarried Mother andHer Child Workum Child Welfare League of America
Case Studies Case No 1 Ralph Child Welfare League of America
Childrens Institutions
The Job of Being a Trustee Russell Sage Foundation
Round Table Plan for Trustees of Institutions Russell Sage Foundation
Development of the Individual Child in Institutions Russell Sage Foundation
Physical Care of Dependent Children in Institutions Russel Sage Foundation
Cure of Bedwetting in Institutions Russell Sage Foundation
Education of Dependent Children in Institutions Russell Sage Foundation
Admission and Discharge of Children in Institutions Russell Sage Foundation
48
School Grounds and Play United States Bureau of Education valuable suggestions fof childrens institutions
Family Service
Treatment A simple statement of principles of relief Russel Sage Foundation
Passing On The handling of transients Russell Sage Foundation
The Confidential Exchange Russell Sage Foundation Budget Making in Families Chicago Council of Social Agencies
General Bulletins
The Challenge of the Chronic Patient Reprint from Survey February 1924
The Profession of Social Work American Association of Social Workers
The Visiting Teacher National Visiting Teachers Association Standards of Public Aid to Children in their Own Homes Nesbit United States Childrens Bureau
Standards of Child Care United States Childrens Bureau
BOOKS ON SOCIAL WORK
The State Library Commission has put these in for loan service at the request of the State Department of Public Welfare and they may be borrowed from the Georgia Library Commission Atlanta for a month at a time for the cost of return postage
The Social Control of the Feebleminded Davis
The Art of Helping People out of Trouble DeSchweinitz Juvenile Courts and Probation Flexner
The Care of Destitute Neglected and Delinquent Children Folks
The Individual Delinquent Healy
4 4 The Psychology of Insanity Hart
Quicksands of Youth Hoyt
The Institution for Children Jamison
4The Almshouse Johnson
The Unmarried Mother Kammerer
Problems of Child Welfare Mangold
Elements of Record Keeping for ChildHelping Organizations Ralph
How Two Hundred Children Live and Learn Reeder
Friendly Visiting Among the Poor Richmond
The Good Neighbor Richlmond
Social Diagnosis Richmond
What is Social Case Work Richmond
ChildPlacing in Families Slingerland
A Friend at Court Stern
Youth in Conflict Van Waters
49
Georgias
Progress in Social Welfare
GENERAL LIBRARIA
University of Georg Report of Sfti CnrffiiSeventh Years Work
State Department of Public Welfare State Capitol Atlanta
Rhoda Kaufman Executive Secretary
BOARD OF PUBLIC WELFARE
J G Harrison Chairman Macon Ga G A H Harris jr Rome Ga
J S Kennedy Atlanta Ga
Mrs E Suarez Cuthbert Ga
Mrs J A Thomas Columbus Ga
DEPARTMENT STAFF
Rhoda Kaufman Executive Secretary Hugh N Fuller Assistant Secretary Harold J Matthews
Alice Haines
Ruth A Brown
Sallie B Holliday
Frank Loveland Jr
Mrs Edgar A Davidson
SPECIAL STUDY Made under Rosenwald Fund Ernestine McGill Ethel Cochran
Georgias
Progress in Social Welfare
Report of Sixth and Seventh Years Work
State Department of Public Welfare State Capitol Atlanta
Rhoda Kaufman Executive Secretary

CONTENTS
Page
General Report 1
County Organization for Social Welfare 11
Care of Dependent Children 21
The Care of Delinquent Children 39
Child Welfare Legislation 50
The Care of Physically and Mentally Handicapped 53
The Care of the Aged 58
The Care of County Jail Prisoners 67
Study of Criminal Statistics 87
Appendix of Handy Reference Lists f 89
Georgia Juvenile Court Judgesr 93
Social Work Bibliography 97
GENERAL REPORT
To the GOVERNOR AND GENERAL ASSEMBLY OF GEORGIA
Gentlemen
In submitting herewith the report of the State Department of Public Welfare for the years 192526 it has seemed appropriate to review the work of the seven years since the state government inaugurated a program of research education supervision and organization in the field of social welfare
The work of the Department touches that of so many groups and individuals that the record becomes a story not of the Department but of the progress of social forces throughout the state The Department has played no small part in establishing standards stimulating action and developing leadership but having drawn together into fellowship and cooperation all those engagedin humanitarian service the Department claims only such credit as may be accorded to it by those whom it serves
This report is a record of accomplishment of which all Georgia may well be proud It is the result of the constructive effort of scores of organizations and thousands of thoughtful citizens Since the legislature saw fit to coordinate their work under the general supervision of a state department it is our duty and privilege to present this report of their attainments It is not our report but theirs Georgias
Hope Revived In fact this concentration of the best minds in the State upon the problems of human relationships is the outstanding development of the seven year period It is so significant that the Governor in a recent published statement remarked that a new spirit of optimism and faith in human nature is reaching out all over Georgia to succor the helpless and lift the fallen to build communities in which children need not suffer from
1
neglect nor be trained in crime and thus reduce the enormous expense of handling paupers and criminals
The prevention of crime and dependency through the spread of socialized intelligence the stimulation of alleviative and remedial work on behalf of the subnormal and handicapped members of the community and the organization of preventive measures against adverse and depressive forces in the communitythis is the work of the Department of Public Welfare and of every other group or organization in the state that is constructively interested in social service
Expense Saved Leaders are just now realizing its importance in increasing the productive capacities of the population and the economic stability of the community as well as in reducing the tax bill for crime insanity and pauperism
The Department began its work in 1920 with an appropriation of 15000 and a staff of four The work assigned to the staff by the law creating the Department was classified from the beginning in the following divisions County Organization Children and Institutions Delinquency Statistics and Educational The small staff stretched itself over these varied and technical fields to the best of its ability seeking to cooperate with institutions state agencies and communities Even after the appropriation grew to 20000 in 1924 and to 35000 in 1926 and 1927 permitting a larger staff the interrelation of the divisions in the broad field of social welfare and the size of the Empire State the number of its institutions agencies and political divisions demanded teamwork and a constant iriterchange of activity between members of the staff Fortunately the Board has been successful in securing well trained and exceptionally competent staff members who have accomplished a task that in other states has required a much larger personnel
S A Todd in The Scientific Spirit and Social Work
2
COUNTY ORGANIZATION Harold J Matthews Director Alice Haines Assistant
Georgia like every other state confronted with the care of the product of family and community failure had developed institutional care for the criminal the insane and the helpless children of broken families When this Department came into existence the flood of these unfortunates was overwhelming the institutions the expense of their care was mounting into the millions and leaders were baffled because it seemed impossible to meet the increasing demand for institutional care
The Departments greatest service has been to discover through careful research the underlying cause and to suggest the remedy While millions were being expended in caring for the end results of community disorganizations little was appropriated by the communities for prevention and except in a few cities nothing was being done to treat and cure the incipient social or mental derangement of the individual Children were allowed to grow up into criminals with no courts adapted to their needs no organized method of correcting the causes of their delinquency Discouraged and baffled families were unaided in readjusting their difficulties and permitted to break up leaving children to be supported at public expense Old people were given public relief without an attempt to place responsibility upon their relatives Mental cases were never treated until they became so violent as to demand confinement for the public safety
Hence the Department embarked upon a program of community organization centering around the employment of a trained social worker in each county which unquestionably will check the tide of dependency and mental disease and eventually result in a real economy to the state The story of progress in this new and most important field of service is told in detail in Chapter I
During the past two years the division of county organization inspected 70 almshouses in 1925 and 60 in 1926 having by its contacts with 10 counties persuaded them to discontinue their almshouses Besides these inspections it has visited eightyseven coun
3
ties from one to a dozen times to give assistance in various other matters pertaining to county welfare work From a few hours to two months was spent in each county depending upon the importance of the visit or purpose in view In nine counties detailed studies of the local problems were conducted In every instance these visits were made at the request of some responsible agency in the county public or private
The results of this program are just beginning to materialize Georgia now has 17 counties which are organized to cope with their social problems
DIVISION OF CHILDREN AND INSTITUTIONS Ruth Brown Director Sallie B Holladay Assistant
The spirit of cooperation and understanding which has developed between this division and the 110 institutions and agencies under its inspection and the wonderful progress attained during the past seven years is fully described in Chapters II to IV
The studies which the Department has prosecuted have convinced us that two developments in this field are of most importance The first of these is the equipment of our institutions with social workers to make thorough investigations of applicants before admission and to have charge of the aftercare upon dischrge This is being demonstrated by four institutions which are using social workers at the present time
The second outstanding need is the revision of the antiquated state laws affecting children These are explained in Chapter V
While the Department is charged with inspection of the State Sanitarium for the Insane and educational work in Mental Hygiene it has never been financially possible to employ personnel equipped for this highly technical service We have cooperated with the Sanitarium in securing national experts to make studies the results of which have been supplied the Governor and Legislature Georgia needs an extensive mental hygiene program to carry preventive treatment throughout the State and we are eager to cooperate in
4
developing a plan which will adequately meet the situation
Following are listed some of the activities of the division
141 visits to 63 childrens institutions and agencies
14 studies of 9 agencies applying for child placing license
15 visits to 6 juvenile courts
15 visits to 7 agencies handling children but not under legal supervision of the Department maternity hospital commercial boarding homes kindergarten special schools
73 visits to 35 adult agencies and institutions in the larger cities
12 board meetings of institutions attended
8 meetings of committees of institutions attended
12 plans for buildings for institutions studied
4 population studies
8 new blanks for childrens work
5 agencies helped to get workers
Each visit to an institution has meant conferences with superintendent and individual board members discussing with them current problems with which they were faced report written on conditions found and helpful recommendations made The increasing number of board meetings and committee meetings attended is significant of the increasing number of times that contacts have been made by the Department on invitation or at the request of the institutions which are more and more coming to look upon the Department as a resource of advice and consultation The result is a demonstration of how a supervisory agency and private agencies can together work out a rounded constructive programme with the individual child as the prime consideration
DIVISION OF DELINQUENCY
Hugh N Fuller Director Frank Loveland Jr Assistant
This division has been charged with the study and improvement of the handling of delinquents in the courts and the care of prisoners in the county jails It has had no legal responsibility toward the state prison or the convict camps as these come under the inspection of the state prison commission
The first step in the complicated problem of the criminal courts is to ascertain just what is happening in the trial of cases The Departments study of criminal statistics undertaken in 1923 and to be continued for a ten year period is making one of the few basic contributions to this field in American criminology The report of this study is given in Chapter VII
With the small staff available the Department during the first years concentrated its efforts upon the county jail problem with no authority to order changes but depending entirely upon the power of education and cooperation The results of these efforts described in Chapter VII have been recognized nationally as perhaps the most constructive sustained county jail improvement ever attained by a state government The necessity for the enforcement of certain minimum standards is suggested in the full report
Remarkable assistance in jail inspection has been rendered by local committees of interested citizens which the division appoints under authority of the law Where it is impossible to obtain these local committees and even sometimes where it is possible to obtain them representatives of the Department make the entire study as well as the report and forward it to the county officials
Such local committees have actually been serving in an average of some seventy counties each year since 1921 At present there are about eighty counties which have active committees Besides the actual good accomplished in the way of immediate results the educational value of this work has been one of its prime features for in this way about one thousand private citizens scattered over the whole State have learned a good deal about the county jail and its problems and through conferences and talks with their own county
6
officials and superior court judges have learned to take a new degree of interest with a new understanding in their local government All of this makes not only for a better and more general understanding of local crime situations but it is also an excellent lesson in good democratic citizenship Studying the jail is not a particularly attractive job but each year in scores of counties there have been people who were willing to give fully of their time and their thought without any consideration of selfish reward Great assistance has been given by the Federation of Womens Clubs and by Methodist Presbyterian and Episcopal groups
During 1926 every jail in Georgia had at least one inspection either by members of the Departments staff or by these local committees A great number of jails because of particular local conditions were examined several times and every complaint received regarding jail conditions had attention About twenty thousand miles were covered by automobile by stafE members of the Department upon jail matters alone In addition to the formal written reports made to each county representatives of the Department were in frequent personal conferences with commissioners sheriffs judges county physicians jail builders and interested citizens Talks were made to many groups of citizens and to classes of students in several Georgia colleges A number of plans for proposed new jails were studied and suggestions made
DIVISION OF STATISTICS AND EDUCATION Mrs Edgar Davidson Director
It was with a realization of the need of spreading the gospel of socialized intelligence that the lawmakers included in the Act creating the Department the following That with a view of increasing the efficiency of public and private officials and bringing institutions for the care and custody of the dependent defective and delinquent classes up to a high and modern standard the Board shall cause to be distributed among such officials literature bearing upon subjects embraced under this Act
For seven years therefore the Board of Welfare has endeavored to fulfill this obligationspecifically placed upon it by the law to point out with one hand a social menace uncover a human need
7
to point with the other hand to the cause of the distress and how it might be removed to a higher standard of service and how it might be achieved Little children are still neglected mothers are still being separated from their children because of poverty prisoners are still held in filthy and unsafe jails old people who are ill and feeble are still without care and affection As long as these conditions exist there will also exist the need to point them out to those who do not seeand the need to stimulate men to work for the elimination of ignorance and suffering
As the years have passed the Department has been encouraged to note an increasing consciousness of Georgias needs on the part of the people of the state and a feeling of kinship which has come of working together in the common cause of meeting these needs
Public June 1926 the Department issued the first
Welfare Public Welfare a monthly mimeographed bul
letin for the purpose of assisting the state at large in discharging its obligations to the helpless and the dependent and to achieve a better understanding of the relationship between social problems and economic progress A happy response has met this little publication everywhere but even more gratifying is the almost universal demand which has come from the people of the state evidencing as it does that it fills an unmet need A mailing list of fifteen hundred is far too limited to meet these requests and it is to be regretted that insufficient funds make it impossible to very greatly increase the number distributed
Pamphlets Within the past two years the Department has
printed and mimeographed for distribution the
following
Grandmother Mother and Jim
WhyAlmshouse pamphlet
Extract from Proceedings of the Delinquency Division of the 1926 State Conference of Social Work The County Jail
Special Problems of Rural Social Work and Minimum Requirements of Record Keeping With Limited Resources and Help
County Dont Care and County Goodwill
In Grandma Mother and Jim which is a graphic story of county organization is carried a cartoon by Harold J Matthews
8
Director of the Division of County Organization To illustrate anything so complex as County Organization work is so difficult and has been achieved by so few that this drawing of a county with and without a welfare worker has quite obviously been a real contribution to this field Scores of workers all over the country have asked permission to adapt this cartoon to their local problems The little pamphlet itself is being distributed widely throughout the state
Why answers very definitely why Georgia needs fewer almshouses
Newspapers The goals for welfare work have been considered so intangible and so difficult of expression in news that it is with satisfaction the Department notes an increasing disposition on the part of the newspapers and periodicals of the state to recognize that information about Georgias social needs and how they are being met has a news value and a vital relationship to the economic progress of the state The influence of such an opinion making body in spreading socialized intelligence cannot be estimated
Posters and Frequent requests for posters and slides prompted Slides the Department to prepare such material for ex
hibit These posters have been reproduced for more general display and both posters and reproductons are being frequently called for by organizations Slides of actual conditions in Georgia institutions agencies and communities are effectively used in connection with the presentation of Georgia problems
Speakers To meet numerous requests the Department has
furnished many speakers including a series of radio talks given by members of the staff
Special Studies One of the functions of the educational division has been the promotion of research and special studies by the Department frequently in cooperation with national agencies During 1926 a grant of 5000 a year through the generosity of the Rosenwald Fund of Chicago given on condition that it be matched by a like amount in Georgia has made possible the beginning of a study of the problems of dependency and delinquency
9
facing the state in the field of negro child welfare The study of these problems and of the best methods of meeting them begun in August 1926 is at the beginning of 1927 well under way with a special staff of the most experienced workers that could be found in the field of child welfare and with the Child Welfare League of America acting in an advisory capacity
Conference of In cooperation with other agencies in the State
Social Work Council of Social Agencies the Department aided
in the staging of a successful State Conference of Health and Social Work in October 1926 which brought together nearly four hundred people representing over 30 counties In the special groups which gathered to discuss childrens institutions jails county organization family and child welfare was attested the fast growing interest in the problems presented in these various fields and the determination to work toward their solution
Heartily welcoming this fast growing interest in the state the Department is at the same time keenly conscious of its inability try as it may to meet this ever increasing call for advice and assistance from citizens and communities on its present appropriation We realize the fact that the States income is sorely taxed to meet the many demands upon it but in asking of the legislature a slightly increased appropriation for the Department we would respectfully call your attention to the following fact that unless the Department is equipped to more adequately meet the demand for assistance in county organization and in the development of local resources the greater economy in the prevention of the cost of state care of the criminal and insane will not be accomplished
JOHN G HARRISON Chairman
G A H HARRIS Jr
J S KENNEDY 7 MRS E SUAREZ
MRS J A THOMAS
RHODA KAUFMAN Secretary
10
COUNTY ORGANIZATION FOR SOCIAL WELFARE
CHAPTER I
It was not until 1924 four years after the Department of Public Welfare was established that the Division of County Organization was organized as a separate unit within the Department Not that the need of such a division was not recognized from the first but funds were too limited to permit its organization The problems which the Department found in its work with the jails the courts the institutions for children and the almshouses however brought home continuously and conclusively the fact that the foundation of a sound social program for the state meant adequate programs in the individual counties and that only as the Department reached out to help in the organization of county programs for welfare would it be fulfilling its obligation
Any state welfare programwhether it be child placing work with mental defectives or what notis built upon sand if there are no adequate local organizations with good workers for charity begins at home Delinquent and neglected children cannot be given a chance for a normal life a juvenile court cannot function effectively the almshouses will be but an expensive dumping ground the dole will continue to be a mere palliative mental defectives lack care and the community efforts lack coordination where there is no social worker to guide and focus its welfare endeavors If not properly handled locally by the county these problems become acute and fall to the State to take care of in its orphanages reformatories school for feeblemindedstate sanitarium prisons etc A minimum of prevention by the county would save the State large sums expended in the care of broken individuals
Thus it was in the fifth year of the existence of the State Department of Public Welfare that the Division of County Organization was started with one worker giving full time to cooperation with local groups in organizing more effective local social service programs
More and more it has been found to be the keystone around which are grouped the specialized services of th Department dealing with
11
the problems of children the delinquent and the aged The increased demands upon this division have borne evidence to its value and in 1925 it became necessary to employ a second person
In 1926 the new Department of Public Welfare found only eight counties with welfare associations applying modern standards of case work and practically all of these in the large city counties
The smaller towns and rural communities the Department found were still trying to solve their social problems by placing their old people in almshouses and giving to their poor a monthly dole from the county treasury with some emergency relief from churches and civic organizations with no thought however of placing the individual or the family thus aided securely or permanently on its feet For years many of these same counties had placed the development of agriculture the breeding of animals fine cows and pigs on a scientific basis while the problemspresented by unfortunate people the poor the defective and the delinquent had been dealth with in a hit or miss method It has been to counties struggling with such conditions that the Department has been of most assistance slowly but consistently helping them to organize their work for the poor and the handicapped thus making for higher standards in community life
The outgrowth of these years of work has been a growing realization on the part of the people of Georgia of the futility of old methods and the need of trained leadership in this field of helping the unfortunate Studies and surveys to show just what was happening to the poor and unfortunate and conferences with community leaders have caused them more generally to recognize that at least one trained welfare worker for a county is not a luxurious frill but a necessitya sound business proposition that in truth a county cannot afford to do without a welfare worker It cannot afford to deal out charity in an unwise and disorganized fashion Such a method is not only expensivea waste of human resources but it creates rather than solves problems
The Georgia It is only within recent years that the importance
Plan of the county as an administrative unit has been
recognized This is particularly true in social work but so rapidly has the plan for county wide welfare work spread that already a number of states have passed measures making
12
it compulsory for counties to organize their welfare work according to a certain plan Georgia is not among this number having preferred to leave to the decision of the individual county the type of organization best suited to its needs The Department of Public Welfare recognizes that counties are like individuals in their varying problems and on this principle has tried to help them find the causes of community breakdown and to organize for their eradication
Getting at For example when one community reports that a
Causes 14 year old girl has run away from home the first
question is what are the conditions in her home What care has been given her How much love and wise discipline So it is in a county When one commissioner said The thing that has surprised and distressed me most since I came into office is the number of young boys in our jail he unwitingly put his finger on a vital weakness in the life of his community A study of this same community revealed no organized effort to furnish the boys any wholesome recreation not even a baseball diamond and no manual training in the schools to serve as n outlet for their energies Low grade commercialized recreation was leading them to vice The Department recommended as a first step this county organize a local Welfare Association made up of representatives of the city council and county commissioners and representatives of private agencies such as the Red Cross Kiwanis Club and P T A This was done the problems looked over a welfare worker recognized as the outstanding need and the Department recommended a worker to be employed as probation officer This workers salary is paid by the county and transportation is provided by the Red Cross The Kiwanis Club and churches contribute to the emergency relief fund This worker realizing that sound probation work is to prevent delinquency stimulated interest in more recreational facilities The community responded with the result that today juvenile delinquency has decreased in this county
Another county asked the Department to visit the families receiving doles of relief from the county funds and recommend a better plan This resulted in the county employing a welfare worker to act as probation officer truancy officer and to investigate all applications for county relief The Board of County Commissioners were convinced that this would materially reduce expenditure for relief
13
County Such instances with slight variations could be mul
Conditions tiplied many times for during the past two years
Differ the division of County Organization has visited
87 counties and made special studies of the methods in Bibb Hall Ware Polk Whitfield Lowndes Laurens and Floyd Counties These visits and studies were in every instance made at the request of the county officials or some responsible agency in the community That they are bearing fruit is evidenced by the increased number of workers in rural counties contrasted to the 8 communities having social workers in 1920 are 16 in 1926 but even more by the general sentiment to procure intelligent and thoughtful service which will help people help themselves
As has been stated the Department has found that no one plan of organization is suited to all counties the different communities must needs use different methods One county feels that the problem of juvenile delinquency is its first consideration and therefore organizes to secure a probation officer Another is most aware of its need of a worker to investigate applications for county relief and almshouse care Still another needs a trained school attendance officer But there have developed certain principles which do apply to every county
1st That there should be at least one welfare worker in every county
2nd That the services of this worker should extend ao all delinquent and neglected children
3rd That even though employed by a private agency this worker might well be appointed probation officer unless it is possible to employ a second worker for this specific task
As has already been indicated in this report the Department has found that a trained welfare worker was once and is still by some considered a luxury A number of factors have tended to increase this belief and quite naturally perhaps there has grown up a belief that a small county cannot afford such a specialized service Studies by the Department however have made clear an interesting paradox the small county which maintains that it cannot afford the salary of a welfare worker is more often than not paying out in doles to its
14
poor a total amount much larger than its neighbor the wealthy county which never questions its ability to pay nor its need for the services of a welfare worker Xo carry the paradox further the small county in increasing the pauperization of its people by administering indiscriminate relief is only increasing its need of a welfare worker ten fold
Take for example a study of one countys pauper list of 40 families The Department of Public Welfare found that with the assistance of a welfare worker not less than 25 of these families could soon be made self supporting and the remaining 15 could be provided for by relatives with very little financial help from the county yet the county continued to hand out the monthly doles the number of recipients and the amounts continually increasing Such unbusinesslike methods as this and many other studies reveal and the knowledge that some of the smaller counties spend as much as 7000 and 8000 on poor relief has enabled the Department to refute the belief that only wealthy counties can afford a welfare worker and to show that no county can afford not to have a welfare worker for by removing the cause of poverty she eliminates the need of relief Decreasing in this way the amount spent by the county she more than saves enough to pay her own salary
Examine the table on the next page Not one of the counties listed there has a full time social worker and yet note the sums spent on poor relief and in maintaining almshouses Unfortunately the amount spent by private agencies and churches for relief is not obtainable A few studies which the Department has made indicate however that a surprising amount is expended through these channels and brings the totals of relief even higher In one small county over 1500000 was spent promiscuously for relief by churches and civic organizations
Counties Able The table on page 16 shows a number of counties To Employ which could pay the salary of a social worker from direct savings to the county itself which she could effect A good many more counties could employ a social worker by proper organization of the agencies in the county both public and private
15
PAUPER RELIEF IN 38 GEORGIA COUNTIES
Without a Social Worker
Countys Tax
Population Valuation
24527 6930495
16149 3762847
28317 7690065
12327 2032996
12183 2966425
36959 7356768
14709 4207830
19650 6815870
31593 10175020
33337 7148310
20522 5072023
11639 1610128
21124 3335144
4192 770701
18799 3980540
27438 8752753
18923 3059280
20699 3819681
21964 3271838
16362 2040480
20138 3727725
20384 3903760
23509 5021084
8222 1820455
20443 7697603
11587 3154230
23135 7979795
12057 2413575
29948 8623622
16194 4159270
13819 2994371
26019 7573838
25404 4596602
12110 2453237
26534 4570304
5851 1848920
9862 2011163
5260 1487561
11066 3210851
Spent in Expended
Outdoor on
Relief Almshouse
300000 300000
180000
350000
115000 70000
20000 298000
126200 158684
167500 126500
249100 254874
120000 710000
129480 210000
259200 280000
145024 232000
180000 216000
148800
179280 78612
600000 300000
51600 156000
269999 100000
77400 100000
250000 72600
300000
270000
72000 201600
113700 102400
300000 194546
250800
200000 350000
80000
169300 69500
240000 50000
192000
256800
452000
78000 400000
431450 50000
345275
240000
253600
700000
16
The District Somewhat in answer to the doubt as to the ability
plan of the small county to finance a full time welfare
worker but even more in an effort to present a plan which might meet the present situation the Department has for several years advocated that two or three counties jointly employ a worker thus each county would have the benefit of trained direction of its welfare work and without carrying the full financial responsibility be able to demonstrate the value and economy of such service The Department believes that Georgia has an opportunity not only to solve her own problems by such a plan but to make a contribution to the whole field of social work by successfully demonstrating its possibilities The Department hopes to see a number of such experiments develop within the next two years A number of smaller counties are at present seriously considering this plan So convinced is the Department of the soundness of this plan that it has been embodied in the proposed juvenile court law in an effort to make it possible for the counties in a district to jointly employ a probation officer
The plan as set forth in the proposed law expresses however the change in the thought of the Department as to method this change of thought resulting from experience and study of the problem Where the Department originally advocated a rather definite district for a joint probation officer this district to follow the lines of judicial circuits embracing the counties in that circuitexperience has shown that no arbitrary set unit such as the judicial circuit represents would be always practicable Each situation is different and the grouping of several counties depends on many factors within the counties under consideration for the joint scheme such as their feeling of kinship relative interest in the project ability to come in etc Recognizing this the new juvenile court law provides a flexible plan for districts the lines of the district to be worked out with the help of the Welfare Department
Advisory Just as the Department is obligated to help a coun
Service ty establish its welfare work on the most efficient
basis possible so is it the duty of the Department to render every possible service to the social workers in the counties The Department does not in any way dictate the policies of these workers but is constantly consulting advising and working with
17
them for the betterment of conditions and in the interest of their work Every worker in the state has taken advantage of this service both through personal contacts and correspondence and has shown to the Department the finest spirit of cooperation The influence of these county welfare workers is incalculable their work stands like a light house to which the Department points in telling others how and why county welfare work should be organized and carried on By visiting families in neighboring counties at the request of the Department these workers have carried the gospel of trained service beyond the borders of their own county Requests come for a worker like X County has and a county in North Georgia and another in Central Georgia are now asking for county workers because we know what the worker in X county is doing for them
Not only has the Department found the trained workers ready to serve but splendid volunteers in every section of the state are glad to visit individuals or families in their community who are in trouble Church and civic groups have helped to arouse the community to a realization of its need for well organized social work under trained direction
The Drifters Seven years ago lone men or occasional families climbed down from the trains in Georgia towns because their money was gone apparently taking for granted their right to demand of the community transportation to any destination they might name These drifters were few as compared to the present day Gasoline Gypsies as they have been so aptly named
Travel by automobile has brought many problems but none greater perhaps than the family who rides into town in a rickety car asking for and sometimes demanding gas oil and evenj tires that they may continue their journey Too often these requests are granted without asking From whence do you come and why should our community provide these things when your residence is in another county or state The family or individual therefore continue their way to another town where the same method is repeated The alarming increase in this type of roving begging people and the realization that in passing them on without trying to establish their residence or find why they were living off the generosity of wellmeaning citizens resulted in twenty agencies in the state signing the Transportation Agreement in 1926 at the instigation of the Department as
18
compared to eleven in 1925 This transportation agreement provides that no person or persons shall be passed on to another community without the welfare agency having first verified his residence and found that he has means of self support at the point of destination
The Signers of the Trans portation Agreement
The signers of 1926 were
1 Family Welfare Society Atlanta
2 Raoul Foundation Atlanta
3 Travelers Aid Society Atlanta
4 Family Welfare Association Augusta
5 Family Welfare Bureau Columbus
6 Colquitt County Welfare Commission Moultrie
7 Family Welfare Society Savannah
8 Travelers Aid Society Savannah
9 United Charities Valdosta
10 Salvation Army LaGrange
11 Salvation Army Columbus
12 Lowndes County Juvenile Court Valdosta
13 Floyd County Juvenile Court Rome
14 Salvation Army Waycross
15 LaGrange Welfare Association LaGrange
16 American Red Cross Decatur
17 Salvation Army Griffin
18 Welfare Director Brunswick
19 Salvation Army Valdosta
20 Juvenile Court Jesup
A second step toward some solution of this problem was taken at the State Conference on Health and Social Work when a Committee on Transients was authorized The Department of Public Welfare has made several studies with a view to ascertaining the extent of this problem and has suggested a modified plan for a state clearing of such cases This suggestion is now being considered by the Transient Committee
Team Work Through efforts made by the Department in the Among Agencies years since its establishment a consciousness has been awakened among those engaging in various fields of social service in the state of the need of getting together not
19
only in each community but in the state as a whole For example among the childrens institutions and agencies this feeling has been fostered by the Department through stimulating the organization of the Association of Workers with Dependent Children some few years ago and its reorganization in 1923 At the last meeting in connection with the State Social Work Conference at Macon in 1926 this organization definitely included community workers with handicapped and delinquent children thus broadening its interest toward all services for children existing in the state The Department has in various instances stimulated the thought of social agencies in certain commuqities toward organization into local Social Workers Clubs and in others has cooperated in directing activities toward the formation of councils of social agencies The effect of these efforts has been not only to get the agencies acquainted with each others work thus bringing about a coordinating of service in several instances but also to demonstrate how childrens institutions and agencies family service agencies county welfare work and all other forms of social service can join hands in teamwork that eventually will reach every child in the state in need of special care particularly those in rural and isolated parts of the state
n
rr
20
CARE OF DEPENDENT CHILDREN
CHAPTER II
Basic Principles The very fact that the Georgia Department of of Child Welfare Public Welfare is one of the youngest of such deAdopted by the partments was of real advantage when it began to Department as a function for it was enabled from the very start to Compass use as its compass those famous principles of chil
drens work which had become nationwide standards between 1909 and 1919 Since these fundamentals are still serving as guides throughout the country as well as in Georgia they may well be repeated here
Home life is the highest and finest product of civilization Children should not be deprived of it except for urgent and compelling reasons Except in unusual circumstances the home should not be broken up for reasons of poverty but only for considerations of inefficiency and immorality
The aim of all provision for children who must be removed from theirown homes should be to secure for each child home life as nearly normal as possible to safeguard his health and to insure for him the fundamental rights ot childhood To a much larger degree than at present family homes may be used to advantage in the care of such children
The stay of children in institutions for dependents should be as brief as possible The condition of all children irt such institutions should be carefully studied at frequent intervals in order to determine whether they should be restored to their own homes placed in foster homes or transferred to institutions better suited to their needs While they do remain in institutions their condition should approximate as nearly as possible that of normal family life as to health recreation schooling and spiritual aesthetic civic and vocational training
Work f6r children needing special care has been neglected in rural parts of the country Social conditions in rural communities are often as acute as in urban communities The principles of child care are applicable to rural needs Agencies for rural service should be encouraged and should be adapted to the peculiar needs of rural communities The county is usually the best administrative unit
The most important and valuable philanthropic work is not the curative but the preventive to check dependency by a thorough study of its causes and by effectively remedying them or eradicating them should be the constant aim of society
21
FACILITIES FOR CHILD CARE
The Dependent In making its initial study of child care the DeChild partment did not expect to bring to light many
startling discoveries but it was a satisfaction to find at the end of a year and after a personal study of every child caring institution and agency in the state that most forms of childrens work existed in the state and some were maintaining high standards However this study disclosed very low standards of some agencies and a lack of some agencies most essential to a well rounded program of child care
The visits of exploration gave the Department an opportunity to make the acquaintance of the childrens agencies which had labored so faithfully in the state not only to measure their work by standards based upon experience but1 even more to learn from them the many ways in which they were adopting Standards and establishing sound principles The first years report pays tribute to the courtesy with which these agencies met the Departments efforts and after seven years of continued contact with them the tribute can be repeated today with sevenfold emphasis
What Was Found The first thing which the Department attempted In 1920 to find was how was the State equipped to
maintain that first principle of preserving the childs own family wherever possible
Some eight Family Welfare Societies were found that is agencies that were trying to apply modern standards of preventive and remedial welfare work rather than a mere doling out of relief to poor people These societies were practically all in the larger cities of the state The rural communities were hardly touched
Seven Years In this field of community facilities for social ser
Later vice to needy families and children there has been
an encouraging increase in the number of counties organizing for countywide social work which is described elsewhere in this report As a basis for all specialized childrens services the importance of social care work cannot be overrated and the fact that these new organizations are largely in rural counties is of especial value There has also been an increased recognition on the part of already established family welfare agencies mainly in
22
cities of their responsibilities toward specialized childrens work and of the cooperation and encouragement which they can give it
Mothers Aid Mothers Aid that valuable resource for keeping mother and children together was being administered by one forward looking childrens institution in 1920 which however had no welfare worker to give close supervision to this definite service and in a haphazard way by county officials who used no social service methods at all in giving relief
Since then the institution which was the pioneer in mothers aid in Georgia has not only increased this service to mothers but has also extended it to fathers and relatives and in 1925 put the work under the supervision of a trained social worker and their institution three years ago started mothers aid on a small scale and has greatly extended its service to children by adopting this method the work is done under a cooperative arrangement with the Georgia Childrens Home Society by which the Societys trained worker in Augusta also serves the institution In 1925 a Home maintained by a fraternal order started aiding mothers with children on recommendation of their Director of Welfare However until the Legislature passes a Mothers Aid law the number of children benefiting from these private fund demonstrations will be seriously limited Georgia is one of six remaining states which have not provided for the care of these children With their mothers from tax funds under proper safeguards
A demonstration on a national scale is that made by the American Legion through its National Child Welfare Division which gives care to dependent children in four ways
By aiding them in their own homes with their mothers
By aiding them in the homes of relatives
By paying their board in private foster families to insure their receiving individual care and t By giving them institutional care in the three American Legion Billets which maintain high standards of care
The comparative costs of these forms of care are published in the
Found 1920 One statewide private childrens agency was in operation in 1925 but its emphasis Was on obtaining children for adoption into foster homes rather than on such service to disintegrating families as would build them up again so that their children did not need to be removed from them permanently Commonly called childrens aid work
In the field of child placing the standard for the state was lowered by certain deplorable instances of child placing done especially by one maternity hospital which violated every principle of family preservation The first two reports of the Department of Welfare gave prominence to the horrifying traffic in defenseless children in Georgia and in urging necessary legislation to place this work under strictest regulations
What Has The Child Placing License law was passed in 1922
Been Done as an answer to the Departments appeal for protection of these children This new law safeguards the placing out of children by any agency or person but is weak in that the provisions do not cover the giving away of children by their own relatives The law requires that child placing shall be done only by right of a license granted by the Superior Court on recommendation of the State Department of Public Welfare
The hazards of institutions and agencies engaging in child placing without essential equipment such as field workers have led the Department to try out the plan of concentrating the child placing work of the state in those agencies which have such equipment and which have shaped their programs so as to render service throughout the State The only agency which so far has met this requirement is the Georgia Childrens Home Society and in the years since the
24
Department s establishment the Society has so improved its methods and its equipment that its standards are now consistent with accepted social service procedure This improvement has brought along with it a necessary change in policy which the Department encouraged so that now the Societys work is not merely that of placing children in homes for adoption but embraces the services of investigation of cases referred adjustments of children in their own families providing temporary care in institutions and private family boarding homes as well as permanent placement in foster homes all of which entitles it to be called a Childrens Aid Society
Institutions which are not equipped for this special work usually use the Georgia Childrens Home Society for cases where foster home placement is considered advisable and as the Society enlarges its facilities to the point where it can truly meet the needs of the state such use of it should become much more universal than it is at the present time
At present the Department recommends for license to place children permanently in foster homes the Georgia Childrens Home Society and two childrens institutions one colored and it recommends for license to place children for temporary care such as in family boarding homes for detention purposes or for care pending rehabilitation of own homes four county welfare workers and two family welfare societies in communities where other standard child placing service is not constantly available
The Use of The use of private family homes either boarding
Boarding Homes or free for the care of children while their own homes are being rehabilitated or until it is found that care away from their own kin is permanently necessary was found to be practically nonexistent in Georgia when the Department made its first study
Since then it has increased very little although neighboring states such as Alabama have demonstrated that this valuable resource for care of children is just as obtainable in the south as anywhere else in the country if those doing childrens work recognize its importance clearly enough to work away patiently at it and overcome the initial difficulties that all new forms of service meet when first intro
25
duced The most outstanding demonstration along this line in Georgia and one which has attracted the favorable comment of national authorities in childrens work is the development of boarding homes by the Muscogee County Juvenile Court Columbus Ga for temporary care of most of its delinquent as well as it dependent wards thus avoiding the difficulties which the use of a single detention home for all types of cases always presents
CHILDRENS INSTITUTIONS
While facilities to preserve family life in 1920 were found to be very scarce provisions for the care of dependent and neglected children in institutions were plentiful
While the intervening years have seen the discontinuance of six institutionstwo at the instigation of the Department because they were not filling a real communiy need the other four forced by the Department to close because of inefficiency or immoral conditions they have also seen the opening of several new institutions for dependent and neglected children all under private auspices In addition to these the Department discovered four pieces of institutional work for dependent children which had already been in existence for some time but did not come to the attention of the Department in its first sudy Thus we now have 35 institutions for dependent children as compared with 33 seven years ago
SOCIAL INVESTIGATION AND FOLLOW UP WORK
IN 1920
How did these institutions carry out the principles and standards of modern institutional care of children
The stay of children in institutions for dependents should be as brief as possible The condition of all children in such institutions should be carefully studied at frequent intervals in order to determine whether they should be restored to their own homes placed in foster homes or transferred to institutions better suited to their needs
Qf the 33 institutions then found to be caring for dependent and neglected children the policy vof 29 of them was to keep the children
26
for long periods of time only 4 haying the policy of making the institutional care a temporary remedy
None of the institutions had a social worker and only two in Atlanta had their applications for admission investigated by a social agency The home conditions of the children in the institutions were not carefully restudied at frequent intervals in order to work out a plan better suited to their care but it was the rule to keep the children in the institutions unless parents or relatives made application to take them home again although facilities for finding out whether such a disposition was wise and for followup visits to see that all went well were lacking The institutions did not use family homes to board children who had special needs or problems nor for cases where relatives could have paid all or part of the board as practically none of the institutions required relatives to share according to their ability in the responsibility for the childrens support The institutions did very little placing of children even of full orphans or children without known kinfolk in foster or adoptive homes most of them feeling that this was a very risky proceeding and they were right for nothing is more hazardous than to engage in child placing without proper equipment Only one institution had decided to cooperate with the Georgia Childrens Home Society in providing foster homes for some of its wards Thus the stay of the children who were admitted to institutions was in most instances for a period of many years instead of being as brief as possible
In regard to followup care or the securing of satisfactory adjustments of the children when returned to their own families or otherwise arranged for on dismissal from institutional care none of the institutions had facilities for this service or to ensure that the care and training so expensively given in the institutions would have permanently valuable results
SEVEN YEARS LATER
While most of our 35 institutions for dependent children still retain children for long periods of time there is in several a growing attempt to remedy this and there have been two splendid examples of the recognition of better policies which must be mentioned here
Changed to At the time the Department made its first study
Temporary Care one institution had already begun its revolutionary changes in policy by deciding to take no more children for indefinite longtime care but gradually to replace that work by a childrens aid program which was to be done by the Georgia Childrens Home Society the institution in return giving receivinghome care to the Societys wards in Augusta As has been stated before this institution has since then arranged to have all its social work done by the Childrens Home Societys experienced worker and by this plan now touches probably ten times as many different children annually as it did when it confined its work to long years of care of a very slowly changing group
Change of But the outstanding illustration of a recognition of
Service changing community needs and a spirit of unsel
fish devotion to the real principles of social service
was the action of an institution in Augusta in discontinuing its institutional work on January 1st 1926 This Home had always had a realization of progressive policies in childrens work it gave only temporary care to children pending solution of their family problems or placement in private families for individual care and had been one of the first institutions to have all its applications for admission investigated by a social service agency of recognized standards When another and larger home in Augusta changed its policy of care from custodial or longtime care to emergency and temporary care with use of mothers aid and child placing in addition this home felt that its work was a duplication and that since the larger home had the greater resources to extend its work the smaller home should be discontinued This was done and the proceeds from the sale of the property were given to the larger home in trust the fund to be known under the name of the donating institution and to be used for temporary care of children in need of emergency relief The board of directors of the home instead of disbanding has continued calling itself now the Child Welfare Organization and sponsoring health and medical service for preschool children in Augusta
28
Hm
Helping the institution to better service investigation before admission and followup after dismissal
Other Social Although as we have seen only one institution has Service Policies completely changed its policy to temporary care nevertheless other great strides have teen made in the social service policies of our institutions
Three institutions have employed their own social workers while a fourth shares the service of such a worker with another agency so that in four institutions thoroughpreadmission investigations review at frequent intervals of family situations of children in the institution and followup care after a child has been returned to parents or relatiyes or uthenyise dismissed are the important social policies being developed i tbiesei policies will help to accomplish two
Qg9
of the fundamental standards of child welfare namely the preservation of home life by preventing unnecessary breaking up of families and the shortening of the period of institutional care for those children whom it has been necessary to admit
Three institutions nave adopted or extended a mothers aid policy and a small beginning has been made by two others This is a most important aid toward the preservation of family ties and home life
Two institutions have arranged to secure preadmission investigations of all applications by a social agency and three other institutions have greatly improved their admission investigations
One institution has adopted a splendid system of more intensive aftercare and adjustment service for all children dismissed from the home including those returning to their own homes or to relatives
Five institutions have started to use child placing for certain children who would otherwise have to remain in the home indefinitely
Seven institutions have made great improvement in the quality of the social records they are keeping two of them using the standard record form furnished by the Department and four others having printed new forms of their own
Most of the institutions are cooperating wholeheartedly in registering their admissions and dismissals with the Department Only three do not register regularly
Four institutions became so interested in their childrens cases that three were assisted to secure a crosssection study of their populations while a fourth had its entire population studied Subsequent recommendations are being considered by these institutions some of them having already been adopted
INSTITUTIONAL CARE IN 1920
While the children do remain in institutions their condition should approximate as nearly as possible that of normal family life as to health recreation schooling and spiritual aesthetic civic and vocational training
The foregoing policy of long time care found in the institutions made of even greater importance the standard of having institution
30
conditions approximate as nearly as possible those of normal family life and the Department was greatly encouraged to find a real appreciation of this principle in many of the institutions in spite of handicaps of old buildings and the usual scarcity of funds
Although 74 of the children living in institutions in 1923 were in institutions with a population exceeding 50 children 43 being in the 5 institutions having populations from 100 to 319 children 6 of the larger institutions were operating on the cottage plan though the cottages sometimes held 40 or more children
The majority of institutions secured normal contact of the children with their communities by sending them out to public school and church and Sunday school but appallingly few of the children of high school age were attending high school All but three recognized the fundamental value of active recreation for children but not many had the proper equipment none had a recreation supervisor and in only one was the recreation rather consciously organized with a real purpose in view While few of the old time rigid restrictions were found in the institutions the freedom and affection and conscious mothering and fathering of normal family and home life was found to be rare
In the field of training for life in the community which the children would have to enter sooner or later a very real need was found for institutions to plan for varied vocational training over and above farming and housework there was no training based on a study of the individual child and no effort to make use of what the community offered in opportunities for children to learn different lines of work In this same field experience in the use of money and in the proper acquisition and care of personal possessions is very fundamental especially to the institutional child who must make his own way in the world after many years of sheltering care in a home but institutions at least in 1920 found it difficult to provide this training The first years report says In order that the training in this line may be practical the following are suggested as essential standards and the figures indicate how many of the 32 institutions studied have met these standards to a fairly satisfactory degree
31
Steps toward homelike childrens Institutions
1 Congregate type This institution the Home for the Friendless Atlanta is now planning for a Cottage System 2 Unit type Appleton Church Home Macon permits classification Cottage type South Georgia Methodist Orphanage Macon approaches home surroundings and atmosphere
Institutions
Children permitted to personally own clothing
toilet articles etcl luii 19
Individual garden plots assigned to children 1
Cash payment for extra institutional work 5
Individual bank accounts4
Money rewards and prizes for standards of excellence in school 3
Direction given in spending money wisely 3
Children taught to give to charitable causes 3
In the matter of health and medical service especially preventive institutions were not keeping pace with what the public school health service was offering the children remaining in their own homes Preadmission physical examinations were admittedly superficial and without value in most instances and reexamination after admission at regular intervals to check up on the childs normal growth and to avoid development of physical defects with prompt correction of all remedial conditions found by the examiner and complete records kept of each childs health history was a health program not even attempted except in one or two instances Two homes provided resident nurses who kept closely in touch with the children daily and one of them was the only institution which practised admission quarantine until the danger of bringing in contagious disease was past Only one institution had mental examinations made of its children and on finding feeble minded children paid for their care in an institution better suited to their needs
SEVEN YEARS LATER
In Training Progress has been made in many ways toward more For Life closely approximating the conditions of normal
home life and training for those children who have
institutional care
Better preparation for a return to community life has been achieved for the children in three Homes by the wider use of facilities for more varied vocational training one large home having installed a complete trade equipment two institutions are now giving the children weekly allowances while three others are giving the children more opportunity to learn how to earn and use money properly more opportunities are being given in four homes for
33
cultural training such as music reading dramatics etc and in eight homes there has been noted an increase in normal community contacts for the children such as joining in clubs athletics choirs attending entertainments in the community and encouragement of friendships and recreation with children living normal home lives in the community
In twelve institutions there has been progress in the provision of recreational facilities along the lines both of increased contact with outside groups and of additional equipment on the grounds
Improved character training through closer supervision of the children made possible by increase in number and improvement in quality of workers employed has been secured in four institutions another institution has made marked improvement in methods of discipline while in six homes the atmosphere of family life is immediately felt
In Plant and Outstanding accomplishments mark the improveEquipment ments in material plant and equipment in our institutions for dependent children Two homes have entirely new plants one having built on a modified cottage plan and adopted the onestory type of building embodying such uptodate features as individual rooms for older children direct supervision of dormitories by having cottagemothers room adjoin grouping by units according to age sanitary drinking fountains enclosing in a separate compartment each toilet tub and shower dressing rooms with individual lockers etc the other having many of these same splendid features even though location made a congregate building unavoidable
Another home will build in the near future and has adopted the onestory cottage plan with many other modern features
Three more institutions have added new cottages or have very successfully remodeled old ones others have added new dining room and laundry buildings etc
Two institutions have made remarkable improvements in their old congregate buildings one entirely transforming its interior
Three other homes have made improvements in their water supply plumbing fixtures and other equipment
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In comparison with the statistics of previous years those of 1926 from the institutions for dependent children show
Civil Conditions 19211 19232 19260
Full orphans Tl 23 18 9
Father dead 32 315 28
Mother dead 24 20
Both parents living 13 26 25
Illegitimate 3 5
Other
Information lacking 5 3
Separated and divorced 10
Desertion of parents as contributing
cause in cases amounting to 18 16 21
Admitted by
Court 6 18 20
Parent or guardian 45 45 43
Relatives 18 12 8
Churches 8 3
Social agencies 11 14 18
Others 20 3 5
Information lacking 3
Dismissals
To parents or guardians 60 59 51
To relatives 15 20
jrBased upon number of children in the orphanages Jan 1 1921
Based upon total number of children cared for in orphanages during year 1923
3Based upon admissions to 29 dependent institutions during year 1926
The number of admissions to institutions in 1926 is slightly less than the number admitted during 1923 501 as against 581 while the number of discharges is 530 as compared with 420 during 1923
On the first of January 1927 the total number of children in 33 institutions for dependent children was approximately 1997 On January 1 1921 there were 1856 children in 33 institutions
We find that in nearly 28 of the cases of children admitted to orphanages the father was deada significant fact which brings us face to face with the desperate need of Mothers Aid funds
With 21 of the admissions being children of deserting parents it is impossible for us to ignore the effects of Georgias weak desertion
law The passage of the new nonsupport and desertion law would undoubtedly help to decrease the cost of approximately 53360906 which it is taking to care for this group of children in our institutions
The number of children admitted with both parents living continues large 25 indicating the extent to which family breakdown is occurring and suggesting the urgent need for intensive social service to be applied to these families before admission to an institution for long time care restoring sick parents to health giving adequate aid and service to the poverty stricken bringing back deserting parents utilizing more relatives and private family boarding homes as resources for the care of children etc
It is significant in this connection that 51 of the children are admitted to institutions by their parents or relatives and that 71 of the children dismissed are returned to parents and relatives indicating that the emphasis should be on social service to these families to prevent their ever having to be completely broken up even for a short time if this can possibly be avoided
The number of full orphans admitted has decreased which is a good sign as it shows that the institutions are recognizing more and more that the normal child who has lost both parents should not be kept in an institution for long time care but should be found a family home in the community either with relatives or in a foster family
In Conclusion Seven years of experience have strengthened the Departments conviction that the quality of social service given by institutions has far greater effect on the lives of the children than the material surroundings and that an institution with an old and inconvenient plant but with modern standards of social and personal service to its children turns out a higher quality of product than the institution with every possible advantage of material equipment which falls down on its admission or aftercare policies or fails to approximate as nearly as possible the conditions of normal home life in the institution
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REGARDING NEW INSTITUTIONS
One of the most important features of the Divisions work has been the consultation with groups wishing to open new instituions or enlarge exising institutions It is the Departments responsibility and obligation to bring to these groups the newest thought along child welfare lines so that it need not be necessary for any group because of ignorance to waste charitable funds in unneeded forms of child care Finances are already too meagre to support existing projects and should not be expended for unnecessary facilities which in some communities may hinder the development of far more essential types of social service At this writing no less than three different institutional projects are being contemplated for dependent children in this state and the discouraging feature of all three of these projects is that they are not only not needed in their respective communities but that the admitted motive back of each of them is simply to gratify a personal desire When those wishing to be of service to underprivileged children in this state will be willing to subordinate their schemes to the real needs of the children then we may look for teamwork in Georgia which will fill in the wide gaps now existing in our service to children and will build up the complete child welfare program which this state deserves to have
GOALS FOR DEPENDENT CHILDREN
Extension of State Department of Public Welfares supervision to commercial child caring agencies especially to commercial boarding homes for children
The employment of their own social workers by the larger childrens institutions in the state which do not already have such workers Further development of use of Mothers Aid boarding homes and other resources of care for dependent children by the larger institutions of the state and by local county and community agencies
Larger budget for the Georgia Childrens Home Society and the extension of its work to the farthest corner of the state
Every child caring agency in the state to be registering its admissions and dismissals by the end of 1927 in order that data may be collected and evaluated by the Department of Public Welfare which will be of the utmost value to the development of social service in the state
37
The highest possible development of existing childrens institutions rather than the establishment of any new ones In this connection authority be given to the Department of Public Welfare to review and report on the need of new institutions before any such are given the right to start operating this as a protection to the now existing institutions
38
THE CARE OF DELINQUENT CHILDREN
CHAPTER III
In studying the care of delinquent children it is particularly essential that we consider its preventive as well as its remedial aspects that is the value of high community standards of living county welfare organizations and juvenile courts as well as the service given by institutions The experience of recent years has developed a special emphasis on the fact that juvenile delinquency is a community problem and responsibility rather than one of either court or institutional handling that in order to attempt the prevention and cure of juvenile delinquency these two planks in our program are indispensable
First the community must do more for its homes We must help the home to function and must develop means for the education of parenthood
Second we must promote the development of private agencies coordinated with public agencies working to remove community causes of delinquency emphasizing prevention and cure of these causes
Found in 1920 When therefore the Department first studied general community facilities which would aid in the prevention of delinquencysuch as modern educational facilities and public health service well planned recreational resources and vocational opportunities etcthese were found to be very meagre In addition as previously noted city and county welfare organizations and juvenile courts were found to be sadly inadequate especially in the rural counties Thus the prevention side of the work with delinquent children was its weakest aspect
Charles L Chute Secretary National Probation Association 1920 National Conference of Social Work
39
Since Then In the years since its organization the Departments campaign for the establishing of a juvenile court with trained probation service in every county has been of the utmost importance as well as the development and growth of public and private welfare agencies Although growth in these facilities has not been rapid enough to meet the needs splendid things have been accomplished where the work has been started
Few if any phases of social work have shown more rapid progress in the last quarter century than the handling of juvenile dependents and delinquents It was not so many years ago that all delinquent children were arraigned before criminal courts given public trials and sentenced in a manner identical to that of the hardened adult offender In the late years of the nineteenth century the idea was advanced that children after all were not criminals that children who got into trouble were probably in this situation for reasons over which they had little control that indiscriminate punishment does not make the bad child good and that what was needed was a better understanding of the childhis home his physical and social environment and his physical and mental makeup Only after these things were known could the childs delinquency be understood and only when an intelligent understanding of the child was secured could the court set about to adjust the child to his surroundings
Court in Although Georgia had recognized the importance
Each County of separate treatment of childrens cases before
1915 it was in this and the following year that the existing juvenile court law was enacted The law provided for a juvenile court in every county in the State Provision was made for three classes of courts the distinction to be made on the basis of population Counties having 60000 population and over were to have a special judge In those counties having a population between 35000 and 60000 a special judge could be obtained upon the recommendation of two grand juries In all other counties any court of record usually either the city court of ordinary could be designated The judges of the superior courts were made responsible for designating the courts in the counties of their circuits And so only sixteen years after the establishment of the first juvenile court in the United States Georgia made legal provision for such a court in each of her counties
40
The old way of doing something to the delinquent child
Although the law providing for this system of courts has proved a sound and progressive one in many ways it has not been without defects that have worked to the disadvantage of the children of the state One of the flaws soon noticed was the limitation placed upon the selection of the judge In the majority of counties the ordinary is the only person who may be designated If the ordinary happens not to be interested in child welfare or qualified for the exacting position of judge the law is practically null as far as its intelligent operation in that county is concerned And this has been the fate of the court in many of our counties
Another deficiency that has hindered the successful operation of the present law has been the lack of jurisdiction over persons contributing to the delinquency or neglect of the child It is being recognized in many states that the problems of children cannot be considered apart from their environmentthat parents and others closely associated with the children may be so closely related to the problem which the court must attempt to solve that jurisdiction over these persons must be given if a sound plan of adjustment is to be attempted
41
Thousands The fact that the Department found over one
Thrown in thousand children of juvenile court age in our
Jail Georgia jails during 1925 and that they discovered
only a few less in the following year is striking evidence of another defect One of every forty prisoners in our jails is a child And this despite the fact that the three largest counties in the state have provision for the detention of children apart from the jail An analysis of this group of children would show that many of them are charged with only minor delinquencies that the majority of them are freed by a court after their demoralizing stay in jail without the guidance of probation that most of them could have been detained in their homes until their cases had been disposed of Unfortunately the idea is still somewhat prevalent that a period in jail will show the child the disastrous consequences of misbehavior Thetruism that the jail is the most efficient school for criminals is disregarded Muscogee and Chatham Counties are proving yearly that the jail is an unnecessary part of the juvenile court equipment Proper methods of detaining children are discussed later in this report But until the law is changed to prohibit detention of children with adult criminals they will continue to be exposed to vicious influences by thoughtless officials
Ideals Not Although the juvenile court law of 1915 provided
Reached for a court in every county the operation of such
a statewide system was of course not immediately put into effect When the Department began its work in 1920 it found only eight counties with juvenile courts The Department soon entered upon a campaign to secure the designation of courts in the remaining counties and the present list of one hundred and twentyfive courts as contrasted to that of eight in 1920 indicates that its efforts have met with some measure of success There are still thirtysix counties in which there exists no court but the criminal courts for the hearing of childrens cases
But the Resignation of the court is only the primary step in the establjshnfent of a socialized system ior the protecion of children Even though a separate court is provided if the judge has not a sympathetic interest in children if he is ignorant of the purposes and technique of juvenile court procedure or if hiscourt lacks adequate
M2
probationary service one can hardly expect to find the child being given a square deal And so it has been the aim of the Department to assist counties in the organization of their courts for effective work Many of the judges have been visited their problems and plans discussed Some of the courts are visited many times during the year Judges have been encouraged and assisted in the organization of advisory boards which may be called upon to organize community sentiment coordinate community efforts and aid in the investigation and the plan of treatment of individual cases The juvenile court handbook In Loco Parentis for which the need was felt almost immediately was published by the Department in 1921 and has been supplied continuously to all judges as they are appointed The handbook includes in a convenient form all Georgia laws pertaining to children and describes methods of procedure and ways of handling juvenile court cases that have been found most effective in the experience of the best courts of the country The complete set of juvenile court forms printed by the Department has been supplied to the courts at cost Every attempt has been made through personal visits letters pamphlets and the Departments monthly publication to keep them in touch with the best thought in this field
The modern Muscogee Juvenile Court does something for the delinquent child
43
Probation There is nothing that has been stressed more by
Service the Department than the securing of probationary
Increased service for the juvenile courts Without this ser
vice there can be little understanding of the childs needs nor has the court facilities for guiding the child into a normal healthy life With it the causes contributing to his delinquency or dependency can usually be ascertained and once these influences are understood a plan of intelligent treatment can be outlined Admonitions by the court and commitments to institutions have been the sole methods of disposing of childrens cases used by too many courts in the past If the causes of the childs trouble lie in the home as is true in numerous cases admonition is ineffectual and commitment to an institution fails to strike at the root of the trouble besides being a most expensive way of handling the situation Under the supervision of a trained probation officer the influences working against the best interests of the child whether they exist in the child his home or neighborhood environment can be corrected
To obtain probationary service then has been one of the main objectives of the Department in its seven years of existence It was recognized that the smaller counties probably could not afford and did not need a full time probation officer and that a social worker who could do the countys relief work and enforce the school attendance law could also assume the duties of probation officer for the juvenile courts And so the slogan a trained welfare worker in every county has in fact included trained probation service for every county v
If this service be taken as a measure of progress in child welfare in Georgia progress has undoubtedly been made In 1920 Georgia could boast only 12 probation officers serving its juvenile courts Now there are 20 paid officers In 1920 only 8 counties had this service while now there are 14 counties During the past year Ware and Dougherty secured a probation officer for the first time Columbus added a man as assistant probation officer while several other counties are now seriously considering obtaining the services of such an officer
44
DETENTION OF CHILDREN
In 1920 In regard to facilities for the detention of children
by juvenile court the Departments first study found that outside of detention homes operated in Atlanta Savannah and Augusta it was the universal practice to detain juveniles in the jails The detention homes themselves as is so often true found it very difficult to maintain modern standards of institutional care for the widely varying types of cases which they were called upon to handle
Later The detention home of Savannah and Atlanta are
still in operation the Savannah Home having moved into better quarters three years ago and now contemplating some kind of plan which will afford more facilities for the separation of the different types of children commited to its care Augusta has discontinued its detention home and is now using a combination of private boarding homes and of the TuttleNewton Home cottages Bibb County as previously mentioned has established what was in the beginning a detention home but which because of the majority of boys are now committed there to serve sentences must now be classed as a county reformatory although nondelinquents are also kept there occasionally
Detention in The most important contribution to the developBoarding ment of modern methods of juvenile detention has
Homes been made by Muscogee County through its juve
nile court Surmounting many difficulties through patient effort though still with much to be accomplished this court has developed four private family boarding homes in Muscogee County two for white and two for colored children and has demonstrated that for all but a few children delinquent as well as dependent boarding home care is the most practical as well as the most beneficial form of detention for chilldren who have had to be removed from their own homes This outstanding achievement of the Columbus juvenile court deserves much more space than can be devoted to it in this report Not far behind in demonstrating this valuable form of care are the Richmond County juvenile court at Augusta and the Colquitt County juvenile court at Moultrie the latter a very significant demonstraion as it is being worked out in a rural county
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It is probable that Georgia will demonstrate what other places have namely that in practically no instances do dependent children require to be detained in institutions pending court hearing and it may be that in the near future the juvenile court of one of the larger counties in the state may demonstrate the plan of using family boarding homes for the detention of all its dependent children using its Detention Home only for seriously delinquent children
INSTITUTIONS FOR JUVENILE DELINQUENTS
In 1920 Turning to institutional facilities for work with
juvenile delinquents the Department found in 1920 a State Training School for delinquent white and colored boys and one for white girls but there was no provision for colored girls The work of both of these institutions was found to be so inadequately supported by the State that there was grave danger of the problems of the state being increased instead of solved
The Department also found four county reformatories in operationtwo in Fulton one for white and one for colored boys and one each for colored boys in Chatham and Richmond Counties None of these institutions had sufficient funds to install adequate vocational training not to mention that fundamental essential of such workan aftercare or parole officer to make those critical first adjustments for the children after the institutional training is over the point on which the permanent value of the expensive institutional training most frequently hinges
Seven Years The amount of State institutional provision for Later delinquent children remains the same There is
still no state institution for delinquent Colored girls Both training schools have continued to improve their institutional features even though sadly handicapped with insufficient funds From 1924 to 1926 the Girls Training School had to close one cottage because no appropriation was made with which to keep it in repair However the Legislature of 1925 made a small increase in the appropriations for both schools enabling the girls school to renovate and reopen its cottage and the boys to build a shop for vocational training This was most encouraging but the bdys school is still handicapped by having to use an old congregate building
46
1 Scientific poultry raising at Georgia Training School for Boys Milledgeville 2 Future business women Georgia Training School for Girls Atlanta
Accommodations at both schools are still inadequate for the States needs consequently there is unfortunately continued agitation in various counties of the state to build local reformatories of their own Since the Departments first report Bibb County has established such an institution used also as a detention home for the juvenile court and Chatham County has taken over one for colored girls established in 1922 by the Savannah Federation of Colored Womens Clubs The other four in existence when the Department made its first survey continue with facilities in general unchanged However there have been various improvements in equipment and at present the Chatham County Industrial Farm is about to replace one of its old cottages with a new one although limited funds may prevent including some very essential modern features
47
The establishment of county institutions for delinquent children is to be deplored for modern and efficient institutional care of delinquents is the most expensive type of care and few counties can afford it Moreover it should be limited to those children for whom absolutely no other type of social service will be successful Adequate trained probation service and family social service should be made available to every needy child and family in every community before ever a thought arises of establishing a county institution and even then no such intention should be carried out if the state provisions for such children are still inadequately financed because to divert funds from a proposition of statewide value in order to scatter them among a number of small local projects practically always ends in inefficiency in every direction an expensive and unsound experiment which a state like Georgia can ill afford
COMPARISON WITH OTHER STATES
Boys Training Comparing Georgias outlay on maintenance of her School Boys Training School as with other southeastern
states we find that the smallest general maintenance cost 76612 is in South Carolina and the largest 150886 is in Kentucky as compared with 30000 for Georgia as is shown in the following tables
Georgia cares for an average of 43 delinquent boys in every
100000 of its population as against the average of 156 in every
100000 for five southern states
Average
Daily
STATE Population
Kentucky 366
Virginia White 234
Virginia Col 285
Tennessee 590
South Carolina214 Georgia 120
Six Institutions 1809
Per 100000 Total
of Total Mainte Per
Population nance Capita
153 150866 378
226 76268 326
59294 208
257 109500 185
134 76612 358
43 30000 250
156 502540 277
Girls Training Comparing Georgias Training School for Girls School with other states we find that the general per
capita cost in five southeastern states is 345 as compared to Georgias 332 the smallest outlay being 25700 by
48
South Carolina the largest that of 50930 by Kentucky as compared with the Georgia figure of 34870 Georgia is caring for only 38 per 100000 population while six southeastern states care for 53 and Virginia cares for 105
Average Daily Per 100000 of Total Total Mainte Per
STATE Population Population nance Capita
Kentucky 110 46 50930 463
Virginia White 144 105 43342 301
Virginia Col 97 27754 286
Tennessee 90 39 30500 338
South Carolina 71 44 25700 361
Georgia 105 38 34870 332
Six Institutions 617 53 213096 345
GOALS FOR DELINQUENT CHILDREN
11 An active juvenile court in every county
2 Adequate number of trained probation officers for each court
3 An active advisory board connected with every court to assist in the development of community sentiment and to aid the court with its problems
4 Detention of children apart from jails
5 Legal basis for the protection of children by the passage of a modern court bill
6 Increased appropriation for the State Training Schools for Boys and Girls
7 Establishment of State Training School for Delinquent Negro Girls
8 Provision of a parole officer for each of the State Schools
9 Use of probation and family home care to the greatest possible extent in the detention and treatment of delinquent children

49
CHILD WELFARE LEGISLATION
CHAPTER IV
A state may be measured by the care it gives its children how it protects them by legislation and by providing facilities to meet their needs
In 1920 the newly organized Board of Public Welfare considered that its first duty was to ascertain what was then being done for the children of Georgia what legislation existed and what facilities for child care
The laws relating to children were found to be inadequate in almost every instance relics of past days when the state was young and problems of child care less involved Even the best of the laws were not being effectively administered Although the Juvenile Court Act had been passed in 191516 only five counties had taken advantage of it although there had been a provision in the poor law since 1863 which might be construed as permitting financial aid by counties to mothers who needed help to care for their children very few instances could be found of its having been used constructively homes of children of deserting parents were being broken without attempt to invoke the aid of even such a nonsupport and desertion law as existed The first recommendation of the Department therefore was that the Legislature appoint a Childrens Code Commission to study existing childrens laws and social conditions in the state with a view to suggesting the need of new or improved childrens laws
As a result in 1922 a Children Code Commission was appointed by the Legislature The Commission rendered an invaluable service studying all laws affecting children and in 1925 offered a program which won a most interested and intelligent hearing in the Legislature
The laws were not all accepted by the Legislature but through influence and interest developed in child welfare an improved child labor law was passed and appropriations for the two state training schools for delinquent children were increased
The most outstanding law enacted in the childrens field since
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the Boards organization was the Child Placing Law which passed in 1922 and went into effect January 1 1923 See p 24 for discussion of its provisions
Perhaps the most inspiring result of the Childrens Code Commission Study has been the organized interest that has been shown by such important statewide bodies as the Federation of Womens Clubs State ParentTeacher Association League of Women Voters W C T U Civic Clubs and church groups in supporting the movement to improve the fundamental children laws and the fact that work for the passage of these laws in 1927 is continuing with good prospect of success
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OUTSTANDING
DISADVANTAGES OF GEORGIAS present Laws for the Protection of
CHILDREN
The Juvenile Court Law now fails in that
Persons contributing to a childs delinquency or neglect are with difficulty brought to trial
Over ONE THOUSAND children under sixteen were detained in Georgia jails last year
The Juvenile Judge must be the judge of an existing court regardless of qualifications or interest
The Juvenile Judge in counties of under 35000 population may not be paid for his services
Its jurisdiction is limited to delinquent neglected and dependent children
The Adoption Law fails in that
It provides only for court record
The Nonsupport and Desertion Law fails in that
Only abandonment is illegal and even this is not a continuing offense
The Illegitimacy Law
Places entire responsibility on mother of child
The Mothers Aid Law
Georgia is one of the six remaining states WITHOUT such a law
ADVANTAGES OF GEORGIAS
Proposed Laws for the Protection of
CHILDREN
The Proposed Juvenile Bill provides
Persons contributing to delinquency and neglect of child may be tried by Juvenile Court
Illegal to detain a child under sixteen with adult offenders
Superior Court appoints a qualified and interested lawyer
The Juvenile Judge may receive payment by vote of County Commissioners
Its jurisdiction is widened to include children mentally defective and mentally disordered determination of paternity enforcement of support and investigations of custodial care
The Proposed Adoption Bill provides
No child shall be placed in a home which has not first been investigated No adoption can be completed until after child has been in a home for a trial period of six months
The Proposed Nonsupport and Desertion Bill
Places responsibility for the support of the child on parent until child is of age or selfsupporting
The Proposed Illegitimacy Bill
Requires father to support child until of age or selfsupporting
The Proposed Mothers Aid Bill
Permits counties to create Fund which will enable mothers to keep and care for children from whom they would otherwise be separated on account of poverty
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THE CARE OF PHYSICALLY AND MENTALLY HANDICAPPED
CHAPTER V
In 1920 The Departments pioneer study of provisions for
the physically and mentally handicapped in Georgia early in 1920 found state schools for both blind and deaf children and a privately maintained hospital where splendid medical and surgical service was being given to crippled children But none of these three institutions provided any after care service to adjust the children so benefited into their communities again as actually or potentially selfsupporting and efficient citizens However Georgia could congratulate herself upon the high quality of most of the standards of institutional care given by these agencies
The State provided no care whatever as yet for mentally deficient children nor for the care of epileptics the school for the feeble minded provided for by Act of the 1919 Legislature not yet having been opened The State Sanitarium for the insane at Milledgeville was the only provision for the individual young r old who because of mental incapacity was a menace to his fellow men
This institution in spite of the handicap of its enormous size and deplorably crowded condition was found to be doing a good piece of work and showing excellent progress according to a study made for the Department by Dr Richard Hutchings of the National Committee for Mental Hygiene in 1921 He found the institution however caring not only for more insane cases than its normal capacity warranted but also caring for 261 feebleminded Dr Hutchings called special attention to the need of social workers for field service and suggested that the board of the sanitarium become the nucleus of a state department of mental hygiene in which the whole program of mental hygiene work of the state should be centered including the administration of the institutions and field service
Since Then Since 1920 the chief accomplishment in this field has been the opening in 1921 of the Georgia State Training School for Mental Defectives which is administered by the State Board of Health Since its establishment there has been
little recognition oi its vital service to the State until in 1926 the Legislature increased the meager appropriaion slightly thus enabling the management to do some remodeling which has increased the capacity from fifty to seventy at the present time During recent years the School has developed dairying farming and poultry raising in accordance with such high standards that they now rank as real vocational training facilities One advantage of thepresent plant is its construction on the cottage plan thus affording a beginning for classifying the many types and grades of mentally deficient children who are admitted for care Such an institution is heavily handicapped in its efforts to instruct the trainable types unless it has every facility for separating the children into small groups which will permit of intensive training along every line The great need of the School is still more funds not only to enlarge its capacity and improve and extend its vocational training facilities but to employ a field worker to study the chilldren before they are admitted and above all to help adjust back into the community those giving promise of ability to be selfsupporting and useful citizens and to supervise them until they are satisfactorily established
The plan of using the state institution for mentally defective children as a training center to prepare every child who is capable of it to go out and become selfsupporting under close supervision is the iriost beneficial plan for the children besides being more economical for the State It avoids excessive building operations after the plant has once reached a reasonable size for the States needs whereas a purely custodial policy tends to add buildings indefinitely
There is till no provision for epileptics in this State and the institutions for crippled children are still without aftercare worker The Department has not kept in close touch with the schools for the deaf and blind these by decision of the Attorney General having been declared not under the supervision of the Board of Welfare
The State Sanitarium continues to struggle to maintain good standards of work against the odds of still more crowded conditions and has been commended by national authorities for the lack of restraint used with patients and for the introduction of modern ideas of treatment No beginning has yet been made toward securing a staff of social workers for field service
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COMPARISON WITH OTHER STATES
The following tables give the latest available statistics on institutions for the mentally diseased in the United States and in the Southeastern States
STATE HOSPITALS FOR MENTAL DISEASE
Based on Census Report1922
Per Capita
Per
Average 100000 Fuel
Daily of to Total Salar Pro Light
Popula tal Pop Mainte is and vi and
State Hospital tion ulation nance Total Wages sions Water Other
United States 1922 225685 205 63673159 282 110 63 30 67
Southeastern States 32057 157 7240989 226 63 59 19 85
Georgia 3918 131 93264 238 98 65 17 58
More Recent Figures
Georgia 1926 4591 153 1055904 230 87 75 71
Virginia 1926 5411 235 961595 178 L
Central 2204 349476 159
Eastern 970 198871 205
Southwestern 732 145637 199
Western 1505 267611 159
Kentucky 1925 4809 200 969880 202 63 52
Western 1544 283641 184 74 62
Eastern 1402 298956 213 67 62
Central 1863 387283 207 67 62
Tennessee 1926 2966 129 1330330 448 142 121 37 147
Central 879 409227 465 161 133 48 122
Western 1027 449472 437 137 90 39 172
Eastern 1060 471631 445 139 142 22 142
116000 collected from patients and sales
335000 of this collected from patients county treasurers and sales
For the Insane These figures for state hospitals for the insane indicate that Georgia is caring for 153 per 100000 of population while according to the U S Census figures for 1922 the United States was caring in 1922 for 205 and the southeastern states for 157 In 1926 Virginia was caring for 235 per 100000 and Kentucky for 200 Georgia therefore seriously needs more hospital room for her mentally diseased as further indicated by the woefully crowded condition of the present hospital and by the large numbers needing treatment to which the authorities have had to refuse admittance because of lack of space The present plant is now housing a thousand more than normal capacitya most dangerous situation which should challenge immediate action by the Legislature Georgia is the only state in the country caring for so large a population as nearly 5000 in a single institution the other states with populations that large have three or four regional institutions it being conceded by experts that such a plan is more efficient The
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fact that the institution has been able to maintain the high standard it has under such handicaps of oversize and of crowding is little short of remarkable At least one new institution is needed immemediately
Georgias per capita cost for maintenance is none too highit being 238 as compared with 282 for the United States in 1922 and 226 for the southeastern states
For the Georgias per capita cost for maintenance for her
Defective Training School for the Feebleminded 455 is
entirely too high but is due to the fact that her appropriation is only onefourth to onefifth as large as the other southeastern states and as a result she is caring for only 63 children which is only 23 per 100000 population as compared to 39 for the United States at large and 10 for the southeastern states as given in the U S Census for 1922 The per capita cost in the United States in 1922 was 306 and in the southeastern states was 244 The indication here is that Georgias school for the feebleminded needs larger appropriation both for increased facilities and for maintenance From the following tables it will be noted that every southeastern state listed spends over a hundred thousand contrasted to Georgias pathetically few thousand A much larger appropriation for maintenance and funds for a larger plant are a crying need
STATE INSTITUTIONS FOR FEEBLEMINDED Based on Census Report1922
Average 100000 Salar Fuel
Daily of to Total ies and Pro Light
Popula tal Pop Mainte and vi and
ulation nance Total Wages sions Water Other
36085 393 11071997 30683 11417 6456 4044 8766
Southeastern States 1929 108 469919 24400 10400 6400 2900 10100
Georgia 47 17 25000 53200
More Recent Figures
Georgia 1926 63 23 28652 45500 17100 16900 2700 8800
Tennessee 1926 266 116 148616 55800 17500
364 21 100973 27740 7472
428 18 126021 29500 10100 3700 2300 8200
Virginia 1925 759 33 136445 17977 7200 4800 5800
Totals 1880 162 540707 28800
GOALS FOR PHYSICALLY AND MENTALLY HANDICAPPED
Increased appropriation for maintenance of the State Sanitarium for the Insane appropriations for badly needed improvements in the plant at Milledgeville including fire protection and for a new hospital in some other part of the state
Increased maintenance for the State Training School for Mental Defectives at Gracewood and appropriation for increase of building facilities until they are adequate to provide training for a number of children which more nearly approaches the needs of the state
Along with increased institutional facilities there is needed a statewide mental hygiene program which will include special classes in the public schools mental hygiene clinics etc to afford scientific treatment of mental diseases and supervision before hospitalization becomes necessary
A social worker for the State School for Mental Defectives who can secure histories of children applying for admission and supervise children after discharge
A Social Service Department for the State Sanitarium to investigate applicants and adjust improved patients on their return to the community
A Crippled Childrens Division in the Department of Public Welfare which will find out the facts regarding Georgias crippled children and will foster legislation by which every such handicapped child will be at least registered by the state automatically Resources in Georgia for crippled children need to be known and to be further developed and coordinated
A social worker for the Scottish Rite Hospital for Crippled Children to handle the social investigations and services incident to admissions and in order that no child who has received treatment there need relapse because o flack of aftercare which should be supplied by the Hospital
State provision for the care of epileptics
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THE CARE OF THE AGED
CHAPTER VI
The almshouse was an ancient institution when America was discovered having its origin in the old English work house but the idea was brought to America with the colonists and the early states almost at once started building county homes for the aged At first they forced into these places the sick the feeble minded orphaned children widowed mothers and their children as well as the aged It was considered the proper way to maintain those who commit great mischiefs of being poor orphan sick or insane The result
Of Georgias 60 almshouses more than 50 are unnecessary There is a better way for most counties to handle this problem
58
was that these places were horrible examples of neglect and suffering After many years of waste of human resources and money the states realized the inadequacy of such a system and and began building institutions for the care of the insane and feebleminded and hospitals for the sick Agencies were developed to give foster home care to homeless children and pensions to widowed mothers so today we have come to a time when about the only people left for the old almshouse are the aged dependents an old grandmother whose children have left her to the mercy of friends for example or an old couple who have no children or property
It is not known just how many almshouses Georgia had in those beginning days but at least the state has been more fortunate than some in having no ancient law requiring each county to build and maintain an almshouse Rather each county has been free to care for its aged as it saw fit
Realizing however that the type of care given these old people should be the responsibility of the state the Legislature delegated to the State Department of Public Welfare from the time it was established in 1920 the supervision of homes and the responsibility for advising with the county on the care of the dependent aged and infirm At that time the new Department found 70 county almshouses scattered over the state with deplorable conditions existing in many of them
Ten Almshouses Today there are 60 almshouses and as a result of
dse the work of the Department each year has seen
one or two of the smaller counties abandoning the almshouse for private home care and supervision of its old people Such a plan usually requires the service of a welfare worker who helps these old people find comfortable and happy homes among their relatives and friends and for which the county pays any necessary board One county however has recently closed its almshouse on the recommendation of the Department and the county commissioners themselves found boarding homes for the two old inmates for whom the almhouse had been maintained This has meant a large saving of dollars and cents every month to the county but it is impossible to measure the saving in peace of mind and body to this old woman and man who had lived in a room amid rags and dirt which could not be equaled even by stables and kennels
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Bibb Countys old poor farm and the same countys new county farm
Can This Although the Department can report great im
Be Home provement on the part of many of the almshouses
especially in equipment and provisions for the helpless yet many of the smaller counties are still maintaining a county home that belies the name of hometumbleddown shacks often vermin ridden They are not equipped with proper toilet facilities bathing facilities nor any other minimum requirements for sanitation and health and they are usually heated by fireplaces and lighted by kerosene lamps In some instances they are directly connected with the prison camp and under the supervision of the prison warden In two instances inmates are kept in the barracks with prisoners a tragic picture of the old and helpless who are at the mercy of the public In theory an almshouse is to provide care which would otherwise be denied these unfortunates while in fact the condition of an old person is seldom bettered by being placed there for care
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At least once each year the Department of Public Welfare has visited every almshouse in the state and has in addition to these visits and at the request of the county commissioners made family studies of the inmates of 5 almshouses Visits to the homes of the relatives and friends of these people have revealed again and again the need of a county welfare worker to investigate all applications for county relief and care and how such a worker can guide the plans for these people so that they will receive better and more kindly care as well as relieve the county of a great burden One progressive south Georgia county for example has closed her almshouse since the county welfare worker found a boarding home for each of the ten inmates The county commissioners point with pride and naturally so to the 180000 which the worker saves the county each year
As in administering the county poor relief the Department has found that the county maintaining an almshouse is as a rule blindly continuing a poor business proposition Taking for granted that it serves the purpose for which it was intended scarcely questioning its cost it is often not until the Department brings forward figures and facts to prove their losses that the county is aroused to a serious consideration of the situation
The Department found that one south Georgia county maintains an almshouse at a cost of 30000 for one aged woman Old and bedridden she is kept in a cottage which is a part of the prison camp and is cared for by prisoners and fed from the prison table
In a north Georgia county an almshouse with a large cottage and other necessary farm equipment is also used to take care of one inmate This person is a fairly young woman of good health who has seven brothers and sisters The county is paying 700 per month for her care besides giving the superintendent the free use of the farm and its equipment
Contract In another county the Department found that the
Method Fails officials place the almshouse inmates under the care of a farmer paying him so much per head to feed and clothe them At the time of the last inspection of this place the conditions were deplorable The contract method is subject to a
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good many abuses in that it opens up to the superintendent the temptation to cut down on the expenses in order to make money
In still another county there is one old couple being given custodial care by the county which allows them to stay in a small cottage on the prison farm The arrangement here is identical to that of permitting this old couple to live on a pension and in a private house yet they are subjected to the humiliation of being taken to the poor farm and the county pays for the upkeep of the farm
In addition to the old people who find their way into the almshouse the Department discovers some younger people placed there until something can be done Weeks lengthen into months and months into years and that something is never done Two small boys left orphans are put in an almshouse Finally the younger is placed in an institution for children but the older is turned down because he is too old and he is under fourteen After several months in the almshouse questionable looking relatives come and get him and no more is heard of him There is the case of the father being put in the jail and the poor unresourceful pinchedfaced little mother with her half dozen children is placed in the almshouse by kind but unwise neighbors until something can be done A young mother is left a widow with three small childrenthe baby is but one week old at her husbands death she is sick and in despair There is no money and she cannot work her relatives are poor she is forced into the almshouse with her little children With what it costs the county to keep them in the old almshouse she could have been helped in a most constructive way and this bitter chapter in her life need never have been experienced Yet her benefactors wonder why this woman is rebellious and unappreciative of what they have to offer

The belief that only a few of the largest counties of the state really have any need for an institution to care for aged and dependent people was set forth in the last annual report Since then the Department has had a still better opportunity to study the almshouses and their connection with the countys problems and this belief has been even more firmly established The average rural county of the state can care for its poor in a normal yet less expensive way
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Need Hospitals The Department recognizes that in the larger counFor the Aged ties of the state perhaps five in all there is a real need for a public institution to care for patients suffering from chronic and incurable disease There is no excuse for an almshouse of the old type but an institution equipped to give semihospital care for the old people who cannot be given home care will fill an obvious need In order that the people most needing this care shall receive it and that the county may be protected in providing only for its own citizens the Department urges every county home of this type to employ a social worker to investigate all applications and to readjust the patients in their homes where an improved Condition makes this possible
Bibb County might easily serve as an example for all the larger counties in the state This county has recently taken a forward step by building a modern home equipped to give custodial care to indigent people At the request of the Bibb County officials the Department of Public Welfare made a family study of each inmate of the old Roff Home which was used to house the countys poor On the basis of the findings of this study the Department recommended that a building designed to give semihospital care to chronic and incurable aged and dependent people be erected This building was completed in November 1926 at a cost of 5908733 The entire plant of the institution is upder one roof and covers a comparatively small area but races and sexes are entirely separated The building is equipped with every modern comfort and convenience
Muscogee has set an example which might well be emulated in placing the responsibility and supervision of its county almshouse under a private board This board has taken an active interest in the welfare of the old people and has gradually developed an institution which now gives semihospital care
Floyd County has also equipped its county home to care better for the aged and sick
Based on the inspections made by the Department in 1926 the following is an analysis of the population and cost of the Georgia almshouses
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Total number of almshouses 61
Total population 862
Classification of Inmates
White men 236
White women 326
Negro men 159
Negro women 132
Children 9
Mental 58
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Deafmutes 15
Crippled or bedfast 130
Averages
Annual per capita cost 21947
Highest per capita cost
of single institution 70000
Lowest per capita cost
of single institution 7223
Average population per
almshouse 141
Average population of 5
largest institutions 65
Average population of other
56 institutions 9
Number of almshouses mak
ing improvements during
the year 20
Total cost of improve
ments 1208500
Not including new Bibb Coun
ty Home
Loss of property by
fires 400000
Farm and Live Stock
Total number of acres 6697
Total number of cows 149
Total number of hogs 789
Total number of chickens1712
Total number of horses
and mules 63
Total number of goats 8
Total number of employeeS102 Total cost of operation for 192618918055
Married couples 35
Widowed 539
Single 137
Separated 42
Admissions 377
Discharges 189
Deaths 238
Total cost of 5 largest institutions 8069975 Average per capita
cost of same 24604
Total cost of other
56 institutions 10848080 Average per capita
cost of same 20315
Almshouses with 5 or less
inmates 16
Almshouses with between 5
and 10 inmates21
Almshouses with between 10
and 20 inmates 15
Almshouses with more than 20 inmates 20
Almshouses under management of prison warden All of these are completely separated from prisoners excepting two cases 18
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Farm is of If the use of these farms the use and depreciation
Doubtful of the property food stuff raised on the farms live
Value stock and other such things were all taken into
exact consideration the per capita cost of keeping an inmate would probably be twice as high as the actual money cost which is cited in the tables As has also been stated the counties take the old almshouse for granted comparatively few of them keep exact accounts and never really know just what is the actual cost
The operation of a farm in connection with the almshouse is a rather strange arrangement since there are less than a dozen inmates of the 862 who ever do any work on the farms and these do so very little that their services are negligible An almshouse should have as its only purpose the care of sick and aged people and to operate a farm in connection with it only tends to take the time of the superintendent and the other employees away from the inmates It is probable that if accounts were kept on the operation of the farm the county would probably come to realize that the farm is conducted at a deficit
Privately Operated In addition to the sixty county almshouses in Homes for Aged the state there are sixteen homes for the dependent aged operated by private organizations some of which are subsidized by the city or county government The population of these institutions range from as many as one hundred to as few as three and the cost of maintenance from 13000 to 291 Many of the principles applying to county almshouses apply as well to these private homes
In fourteen privately operated institutions for the aged there were a total of 327 people at the time the reports and inspections were made241 women and 86 men The cost of operating these for 1926 was 6355727 There were 40 people employed to care for these homes The government of each institution is in the hands of a private board and their supports come from various sources churches county and city subsidy popular subscriptions endowments and private donations
Condition of As a whole these privately operated homes are in
Homes much better condition than the almshouses With
only two or three exceptions they are well equipped immaculately clean and the inmates are comfortably and properly
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clothed fed and sheltered The reason for this is that the organizations supporting these homes take a deep personal interest in the homes and the inmates
GOALSTHE CARE OF THE AGED
1 Almshouses in the larger counties conducted as hospitals called county infirmaries admissions limited to persons in need of nursing care or medical treatment applications for admission investigated by a social worker all able bodied dependent aged to be kept with relatives or in private boarding homes
2 Almshouses in all counties except the larger ones to be closed the aged to be cared for in the homes of relatives or boarding homes with special medical and nursing care when necessary under the direction of a trained social worker
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THE CARE OF COUNTY JAIL PRISONERS
CHAPTER VII
Back in those early days when Georgia was a new State the Legislature found it necessary to prescribe rules and regulations about county jails their management and the treatment of the people who were confined in them In these early days there were not very many people so confined because for one reason in 1800 only about 160000 people lived in the infant commonwealth of Georgia There were no cities then towns were few and small transportation was in its infancy and a large part of the present area of Georgia was still in the hands of its original tenants the Indians Such few settlers as there were ordinarily stayed rather close home and life then was very simple and primitive
Early But even in the late years of the eighteenth and
Regulations the early years of the nineteenth centuries there
were jails in Georgia and the lawmakers provided by an Act of February 21 1796 that each county should maintain and keep in good repair one satisfactory jail with the necessary apartments for the safekeeping of criminals and debtors The high sheriff of the county was made the jailer and by a later Act was required to procure for his prisoners medical aid furnish fire whenever the form of the jail admits the same blankets and clothing in sufficient quantity whenever persons had not the power to procure these things for themselves The sheriff was required to keep his jail in the state of cleanliness necessary to health and if he permitted his prisoners to suffer in health for lack of any of the things he was supposed to furnish this sheriff was subject to indictment and could be fined not more than 50000
It seems that the sheriff was also required to feed the prisoners although the only statement which can be found regarding this requirement is a provision in sheriffs Bill of Fees passed in 1792 and couched in the following language
Dieting a prisoner per day allowing two pounds of bread one and onehalf pounds of beef or one pound of pork with a sufficiency of water all wholesome provisions 4678c
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Dieting negroes allowing one quart of rice or cornmeal per day 1558c
One other item of the sheriffs fee bill may be cited as showing an interesting feature of the sheriffs duties in those days Sheriffs fee for whipping cropping or branding a criminal 125
The Good These were the good old days about which we
Old Days still sometimes hear the days of no railroads no
electric lights or waterworks or furnaces or automobiles These were the good old days of lots and lots of homemade and storebought liquor of slavery of poverty of illiteracy and of high and early mortality
Many things changed in Georgia between 1800 and 1920 but not much change can be found in the laws and regulations affecting the person in the county jail The Indians disappeared as did slavery the high mortality rate and some of the liquor poverty and illiteracy but the regulations which were thought satisfactory for the jails in the pioneer colony of 1800 were still believed to be ample except for minor changes for an intricate modern State of nearly three million people living in villages towns and cities Some minor changes did take place The fee bill in 1920 contained no fee for whipping cropping or branding the criminal but on the other hand it did not specify that the prisoner of 1920 should receive one and onehalf pounds of beef per day or any other amount of beef most of such regulations having been intentionally or unintentionally left to the various counties
In writing the first Code of Georgia the specifications for county jails were somewhat changed and then provided and still provide that this building shall be of sufficient size and strength to contain and keep securely the prisoners who may be confined to it and the building must have at least two apartments properly ventilated so as to secure the health of those confined therein one of these apartments being for males and one for females In 1887 it was provided that the grand juries of the various counties should inspect the county jails These were some of the minor changes which took place but up until 1920 there seemed to be no consciousness that the State had any interest whatsoever in those of its citizens
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who were confined in the county jail awaiting trial although these prisoners were charged with violating not the county but the state laws
Dual Even in the county there has always been a dual
Management responsibility for the county jail the county com
missioners or ordinary being required to build and furnish it and the sheriff to manage it and shoulder the responsibility for the prisoners entrusted to his care This dual responsibility naturally sometimes leads to conflicts for if the commissioners do not furnish a safe decent plant and the necessary equipment the sheriff cannot adequately care for the prisoners if the sheriff on the other hand does not give of his time and thought to the running of his jail the commissioners may furnish him the most modern and scientific plant and yet the jail conditions in that county will be unsatisfactory
In creating the State Department of Public Welfare in 1919 the Legislature caught a glimpse of the jail problem from a statewide viewpoint and in the act creating this Department placed certain duties upon it regarding the county jails
a The Legislature required that the Department of Public Welfare inspect each jail in the State at least once a year and make to the county officials responsible for the jail a report carrying suggestions and recommendations for any needed changes
b It also required county officials to submit to the Department all plans for new jails so that these plans might be studied and returned to the counties with any recommendations which might be thought wise by the Department
It will be noted that in neither of the above is there any obligation whatsoever upon the responsible county officials to accept or even consider the suggestions and recommendations made to them by the Department
Found in 1920 Soon after its creation the Department began to take stock of the jail facilities and the jail management throughout the State by making the inspections and reports required by law and by the accumulation of data and statisics regarding each county jail It was found in 1920 and 1921 that the jail in Georgia was generally speaking a dirty forgotten little
69
Detained in jail awaiting trial Mens cell in old type county jail
building which was frequently a menace to the health and nearly alwas a menace to the morals of the people confined there and through these prisoners upon their release a menace to the entire community A few samples taken from some of these early reports will show that the strong language used above is not out of place
County A1920 In this jail many were sleeping on cell floors and some cots are placed in the guards corridors There is also much doubling up three men sleeping on two single cots pushed close together
Much of the bed clothing was quite dirty
During the last general influenza epidemic it is said that there were a number of cases of influenza in the jail It is considered by many to be nothing short of miraculous that the malady did not spiead to every prisoner in the building There was of course no place in which those suffering with influenza could be isolated
This county may expect at any time almost any kind of epidemic in their county jail if the heterogenious masses of men and women
70
continue to pass in and out of its doors without any means of isolating or examining newly admitted prisoners
Many cases of syphilis in the infectious state and gonorrhea as well are said to be found among prisoners in this jailwith no dispensary in which to treat these diseases and no place of isolation for such cases as are in an infectious condition
County B1920 Here in this one cell room all prisoners re
gardless of race age or sex are placed thus permitting a most promiscous commingling of the sexes as well as of juvenile offenders with adult prisoners Any number of evils can arise from such commingling of colored and white men women and children thereby defeating the very purpose a jail should fulfill viz To safeguard the moral and physical wellbeing of those awaiting trial who have not been convicted
Some of the bunks have been completely torn out and still others are in serious disrepair It is said that the bunks in the cells are not used by prisoners on account of poor cell ventilation Only one or two contained bedding
When entering the cell room one is immediately reminded of chickens roosting in trees because of the unusual resting places of the prisoners They were scattered over the top of the cells and some had climbed to the windows which are located quite a distance from the floor As was evidenced from cots pallets and indiscriminate piles of dirty bedding prisoners do most of their sleeping on top of cells rather than in them At least this unusual sleeping arrangement has one advantage It does bring the prisoners closer to draughts of fresh air passing from window to window across the cell room
The cell room generally was quite dirty and much old filth was piled in dark corners The roof of the cell room is in such condition that when it rains water seeps through the floor below and creates a more or less continuous damp smelly atmosphere
The report of the County Health Commissioner states that Two of the women and three of the boys meaning prisoners present at the time of his inspection were under eighteen years of age One
71
man had active gonorrhea and two of the women suspicious discharges specimens of which were sent to the State Board of Health for diagnosis
County C1920 There is only one portable metal cot accom
modating one prisoner All other prisoners sleep on mattresses placed on the floor There are no bath tubs or showers The facilities for bathing are limited to one badly battered zinc tub which is too large to fill from the watercocks over the stationary wash bacns There are no facilities for hot water in the jail
County D1920 A varicolored sign was posted by the prisoners
on the door of the crowded cell blocks It spoke in no uncertin terms of a Kangaroo Court within A fine of fifty cents is imposed upon each prisoner when committed If unable to pay such fine prisoners are given twentyfive licks and a more severe flogging is said to be given if prisoners endeavor to defend themselves against such a pernicious practice The money obtained from the collection of fines is used to purchase cigarettes and the like
County E1920 The old antiquated heating system is not used
Stoves provide heat for the two compartments and oil heaters for the separate cells This is positively inadequate and should be remedied by the installation of a modern steam heating system Five large panes were broken out in the negro mens compartment and one in that occupied by the white men The prisoners have suffered severely during the cold weather especially as most of them have to sleep on steel floors with only one or two blankets
County F1920 The two cells on the first floor are quite like
dungeons Only a few rays of light penetrate the front of these cells One can barely keep a match burning in them on account of the foul humid atmosphere The small windows are heavily grated and without window panes
There are no bunks or beds of any kind in the cells Old filthy mattresses are put on the cell floors for prisoners to sleep on
There are no toilets wash basins or bath tubs in the building neither is there a city water connection or electric lights
Jail deliveries have been quite frequent It is also said that at one time a sheriff was knocked down by a prisoner while climbing the narrow stairway and six men escaped More than one fire has occurred so the sheriff stated The only flue in the building is quite defective and caused a fire last winter All floors and one of the ceilings are of wood This jail burned later cremating the one inmate in the jail at that time
County G1920 When visiting the cell occupied by the one white
male prisoner a strong odor of alcohol was present A tin cup containing corn whiskey was found covered up under the blankets of his bunk and the prisoner appeared to be slightly intoxicated
Antagonism In making these early investigations the attitude Overcome of distrust of thinly veiled antagonism and some
times of derision upon the part of responsible officials in some counties could scarcely be mistaken At that time some of them were inclined to view any investigation into their county jail as an unwarranted intrusion and to think of the investigator as a faultfinding busybody whose head was full of nothing but ideas for coddling prisoners The Department is very proud of the general change in this attitude which has taken place since 1920
Being entirely without authority to require needed changes to be made it soon became increasingly evident that the Department had one chief tool with which to work in order to influence those changes in local jail conditions which were absolutely demanded by good business and humanitarian motives This tool was education It was the education of the county officials regarding their responsibilities to the jail and its prisoners and education of a body of substantial local citizens so that the officials would feel justified in making efforts to improve the local jail
To aid in this education as well as to help with the actual inspections effort was made to form official visiting committees in the various counties These committees were authorized by law and
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Detained in jail awaiting trial Womens cell in a decent safe
county jail
since they served entirely without compensation and were citizens of the local community whose jail they were examining it was felt that their actions would be fair and unbiased toward all concerned Many such committees have been used since 1921 and by their actual accomplishments in changing conditions as well as by the tremendous educational value which they have had they have fully justified the expectations of the Department
Work of The local jail visiting committee which con
Local Committee sists of three people first studies jail standards and then makes a very exhaustive examination of the entire county jail and its management This study by the committee should not be compared at all with the rather cursory
74
visit made by a committee of the grand jury No matter how wellmeaning the grand jury may be the jail officials always know in advance when they are coming and the members of the grand jury are usually entirely without technical knowledge of jails and jail management The jail visiting committee on the other hand visits the jail frequently without notice to the authorities and has the advantage of technical assistance from the State Department of Public Welfare After a thorough study of the jail a summary of the committees findings is sent to the Department and the Departmen from this summary and from the previous history of this particular jail covering for instance such matters as the number of prisoners which it has had to accommodate in the past and such like matters and from the firsthand knowledge of membersi of the Departmental staff prepares a report to the county authorities This report may be brief or it may be lengthy depending upon the actual situation found in the county and the ability of the county to make needed changes This formal report is forwarded to the official local committee who presents it to the county commissioners the sheriff the judge of the superior court the grand jury and to certain other persons and it is customary for the committee to go over all recommendations in consultation with the responsible officials The whole idea with which the study the examination and the report is imbued is not caustic criticism but helpful suggestion and cooperation
Since the chief tool available was education the results of this work are just now beginning to be really apparent but since public understanding and true education have kept pace with jail improvement the results obtained may be expected to be fairly permanent
Ond result which has been quite evident is the change in the attitude upon the part of many county officials Most county officials now rather welcome an inspection visit by a member of the Departments staff and view it as an opportunity for consultation on jail problems which have puzzled or vexed them Sometimes it is possible to offer suggestions which are immediately helpful at other times there is no immediate solution and it is necessary to give the problem further study and to bring into consultation jail builders or prison executives elsewhere County officials always seem glad and anxious to know what other counties are doing and how it is being
75
done so that it is often possible to refer a county directly to a particular jail which contains the features which the inquiring county desires to incorporate into its own plant A few samples of the type of recommendation which have been made in the past to various counties together with the result will tend to show that most county officials when properly approached will at least give consideration to suggestions concerning the county jail
RECOMMENDATIONS County H1926
1 Plans be made and estimates secured for the building of a new jail and these plans be carried to completion as soon as county finances will permit
County I
1 A new county jail be built adjacent to or as a part of the county court house
County J1926
1 The jail be equipped throughout with substantial metal folding wall bunks
2 The furnace be placed in first class condition
3 All missing window panes replaced
4 All metal parts of cell cages including window guards and exposed plumbing fixtures be painted a light color preferably battleship gray
5 Just as soon as county finances will permit the jail be remodeled by the replacement of the antiquated lower cage with
RESULT
1926
A water and sewage system was installed in the jail where before water was carried to the jail in buckets and sewage was by buckets a few months after recommendations were returned The commissioners are also planning to enlarge the windows of the jail so that sufficient light and air may be allowed into the cells
This county during 1926 and 1927 built one of the best small jails in the South The jail contains compartments for the separation of both races and sexes is well lighted and ventilated is fireproof and secure and is so equipped that prisoners have at all times access to toilet facilities and showers The jail was built adjacent to the court house and the sheriffs residence occupies the first floor
1927
1 Recommendation complied with
2 New steam heat furnace installed
3 Recommendation complied with
4 The entire interior has been painted and calcimined a battleship gray color
5 Neither plan adopted The painting of the lower cage however made the lower cage lighter and more sanitary
76
one of modern construction and the provision of living quarters for the sheriff either in connection with the jail or adjacent thereto so that the prisoners may have constant supervision
6 All blankets in the jail be washed and a sufficient supply kept on hand for the maximum number of prisoners which may be expected to be confined in the jail at any one time
7 At least two well balanced meals be served all prisoners
8 The large cage on the first floor be used as little as possible for the confinement of prisoners
9 All long handled brooms and like objects be kept out the cages except when the sheriff is present so that window glasses may not be so easily broken out by prisoners
County K1926
1 A shower bath be installed on each floor
2 The cell cages be painted a light color preferably battleship gray and the walls and ceilings of the cell compartments be whitewashed
3 A fire extinguisher be placed upon each floor of the jail Explanation of fire hazard of jail was made
4 Women prisoners be transferred to the jail of a nearby county
County L1926
1 The hot water system connecting with the baths and wash basins be repaired
2 The necessary repairs made to the roof to place it in good condition
3 The walls and ceilings of the cell compartments be whitewashed
4 Removable slips of white unbleached material be provided for all mattresses
6 Blankets were fairly clean but there were not enough for the number of prisoners confined
7 Only one meal a day served
8 Cage has been cleaned painted and placed in usable condition
9 No brooms in cages at the time of this visit
1927
1 Recommendation not complied with although seriously considered
2 Cell cages were painted gray making jail much lighter
3 The wooden floors and ceilings were covered with tin and a new and safer stove installed
4 Three colored women were confined in the jail during 1926
1 Repaired
2 Not done
3 Recommendation followed
4 Recommendation followed
5 A rigid sanitary routine be maintained
6 As soon as hot water system is repaired a strict bathing routine be enforced requiring each prisoner to bathe when committed and at least once each week thereafter
County M1926
1 A small cage of tool proof steel be installed in the vacant room on the second floor of the jail
2 Steel folding wall bunks be installed in place of hammocks now in use
3 When the cell cages are next painted they be given a coat of paint of battleship gray color
4 Until classifications can be provided for white prisoners and women they be transferred to a jail of a nearby county
County N1926
1 Plans be made for the building of a new jail as soon as the finances of the county will permit
2 The hammocks now in use be immediately replaced by steel wall bunks
3 The stove now used as the heating system be placed in complete repair before next fall
4 All sheet iron covering the windows be immediately removed and the broken window panes replaced
5 Metal parts of cells painted a light color and cell compartment walls and ceilings whitewashed
6 A supply of cheap towels be purchased in order that each prisoner may have a clean towel at least one a week
7 Toilet paper be supplied by the county
5 Jail was in first class sanitary condition at the time of recent visit
6 The committee is not certain whether this recommendation is being complied with
1927
1 Not done
2 Not done
3 Jail not yet painted
4 Not done
1927
1 No definite plans made
2 Wall bunks had been ordered at time of committees last inspection
3 New stove installed
4 Both recommendations complied with
5 Jail interior entirely painted and whitewashed
6 Towels furnished
7 Recommendation not complied with
78
8 Necessary repairs be made to the well
9 Bedding sunned and aired at least once each week
10 Clean blankets be given each prisoner when committed and that all blankets be laundered at least once a month
8 Recommendation followed
9 Not reported on
10 Recommendation followed
The attempt has been made to give a fair sample in the extracts listed above and these extracts show that the recommendations of the Department although in no sense obligatory upon the counties do carry weight as shown by their frequent adoption It is undoubtedly true however that there are certain counties which are unwilling or unable to put into effect even the simplest suggestion regarding their county jail With the continuous process of education the probability is that these counties will become fewer and fewer in number
CHANGES IN LAW RECOMMENDED
There are certain matters in connection with the county jails where actual authority of some kind in the hands of some responsible State official could do much to supplement and expedite the educational work of the Department
We have seen that our present State laws require that the county jail shall have at least two compartments one for men and one for women A jail of two compartments does not permit the separation of white and colored prisoners which is extremely desirable for both white and colored alike A number of jails do not have even this minimum of two but under our present system if the county commissioners or ordinary as the case may be are satisfied to let their jail be deficient in this respect there is nothing which anyone can do to remedy the situation While the law requires two compartments no provision is made for enforcing this requirement The minimum number of compartments required by law should certainly not be less than four so that there may be facilities for handling separately white men colored men white women and colored women Probably the expenditure of county funds should be forbidden by law upon any new building having less than the minimum number of classifications Our statutes should also forbid the erec
tion of any county jail without the incorporating of living quarters for the sheriff or his deputy in connection with the jail proper so that the closest supervision may be exercised over prisoners at all times
Plans Should Although present laws require that all plans for
Be Submitted new jail buildings shall be submitted to the State
Board of Public Welfare for inspection and suggestion yet since there is no enforcing provision some counties will not submit their plans This is particularly true when the plans are so deficient that the county is quite sure that the Department will make radical suggestions for their change It is believed that counties should also be required to submit to the Department all plans for alterations and additions to the county jail when the total to be spent amounts to as much as 50000 and that the expenditure of county funds upon a new plant or upon major changes should be forbidden unless the plans have been so submitted If these provisions were included in the law it is believed that the expenditure of county money could be stopped by injunction by any interested taxpayer upon the showing to the Court that the plans had no been submitted as contemplated by law
Naturally there is great danger of fire in the county jail which is built of inflammable material and of course there is the probability of escape in a jail which is insecure There are several jails in Georgia which are entirely unsatisfactory on one or both of these counts It is suggested that it would be a wise provision of the law to require that upon the action of two local grand juries within a period of three years recommending that a new jail be built that the Governor of the State would request a special report from the Department of Welfare covering this particular jail and that upon the receipt of such a report the Governor should be permitted by executive order to condemn the jail if in his discretion such action is wise Upon the issuance of such an executive order the confinement of prisoners in the condemned jail over night should be made a misdemeanor
Other There are various other serious ills in our county
Serious Ills jail system such as the dual responsibility for the jail the failure in certain counties to provide prisoners with good wholesome food lack of satisfactory heat lack of
mattresses bunks and cots in others and the frequent imprisonment of prisoners with communicable diseases in close contact with healthy prisoners Sooner or later it is entirely possible that these matters will be reached by statute in the form of a code of jail laws such as has been passed by some States In Georgia the great number of small counties and the great variation in the size of the counties makes a rigid code difficult for what would be an easy simple code for a county of considerable size and wealth might well be very difficult or impossible for the small poor county These laws will not be needed for most of our counties because most counties through their county officials are willing even if not anxious to give a square deal to their prisoners It does take some time and much education to show these counties what a square deal for their prisoners is and how this square deal is also for their own selfish interests as well This difficulty is intensified by the frequent changes in the official personnel in the counties
The number of counties which may be expected to improve their jail facilities without coercion will undoubtedly increase as this scheme of education throughout the State progresses but there will probably remain a residue which it will in time be necessary to coerce by statute The future policy of the Department as to the county jails will continue to be the use of educational methods and cooperation with a view to bringing just as many jails as possible up to the point where they will be secure placs of detention where prisoners awaiting trial will have wholesome food clean bedding an opportunity to keep themselves reasonably clean and where they can be held without serious injury to health or moralsa place of detention lacking something of comfort perhaps but safe and reasonably clean
Apparently there are few people who seem able to realize the very large number of prisoners handled each year by our county jails The following tabulation will serve to show that the number of commitments to the county jail were far from negligible
County
Appling
Atkinson l
Bacon
Baker
Baldwin J
Banks
Barrow
Bartow
Ben Hill
Berrien
Bibb
Bleckley
Brantley
Brooks
Bryan
Bulloch
Burke 2
Butts v
Calhoun
Camden
Campbell
Candler
Carroll
Catoosa
Charlton
Chatham
Chattahoochee
Chattooga
Cherokee
Clarke
Clay
Clayton
Clinch
Cobb i
Coffee
Colquitt
Columbia
Cook
Coweta
Crawford
Crisp
Dade
Dawson
Decatur
DeKalb
Population County Jail Population
1921 1925 1926
10594 167 156 183
7656 115
6460 25 108 87
8298 55 108 98
19791 102 122 157
11814 20 25 40
13188 267 72
24527 461 332 411
14599 552 347
15573 230 190
71304 2191 2111
10532 112
50 80
24538 186 228
6343 57 77
26133 576 195
30836 337 285 288
12327 166 100 88
10225 65 58 68
6969 80
11709 109 231 180
9228 69 111 93
34752 382 300 250
6677 58 149 167
4536 43 150 109
100032 1456
5266 24 33 26
14312 125 228 154
18569 256
26111 382 335 397
7557 49 81 47
11159 63 94 104
7984 163 155 115
30437 378 788
18652 151 246
29332 328 305 227
11718 77 62 62
11180 20
29047 435 352 339
8893 66 59 45
18914 378 397 528
3918 59 112 52
4204 14 15
31785 504 334
44048 732 906
82
County
Population
County Jail Population
1921 1925 1926
Dodge 22540 197 121
Dooly 20522 196 203 131
Dougherty 20063 905 764 945
Douglas 10477 168 136 81
Early 18979 268 228
Echols 3313 14 41
Effingham 9985 130 83 85
Elbert 23905 225 99 209
Emanuel 25862 244 215
Evans 6594 50 99 91
Fannin 12103 96 162 183
Fayette 11396 51 77 56
Floyd 39841 792 928 659
Forsyth 11755 50
Franklin 19957 103 145 106
Fulton 232606 7632 8918 9486
Gilmer 8406 45 139 78
Glascock 4192 120 54 77
Glynn 19370 356 218
Gordon 17736 139 140 113
Grady 20306 227 317 237
Greene 18972 169 75 64
Gwinnett 30327 116 105
Habersham 10730 69 106 149
Hall 26822 348 344
Hancock 18357 206 83
Haralson 14440 63 115 86
Harris 15775 191 262 185
Hart 17944 262 206 145
Heard 11126 50 63 57
Henry 20420 115 87 64
Houston 21963 174 198
Irwin 12670 98 78 61
Jackson 24653 143 122
Jasper 16362 116 54 38
Jeff Davis 7322 16 10
Jefferson 22602 69 69 91
Jenkins 14328 268 195 140
Johnson 13546 168 157 136
Jones 13269 130 116 88
Lamar 103 47
Lanier 72 60 47
Laurens 39605 825 636 534
Lee 10904 158 76 92
Liberty 12707 59 60 80
83
County Population County Jail Population
1921 1925 1926
Lincoln 9739 31 62 44
Long 34
Lowndes 26521 449
Lumpkin 5240 50 38
Macon 17667 161 107 94
Madison 18803 95 91 180
Marion 7604 94 65 48
McDuffie 11509 144 147 158
McIntosh 5119 51 43
Meriwether 26168 106 118 92
Miller 9565 60 79
Milton 6885 40 22
Mitchell 25588 150 97
Monroe 20138 187 253 137
Montgomery 9167 163 145 111
Morgan 20i43 129 95 112
Murray 9490 80 120 96
Muscogee 44195 732 1784 1368
Newton 21680 226 171 182
Oconee 11067 120 62 50
Oglethorpe 20287 158 161 129
Paulding 14025 89 105
Peach 112 168
Pickens 8222 47 49 65
Pierce 11934 226 278 243
Pike 21212 239 163 82
Polk 20357 245 301 410
Pulaski 11587 241 170 199
Putnam 15151 144 85
Quitman 3417 36 22 29
Rabun 5746 73 90
Randolph 16721 125 124 125
Richmond 63692 1272 971 934
Rockdale 9521 65 100 90
Schley 5243 27 37 66
Screven 23552 201 218 288
Seminole 28 86
Spalding 21906 701 779
Stephens 11215 70 181 158
Stewart 12089 96 72
Sumter 29640 308 7 236
Talbot 11158 118 65 60
Taliaferro 8841 150
Tattnall 14502 60 130
Taylor 11473 67 87 64
84
County
Telfair r Terrell Thomas Tift
Toombs
Towns
Treutlen
Troup
Turner
Twiggs
Union
Upson
Walker
Walton
Ware
Warren
Washington
Wayne
Webster Wheeler
White
Whitfield
Wilcox
Wilkes
Wilkinson Worth
Population County Jail Population
1921 1925 1926
15291 111 220 224
19601 204 153 184
33044 230 203
14493 165 io 218
13897 288 68 105
3937 5 14 17
7664 155 43 62
36097 370 450 304
12466 329 144
10407 34 73 74
6455 17 26
14786 283 504 422
23370 204 368 399
24216 165 139 41
28361 594 1121 1283
11828 68 29
28147 300 225 236
14381 309 203 327
5342 32 17 38
9817 40 39 42
6105 89 49 65
16897 299 485 392
15511 205 98 87
24210 294 309 268
11376 128 85
23863 363
2895820 36217 41245 32998
Population of Georgia2895820 2922898 3031185 3058260
PCT PP u66 1405 1397
Estimated total jail prison
Estimated
85
Has Crime The figures shown in this table are rather signifi
Decreased cant They show an actual decrease in the number
of jail prisoners per thousand of population in the face of a popular belief that crime is growing by leaps and bounds Of course jail population figures are only one index as to the amount of crime They are comparable probably to the amount of bank clearings or building permits or railroad tonnage as indexes to business conditions No one of these commercial indexes is conclusive evidence but each of them is of value Judged by jail commitments crime conditions in Georgia are certainly no more alarming at this time than they were in 1921
86
STUDY OF CRIMINAL STATISTICS
CHAPTER VIII
In 1923 the Department began what was then a unique study of the criminal courts as shown by their handling of the cases brought before them This study which in its beginning was privately financed was based upon the painstaking examination of more than twelve thousand criminal court records in nine Georgia courts The study has been highly commended and has been rather widely quoted throughout the country Since this original study there have been others in various parts of the country which have been more or less similar but which clearly show the influence of the pioneer work in Georgia among these studies are those of Missouri Massachusetts and New York as well as certain city studies of New England cities to Atlanta in size
The chief defect which critics pointed out in the Georgia study of 1923 was that it failed to examine the work of the courts through a period of time long enough to show the general trend of crime and the courts This first study could not avoid this justifiable criticism but since the appearance of this study the Department has continued the unobtrusive gathering of further figures which will remedy this defect and which for the five most populous counties in Georgia will make possible the evaluation of the work of the criminal courts for a period of ten years In this work which is now under way it has been possible through the lessons learned in the pioneer study to greatly decrease the cost of securing these statistics and at present it is expected that the work of briefing nearly 140000 criminal cases upon certain vital points will be completed within the next year When this is done it will be possible to determine whether or not there has been the alleged great increase in the work of the courts in these counties between 1916 and 1925 and also how well the courts are functioning in clearing their dockets of the cases brought to them At present the work is under way in Fulton and Bibb counties and it is ready for beginning at any time in Muscogee County Because of certain differences in the systems in use in the court dockets of these three counties and those of Chatham and Richmond Counties the work will probably not be begun in these
87
two latter counties until the data is about completed in the counties which are now being studied
It is believed that this data when compiled and digested will be of unusual value to judges lawyers and to the Legislature as showing the weak points and the strong points in our present criminal code and it is hoped that upon the completion of this particular task it may be possible to compare how our courts are functioning in these comparatively large centers with how they are functioning in smaller and more rural counties
APPENDIX OF HANDY REFERENCE
LISTS
INSTITUTIONS AND AGENCIES SUPERVISED BY DEPARTMENT OF PUBLIC WELFARE
For Delinquent Children State
Georgia Training School for Boys White
and Colored JLMilledgeville Ga
Georgia Training School for Girls White Atlanta Ga
County
Fulton County Industrial Farm for Boys Hapeville Ga
Fulton County Detention HomeAtlanta Ga
Bibb County Detention HomeMacon Ga
Chatham County Detention Home Savannah Ga
Colored
Chatham County Industrial Farm for BoysSavannah Ga
Chatham County Protective Home for GirlsSavannah Ga
Fulton County Industrial Farm for BoysAtlanta Ga
Richmond County Reformatory Institute
for Boys C S Augusta Ga
Private
Juvenile Protective Association Atlanta Ga
For Defective Children
Georgia Training School for Mental Defectives State Gracewood Ga
Scottish Rite Hospital for Crippled Children Private Decatur Ga
For Dependent Children
Appleton Church Home for Girls Macon Ga
Ann Elizabeth Shepherd Orphans Home
for Girls Columbus Ga
Anson Dodge Home for Boys St Simons Island Ga
Atlanta Childs Home Atlanta Ga
Bethesda Home for BoysSavannah Ga
Robert T Daniel Memorial Home IOOF Griffin Ga
Episcopal Orphans Home for Girls Savannah Ga
Ethel Harpst Home for Girls Cedartown Ga
89
Geo W Williams Home for GirlsSautee Ga
Georgia Baptist Orphans HomeHapeville Ga
Georgia Industrial Home Macon Ga
Hebrew Orphans HomeAtlanta Ga
Hebron Home Tallapoosa Ga
Hepzibah Orphanage Macon Ga
Home for the FriendlessAtlanta Ga
Kings Daughters Home and Day Nursery Savannah Ga
McCarty Settlement HouseCedartown Ga
Masonic Home of GeorgiaMacon Ga
North Georgia Conference M E Orphans
Home 2Decatur Ga
St Josephs Male OrphanagevWashington Ga
St Marys Home for Girls Savannah Ga
Savannah Female Asylumi Savannah Ga
Southern Christian Homer Atlanta Ga
South Georgia Conference M E Orphans
Home Macon Ga
Sunshine Cottage for GirlsCedartown Ga
Toccoa Orphanage Toccoa Ga
TuttleNewton Home aAugusta Ga
Vashti School for Girls Thomasville Ga
Sheltering Arms Day Nursery Association Atlanta Ga Osgood Saunders Nursery Cornelia Moore Nursery Gate City Nursery
John F Barclay Day NurseryAtlanta Ga
Andrew Stewart Day NurseryAtlanta Ga
Stewart Ave Day Nursery Atlanta Ga
American Red Cross Child Welfare Work Savannah Ga
Colored
Mary Nelson Jones Home Augusta Ga
Carrie Steele Logan HomeAtlanta Ga
Leonard Street Orphanage for Girls Atlanta Ga
Masonic Home Schooli11ul Americus Ga
Reed Home and Industrial School Covington Ga
St Francis Orphanage for Girls Savannah Ga
Shiloh Orphanage Augusta Ga
Gate City Day Nursery AssociationAtlanta Ga
Herndon Day Nursery Piedmont Ave Day Nursery
Bethlehem House Settlement Augusta Ga
Child Placing Agency Private
Georgia Childrens Home Society State
90
wide
Atlanta Ga
Adult Institutions and Agencies State Institutions
Confederate Soldiers Home of Georgia Atlanta Ga
Georgia State Sanitarium for the Insane Milledgeville Ga
Private Institutions and Agencies
For Aged Infirm and Widows
Abrams Home Old Women Savannah Ga
Home for Incurables1Atlanta Ga
Home for Old Women Atlanta Ga
Julia Parkman Jones Home Old WomenMacon Ga
Eastern Star Home for Old WomenMacon Ga
Little Sisters of the Poor rii Savannah Ga Mary Warren Home for the Aged Women Augusta Ga
Old Womans Home Columbus Ga
Tubman Home for the AgedAugusta Ga
Telfair Home For Dependent Mothers
with Children T7 Savannah Ga
Widows Home Augusta Ga
Emergency and Transient Homes
American Rescue Workers Women and
Children
Home for the Friendless Women and
Volunteers of America Women and Children 4
Volunteers of America Women and Children
Boarding Home for Working Girls
Hospitals for Unmarried Mothers and Babies
Florence Crittenden Home a
Atlanta Gd
Macon Ga
Atlanta Ga
Savannah Ga
Columbus Ga
Atlanta Ga
Savannah Ga
Atlanta Ga
Savannah Ga

Atlanta Ga
Atlanta Ga
Savannah Ga
Maeon Ga
91
Family Welfare Agencies
Associated Charities m Albany Ga
Family Welfare SocietyAtlanta Ga
Family Welfare Bureau Columbus Ga
Family Welfare Society Savannah Ga
Family Welfare Association PublicAugusta Ga
Society for Organized ServiceMacon Ga
United Charities 4Valdosta Ga
Federated Jewish Charities and Jewish
Educational Alliance fcAtlanta Ga
Jewish Educational Alliance Savannah Ga
American Red Cross Decatur Ga
American Red CrossAthens Ga
Salvation Army Relief Corps
Atlanta Columbus Rome
Augusta Macon Savannah
Colored
Colored Old Folks Home Not yet com
pleted Augusta Ga
Mills Memorial Home For AgedSavannah Ga
Neighborhood Union Child Welfare Work Atlanta Ga
Urban League Atlanta Ga
Having paid workers
92
GEORGIA JUVENILE COURT JUDGES County Judge of Juvenile Court
Appling L N Speer
Baker C M Woodfif
Baldwin W H Stembridge
Banks W M Thomas
Barrow C W Parker
Bartow G H Aubrey
Ben Hill J R Horton
Bibb Bridges Smith 1
Bleckley R D Abney Sr
Brooks W A May
Bryan Albert Wise
Bulloch Remer Proctor 21
Butts J H Ham
Calhoun J M Cowart
Camden F A Colson Sr
Campbell W S McLarin
Candler William Kitchens
Carroll E T Steed1
Charlton J H Johnson
Chatham Raiford Falligant
Cherokee Frank P Burtz
Clarke T D Bradwell
Clay R T Foote J
Clayton A J Mundy
Cobb J M Gann
Coffee W P Ward
Colquitt R A Cooper
Cook C C Smith
Coweta John A R Camp
Crawford J C Culverhouse
Decatur H B Spooner
DeKalb V S Morgan
DodgeS D Bowen
DoughertyrClayton Jones
Early 1H H Grimley Sr
Echols J E Parrish
Effingham Paul Shearouse
Elbert Clark Edwards Jr
Emanuel Alfred Herrington Jr
Evans N A Thaggard
Fannin R H Wheeler
Fayette J J Davis
Floyd Harry Johnson
CC
Ord
Ord
Ord
Ord
CC
Ord
Sp
Ord
Ord
Ord
CC
Ord
CC
Ord
Ord
Ord
Ord
CC
Sp
Ord
CC
Ord
Ord
Ord
Ord
Ord
Ord
Ord
Ord
CC
Ord
Ord
CC
Ord
Ord
CC
Ord
CC
Ord
Ord
Ord
Ord
93
Forsyth W J Tidwell
Gilmer gE A Phillips
Fulton Garland M Watkins
Franklin IR J Goble
Glascock t J Math Nunn
Glynn E C Butts
Grady L W Rigsby
Greene John S Calloway
Gwinnett G G Robinson
Hall A L Bennett
Hancock T L Reese
Hart J W Scott
Heard T M Awbrey
Henry A G Harris
Houston M L Cooper
Irwin 1James Whitley
Jackson W W Dickson
Jasper J J Winburn
Jeff Davis R Harrison
Jefferson M C Barwick
Jenkins William Woodrum
Jones j t Morton
Lamar B H Hardy L2L
Lee Homer Hay
Liberty W C Hodges
Lincoln Homer Legg
Long Melville Price
Lowndes J G Cranford
McDuffie E W Hawes
McIntosh J A Britt
Macon A C Felton Sr
Madison N C Bulloch
Meriwether M Z ONeal
MillerW C Dancer
Milton O C Shirley
Mitchell sBen T Burson
Monroe Geo W Newton
Montgomery J C McAllister
Morgan A H Winter
Muscogee Solon Davis
Newton A L Loyd
Qconee T B Fullilove
Oglethorpe L H Bacon
Peach M C Mosley
Pickens W O Westbrook
Pike G Ben Ridley
Pulaski H A HaskinsJ
94
Ord
Ord Sp
Ord
Ord
CC
CC
Ord
Ord
Ord
Ord
Ord
Ord
Ord
Ord
Ord
Ord
Ord
Ord
CC CC
Ord
Ord
Ord
CC
Ord
CC
CC
Ord
Ord
Ord
Ord
Ord
Ord
Ord
CC
Ord
Ord
Ord Municipal
Ord
Ord
Ord
Ord
Ord
Ord
Ord
Putnam
Quitman Randolph Richmond Rockdale
Schley
Screven
Seminole Spalding
Stephens
Stewart
Sumter
Taliaferro
Tatnall
Telfair
Terrell
Thomas
Tift
Toombs
Treutlen
Troup oL
Turner
Upson
Walker
Walton
Ware
Warren
Washington
Wayne
Webster
Wheeler
Wilkes
Wilkinson Worth
Mrs E W MarshallOrd
R G Methvin JiOrd
J W Ivey Ord
C C Black c v Sp
E F Cook Ord
C R Tondee Ord
T J Evans CC
T H Goodwin gOrd
T A Darsey CC
B P Brown Ord
T V Castleberry Ord
John A Cobbj Ord
M Z AndrewsOrd
C L Cowart CC
D O Kelly lOrd
L C Hoyle Ord
H J McIntyrelCC
Britt W Davis1CC
P S HaganOrd
N L Gillis SrOrd
W T Tuggle CC
E T Clark Ord
E R Ingram SrOrd
W L Stansel1Ord
G A GarrettOrd
C L Mattox Ord
C M SmithOrd
W M GoodwinCC
J H Thomas CC
J W Sherman 1Ord
H L Sears Ord
C E SuttoniCC
J E Butler Ord
C W Monk CC
Sp indicates Special Court Ord and CC indicate whether Court of Ordinary or City Court has been designated as Juvenile Court
95
JUVENILE PROBATION OFFICERS IN GEORGIA
Bibb County
John Davis 515 Second Street Macon Ga
Chatham County
Geo P Sullivan Savannah Ga
Charlotte McDonald Girls Probation Officer Savannah Ga Frank Callen Col Savannah Ga
Colquitt County
Mrs J Garrard Moultfie Ga
Dougherty County
Elizabeth Brown Albany Ga
Floyd County
Mrs G A H Harris Jr Rome Ga
Fulton County
Lottie Ramspeck J J Spratlin Tom Scoggins C M Hamby Atlanta Ga
Glynn County
Edwin C Hardison Brunswick Ga
Lowndes County
Mrs Rowena P Ward Valdosta Ga
Muscogee County
Beulah Martin R A Chappell Hattie Taylor Col Columbus Ga
Richmond County
H H Woodward Leonard Building Augusta Ga
Harriet Ganahl Court House Augusta Ga
Thomas County
Mrs W T Wilson Thomasville Ga
Ware County
To be Supplied
Waynq County
Myrtice McPipkin Jesup Ga
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SOCIAL WORK BIBLIOGRAPHY
PUBLICATIONS OF THE DEPARTMENT For Free Distribution
Pamphlets
In Loco Parentis A Handbook for Georgia Juvenile Courts with digest of laws for the protection of children
Humanizing Georgias County Jails A handbook of standards of equipment discipline and management on county jails
Analysis of 95 Georgia Jails
Crime and Georgia Courts A statistical survey of 12000 actual criminal cases
Bulletins
The County Government and Family Service Suggestions to the County Commissioners in the handling of county poor relief funds
The ParentTeachers Association and Family Service Simple suggestions for the family service committee of the local parentteacher association
The Church and Family Service Suggestions for church groups interested in relief of the distressed
The Family Service Association in the Small Community Suggestions for the group usually called Associated Charities which is not financially able to employ its own staff
The Georgia Child Placing Law Text and full explanation of act regulating placement of children in foster homes
During 1922 277 of Georgias Best Citizens Went to Jail
Public Welfare Published monthly
Grandma Mother Jane and Jim An argument for the organization of the rural county for welfare
Why What is to be done with the almshouse
The County Jail Extract from Proceedings Delinquency Division State Conference of Social Work 1926
Special Problems of Rural Social Work and Minimum Requirements of Record Keeping with Limited Resources and Help Extracts from Proceedings Community Organization Division State Conference of Social Work 1926
Building Plans
The Department has on hand floor plans for childrens institutions county jails old peoples homes which can be made available for organizations planning new builldings
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Record Forms
The Department has prepared and has for free distribution or at small cost record forms
For Childrens Institutions Social Sheet Medical History Sheet
For Juvenile Courts Petition Judgment Investigation Warrant Subpoena Summons Commitment Appearance Bond Application to Institution Medical Examination
For Family Service Committees and Associations Family History Sheet Confidential Exchange Forms
For County Jails Questionnaire Report for County Visiting Committee Jail Register
PUBLICATION OF OTHER AGENCIIES For Free Distribution or At Small Cost
Delinquency
Probation in Childrens Courts United States Childrens Bureau
Juvenile Court Standards United States Childrens Bureau
The Practical Value of Scientific Study of Juvenile Delinquents United States Childrens Bureau
The Legal Aspect of the Juvenile Court Flexner and Oppenheimer United States Childrens Bureau
The Federal Courts and the Delinquent Child United States Childrens Bureau
Progressive Methods of Care of Children Pending Juvenile Court Hearing Katherine Lenroot
Dependent and Delinquent Children in Georgia Childrens Bureau
Team Work in the Prevention of CrimeR P Truitt MD Joint Committee on Methods of Preventive Delinquency
New Goals in ProbationEdwin J Cooley N Y State Probation Commission
Where Are We in Probation WorkFrederick A Moran N Y State Probation Commission
Child Placing
The Selection of Foster Homes for Children Doran Reynolds New York School of Social Work
The Child in the Foster Home Theis and Goodrich New York School of Social Work
Foster Home Care for Dependent Children United States Childrens Bureau
The Need for Psychological Interpretation in the Placement of
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Dependent Children Taft Child Welfare League of America
What Dependent Children Need Williams Child Welfare League of America
The Problem of the Unmarried Mother and Her Child Workurn Child Welfare League of America
Case Studies Case No 1 Ralph Child Welfare League of America
Childrens Institutions
The Job of Being a Trustee Russell Sage Foundation
Round Table Plan for Trustees of Institutions Russell Sage Foundation
Development of the Individual Child in Institutoins Russell Sage Foundation
Physical Care of Dependent Children in Institutions Russel Sage Foundation
Cure of Bedwetting in Institutions Russell Sage Foundation
Education of Dependent Children in Institutions Russell Sage Foundation
Admission and Discharge of Children in Institutions Russell Sage Foundation
HandbookInstitutions for Dependent Children Federal Childrens Bureau
School Grounds and Play United States Bureau of Education valuable suggestions for childrens institutions
Family Service
The Confidential Exchange Russell Sage Foundation
Budget Making in Families Chicago Council of Social Agencies
Mental Hygiene
A Mental Health Primer
Community Responsibility in Mental Hygiene Williams
The Experiences of the Child and How They Affect Character and Behavior Campbell
Mental Hygiene Problems of Normal Adolescence Tafk
A State Program for the Care of the Mentally Defective Feenald
Colony and Parole Care for Dependents and Defectives Bernstein 0
General Bulletins
Transportation Agreement Committee on Transportation of Allied Agencies
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The Challenge ofvthe Chronic Patient Reprint from Survey February 1924
The Profession of Social Work American Association of Social Workers
The Visiting Teacher National Visiting Teachers Association Standards of Public Aid to Children in their Own Homes Nesbit United States Childrens Bureau
Standards of Child Care United States Childrens Bureau Community Care of Dependent Delinquent and Handicapped Children Federal Childrens Bureau
BOOKS ON SOCIAL WORK
The State Library Commission has put these in for loan service at the request of the State Department of Public Welfare and they may be borrowed from the Georgia Library Commission Atlanta for a month at a time for the cost of return postage
AddamsThe Child the Clinic and the Court
BaconSelected articles on prison reform
BestThe Deaf
BullockSelected articles on mothers pensions
DarrowCrime its causeand treatment
DaviesThe Social Control of the FeebleMinded
DeSchweinitzThe Art of Helping People Out of Trouble
DevineMisery and its Causes
Flexner Juvenile Courts and Probation
FolksThe Care of Destitute Neglected and Delinquent Children HartThe Psychology of Insanity
HealyThe Individual Delinquent
HealyDelinquents and Criminals
HoytThe Quicksands of Youth
JamisonThe Institution for Children
JohnsonThe Almshouse
KmmererThe Unmarried Mother
LewisThe Offender
MangoldProblems of Child Welfare
RalphElements of Record Keeping for Child Helping Institutions ReederHow 200 Children Live and Learn
RichmondFriendly Visiting Among the Poor
RichmondThe Good Neighbor in the Modern City
RichmondSocial Diagnosis
RichmondWhat is Social Case Work
SlingerlandChild Placing in Families
SternA Friend at Court
StewartCost of American Almshouses
SutherlandCriminology
U S Childrens BureauStandards of Child Welfare
WatersYouth in Conflict
WoodsCrime Prevention
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