TREASURY DEPARTMENT 
 UNITED STATES PUBLIC HEALTH SERVICE 
 
 , RUPERT BLUE, Sueqeon General 
 
 CORRECTIONAL METHODS 
 AND REFORMATION OF JUVENILE 
 DELINQUENTS 
 
 EY 
 
 W. L.JTREADWAY 
 
 Passed Assistant Surgeon 
 United Slates Public Health Service 
 
 ■REPRINT No. 556 
 
 FROM THE 
 
 PUBLIC HEALTH REPORTS 
 September 12, 1919 
 (Pages 2062-2070) 
 
 WASHINGTON 
 GOVERNMENT PRINTING OFFICE 
 1919 
 
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CORRECTIONAL METHODS AND REFORMATION OF 
 JUVENILE DELINQUENTS.! 
 
 By W. L. T.^iEADWAY, Passed Assistant Surgeon, United States Public Healtti Service. 
 
 Mental hygiene stands in very definite relationship to the causes, 
 care, and prevention of mental diseases. It is important not only 
 because of the serious death toll resulting from such disorders, but 
 also because of the economic inefhciency resulting from the inability 
 of a number of individuals suffering from even mild types to adjust 
 themselves properly to difficult situations in life. Furthermore, such 
 individuals are in frequent conflict with the customs and conventions 
 of society. Reports of crimes and misdemeanors committed by them 
 convey a very definite meaning to those who are familiar with the 
 abnormalities of conduct of persons suffering from mental diseases. 
 The frequency of such conflicts is a reliable index of the magnitude of 
 one phase of tlie mental hygiene problem. 
 
 Recent studies, conducted by the Public Health Service, of the 
 mental condition of the inmates of private and State schools for the 
 reformation of juvenile offenders, have demonstrated that numbers of 
 these inmates are under average in mental development or suffer 
 from some form of iDsychic disturbance (1) ^. Mental disorders arising 
 during early life tend to bring children suffering from them within 
 the purview of the criminal code and in large part are responsible for 
 the failure of such children to respond to efforts at reformation. 
 ■ Of 633 children of this type examined (493 boys and 140 girls) 470, 
 or 74 per cent of the boys' and 76 per cent of the girls, were mentally 
 normal. Of the abnormal boys observed, 15.4 per cent were mentally 
 retarded, 7.5 per cent were feeble-minded, 1 per cent were doubtful 
 as to eventual mental develoijment, and 2.4 per cent were psycho-, 
 pathic. Of the latter group, one-half manifested jDervorted sexual 
 instincts in the form of homosexuality. Of the abnormal girls ob-| 
 served, 10 per cent were mentally retarded, 9.3 per cent were feeble-' 
 minded, 0.7 per cent were doubtful as to eventual mental develxjp-; 
 ment, and 3.5 per cent were psychopathic. To make quite plain the! 
 problem involved in the reformation of offenders of this type, it is 
 necessary to review briefly the history of the methods adopted for the \ 
 reformation of juvenile delincj[uents in the United States.' 
 
 1 Eeprint from the Public Health Reports, vol. 34, No. 37, Sept. 12, 1919, pp. 20B2-20/0. 
 
 2 Number indicates reference cited. See page 10. 
 
 139859°— 19 3 
 
4 
 
 COKKECTIONAL METHODS JUVENILE DELIH-QUENTS. 
 
 Brief History of the Correctional Methods for the Reformation of Juvenile 
 Delinquents in the United States. 
 
 Prior to 1825 all juvenile offenders of both sexes were housed and 
 cared for in prisons and jails along with adult criminals. This 
 method of care did not result in the reformation of juvenile offenders, 
 but aided those who were adept pupils to become more conversant 
 with the methods of older criminals; it served as a school of vice and 
 crime for the juvenile delinquent. 
 
 The New York Society for the Prevention of Pauperism wisely 
 considered the feasibility of providing a separate institution for the 
 reformation of juvenile offenders. This society later became (2) ^ 
 "The New York Society for the Reformation of Juvenile Delinquents/' 
 and through its efforts the first separate institution in the United 
 States for the reformation of the juvenile delinquent was opened in 
 New York City on January 21, 1825. The institution was known as 
 the "New York House of Refuge" (3),^ and it cared for offenders of 
 both sexes. In 182G the New York Legislature authorized this 
 institution to receive children from any city or county in the State 
 and provided that the commissioners of health should pay to the 
 institution any siirplus from the funds not required for the mainte- 
 nance of the Marine Hospital (4).' In the same year the House of 
 Reformation for Juvenile Offenders was established in Boston. In 
 1828 a similar institution was opened in Philadelphia, and in 1847 (5) ^ 
 the Boj^s' House of Refuge was established by the city of New Orleans. 
 
 The State of Massachusptts established the first reform school for 
 boys in 1847. It is now known as the Lyman School for Boys. 
 
 The establishment of the above-mentioned institution for the 
 reformation of the juvenile delinquent had for its aim the removal of 
 juvenile offenders from the influence and teachings of the adult 
 criminal. 
 
 The next step in the reformation of juevnilo offenders was the 
 separation of the sexes (6)/ and the inauguration of separate insti- 
 tutions for boys and girls. This need was first recognized and the 
 first step made ia its direction at the Boston House of Reformation, 
 where a committee recommended separation of the sexes. 
 
 The next advance in the reformation of juvenile offenders was the 
 inauguration of a State visiting agency, whose duty consisted of 
 visiting and reporting on families before children were indentured 
 to them. The first State visiting agency was established in Massa- 
 chusetts in 1869 (7).i 
 
 Prior to the adoption of the provision for the separation of juvenile 
 and adult offenders it was recognized that criminals in general were 
 often ilUterate and without definite occupation. Since the inaugura- 
 tion of the first institution for the reformation of children who were 
 
 'Number indicates reference cited. See page 10. 
 
COEKECTIONAL METHODS JUTCNILE DELIK-QtrEKTS. 
 
 5 
 
 criminally, inclined an attempt has been made to give them some form 
 of education. Tlie logical sequence of tliis endeavor was the estab- 
 lishment of certain industrial requirements in connection witli tliese 
 institutions. At first, children were "farmed out" at an hourly rat«, 
 or a rate fixed on the basis of piecework. Later, and the practice 
 still continues in some institutions, tlie industries were provided for 
 financial gain only, the products being either used in tlie institution 
 or offered for sale on the market. Somewliat later the industries 
 were modified so as to furnisli instruction which would be viseful to 
 the child in occupations in later life. It was found that the indus- 
 tries that were most useful in producing revenues were less apt to 
 be useful to the child in after life. Tlie plan in the bettor regulated 
 institutions of to-day is to provide a training in some industry which 
 will make the child self-supporting in the future (7) } 
 
 The first institutions for the reformation of juvenile delinquents 
 were called "Houses of Kefuge," and later, "Reform Schools." The 
 latter temi usually stigmatized the child and often interfered with his 
 advancement later in the outside world. Therefore the names of 
 these schools were changed, sometimes by legislative enactment, to 
 "Industrial Training Schools," which signified the general trend of 
 correctional methods. The term "Industrial School" soon became 
 synonymous with "Reform School," thereby defeating the intention 
 of removing the stigma. Although many institutions continue to 
 be known as Industrial Schools, others are substituting the names of 
 persons or places to designate them. 
 
 The first institutions were built on the congregate plan, and many 
 continue to bo so constructed. Following the idea that the institu- 
 tion should approach as nearly as possible a home-like arrangement, 
 the cottage plan of construction was later adopted. This plan 
 afforded a homelike or family arrangement which undoubtedly 
 influences reformation and materially adds to comfort and discipline. 
 The first institution of this character was established at Lancaster, 
 Ohio. This example has been followed in many States, and has 
 taken precedence over the earlier plan of construction. 
 
 One of the most striking and important steps in the treatment of 
 the juvenile delinquent was the rapid extension of the probation 
 system. This system involved a suspension of sentence, the child 
 being permitted to return to his own home, there to remain under the 
 oversight of a probation officer, and subject to proceedings in case 
 of future misconduct. 
 
 Probation was one of the features in the State visiting agency 
 established in Massachusetts in 1869, but had probably been in 
 operation to a limited extent prior to that date. A number of cities 
 have provided for probation of juvenile offenders in the appointment 
 of probation oflacors. The better institutions for their reformation 
 
 'Number indicates reXerence cited. See page 10. 
 
6 
 
 CORBECIIONAX, METflODS — JUVENILE DELINQTJEOTS. 
 
 provide for the probation of juvenile delinquents prior to tlieir 
 ultimate discharge. 
 
 A more recent method of dealing with juvenile offenders has been 
 the estabUshment of separate courts to deal with children's cases. 
 This prevents the actual association of children with adult offender. 
 Illinois established the first court devoted to children's cases. It 
 was established in Chicago under the provision of the juvenile court 
 law of 1899. Similar measures were inaugurated in Pennsylvania in 
 1901, in Milwaukee in 1901, and in New Yorl? City in 1902. These 
 examples have been widely followed. 
 
 It is interesting to note that the separation of juvenile offenders 
 from adult criminals, begun by the establishment of separate institu- 
 tions in 1825, was not applied to court procedure until 75 years 
 later (8).' 
 
 The Need for Psyehological Clinics. 
 
 The latest development in dealing with juvenile delinquents is the 
 creation of a psychological clinic in connection with juvenile courts. 
 The mental examination of juvenile delinquents has not been adoj^ted 
 by all juvenile courts, nor has the method of pi'ocedure in these clinics 
 been uniform. 
 
 It is surprising that so many children jjass through the juvenile 
 courts each year and receive sentences affecting in some instances 
 their entire after life without cognizance being taken of whether or 
 not their maladaptation was due to some form of mental disorder. 
 The success of reformation of the juvenile offender is de2iendent in a 
 large measure upon whether or not his antisocial tendencies are 
 directly due to some form of a diseased mind. 
 
 These studies have revealed the fact that 11 per cent of the children 
 observed in institutions for the reformation of juvenile delinquents 
 had some form of mental disorder which interfered with normal 
 adaptation. Heretofoi'e correctional methods adopted in these insti- 
 tutions have been applied togroups of children only, and no account has 
 been taken of, nor provision made for, certain abnormal types of per- 
 sonality whose maladjustment will always render them unable to 
 cope with more or less complex environments and situations without 
 individual supervision. 
 
 Abnormal Per.sonalities Observed Among Juvenile Delinquents. 
 
 Owing to the fact that certain children of abnormal personality were 
 observed during the course of these studies, it is deemed advisable 
 to append a brief description of such personalities as a guide to 
 admission to these institutions and to the necessary corrective 
 measures to be employed. 
 
 The feeble-minded boy is unable to compete on equal terms with 
 his normal fellow. Although he may be able to earn his own living. 
 
 iNumtoer indicates refMenoe cited. See page 10. 
 
COKEECTIONAL METHODS — JUVENILE DELINQUENTS. 
 
 7 
 
 through lack of training and evil companionship he is liable to acquire 
 habits of conduct which bring him into conflict with the criminal code. 
 These habits are not easily overcome, because his low intelligence 
 limits his understanding of the rights of others, and by the same 
 token he can not comprehend the debt he OM^es to society. The 
 feeble-minded boy at the time of admission to a correctional institu- 
 tion has usually already acquired vicious practices which have 
 brought him into conflict with the law. It seems reasonable to 
 suppose, therefore, that correctional methods as applied to groups 
 of children in institutions for their reformation may not have the 
 same effect upon him as upon children of normal intelligence. The 
 feeble-minded should be cared for in institutions especially pro- 
 vided and equipped for their training and guidance. 
 
 There is another class of individuals who, because of certain 
 maladaptations, can not compete on equal terms with their fellows. 
 The personality of this type is so warped by an inflated ego that it 
 does not admit the existence of the rights of others. Such persons 
 possess highly sensitized feelings and, if they are not allowed to 
 exercise their will, become violent, sullen, unreasonable, and quarrel- 
 some. They perceive slights where none are intended and go through 
 life with their ego so much in the foreground that constant inner 
 conflicts develop when slight difiiculties are to be overcome. They 
 often suddenly become furious and commit acts of violence that lead 
 to serious consequences. Usually attempts at correction are met 
 with violent resistance. Because of their egocentricity they are 
 unable to see the value of any criticism or to conduct themselves 
 with credit in difficult situations. vSuch persons are not looked upon 
 as possessing a well regulated or organized mentality. Persons with 
 this type of inferior mental or emotional equipment require individual 
 care and training in self-control.* 
 
 A considerable proportion of individuals of this egocentric person- 
 ality have had convulsive seizures at one time or another. In some 
 cases convulsions occur in early childhood and continue throughout 
 life. In others there is a remission of the convulsions with a recur- 
 rence during adolescence. In some the convulsions occur only during 
 late childhood or adolescence. On the other hand, there are those 
 of this type of personality who have never had such seizures. The 
 
 1 These cases have been recognized for many years. For example, J. CricMon Bronne as early as 1860 
 called attention to this typo o£ individual. The following is taken from his article "Psychical Diseases ol 
 Early Life," Mental Science, Vol. VI, 1859-00; 
 
 "The intellectual faculties of the person affected remain cnthe and unimpaired. He is perfectly capable 
 of perceiving and knowing and judging. He cherishes no delusions. He can not in the ordinary and legal 
 acceptance of the term he pronounced insane; and yet he is to all intents and pm-poses of unsound mind 
 as much requiring guidance, restraint, and treatment as the furious niiuiiao. He suffers from entire per- 
 version of moTal principle, from the want of every good and honest sentiment, he is actuated by impulse 
 or by the most selfish, depraved, and cruel motives." 
 
 The same author, further commenting on these cases, says; " There is not lacking those who will remorse- 
 lessly commit them to the scaUold or penitentiary, 1 ittle thinkmg that in so doing they punish disease and 
 not crime." 
 
8 
 
 COEKECTIOETAL METHODS JUVENILE DELINQUEKTS. 
 
 fact that convulsions do occur in them has led some authorities to 
 consider the egocentric personality and the epileptic temperament 
 identical. Studies conducted by the Public Health Service suggest 
 that the egocentric personality may be associated with, or even allied 
 to, the epileptic temperament. The maladjustment of these indi- 
 viduals appears to bo due to a constitutional defect or perhaps to 
 difficulties which the individual has been unable to cope with in 
 early life. 
 
 There is still another class admitted to correctional mstitutions 
 who do not profit by the usual training methods as applied to groups 
 of normal children, and who require individual methods of training. 
 Such persons show a considerable degree of activity which manifests 
 itself by motor restlessness and rapid flow of speech, a constant and 
 ever-changing motor activity. Their energy appears to be directed 
 to the accomplishment of some definite task that is never completed 
 because of the tendency to go from one scheme to another. In con- 
 versation their speech is usually rapid, loud, and sometimes boisterous, 
 with frequent change of topic and loss of the trend of thought in an 
 endeavor to elucidate some circumstance associated with the main 
 issue. In addition, they exhibit certain characteristics of emotional 
 adjustment. They are happy, jovial, and easy to become acquainted 
 with. This pleasant emotional reaction is more or less constant, but 
 at times it may be replaced by an irritabihty that is fleeting and 
 transitory in character. The characteristics of this type of per- 
 sonality when not unduly pronounced may be quite useful, but when 
 marked they materially interfere with efficiency. This is known as 
 the so-called "manic-depressive" type of personality. 
 
 Methods of correction of this group should be individual in char- 
 acter and directed toward the guidance of superfluous energies into 
 productive channels. Owing to the fact that environmental influ- 
 ences aid in bringing about a proper direction of their efforts they are 
 more amenable to ordinary correctional methods than the other 
 type of personality previously discussed. It must be borne in mind, 
 in the application of correctional measures, that persons of manic- 
 depressive personality readily develop antisocial tendencies. In 
 fact, these usually are in evidence at the time of their admittance to a 
 correctional institution. 
 
 It is now quite generally recognized that boys frequently show 
 homosexual traits of character until the period of adolescence is 
 approached. At that time heterosoxuality begins to j^lay a part in 
 their choice of reaction. When this biological change of character 
 does not occur at the approach of adolescence the earlier traits of 
 hoiuosexual tendencies remain fi:xed. Older children whose incor-. 
 rigibility is shov/n by grave homosexual acts will generally not bo . 
 benefited by correctional methods in institutions for their reforma- 
 
CORRECTIONAL METHODS — -JUVEWILE DELINQUENTS. 9 
 
 tion. The problem of recovery and correction of these tendencies 
 appears to be wholly a psychological one. 
 
 There are other individuals admitted to correctional institutions 
 whoso personality or make-up is definitely psychopathic in character. 
 These cases should be recognized and individual care, training, and 
 guidance afforded them. Because of their defects they can not be 
 expected to conduct themselves with credit when made to pursue the 
 training ordinarily adopted for the correction of juvenile delin- 
 quents in mass or groups. 
 
 Summary. 
 
 These studies have shown a high percentage of retarded and back- 
 ward children among those admitted, to correctional institutions. 
 Such cases require individual instruction to overcome faulty methods 
 of training. They should also live under the best of hygienic sur- 
 roundings and should be provided with modern school equipment 
 which will aid them in doing their school work at a maxim^um effi- 
 ciency. Especial care should be exercised in the heating, ventila- 
 tion, and lighting of their school rooms. 
 
 The presence of physical defects among the pupils of correctional 
 schools adds no doubt to the problem of retardation among them. 
 Attempts to have these remediable defects corrected will no doubt 
 aid in liberating latent mental energies, and help to bring these 
 retarded children within the limits of normal intelligence. 
 
 There is little doubt that environmental and living conditions 
 influence to some extent the manner of emotional adjustments of 
 individuals. Thus, wholesome and hygienic surroundings in these 
 institutions, coupled with formal education, supervision of play, and 
 adequate play facilities, will enable these children better to under- 
 stand the rights of others and the debt they owe society. Btit of 
 more importance is the fact that they will be better able to enjoy the 
 amenities of life, and will find other interests and ideals which will 
 aid in submerging their criminal propensities. 
 
 The presence of so many feeble-minded boys interferes with the 
 plan adopted for the correction of the normal boys in these institu- 
 tions. The feeble-minded can not be expected to control their acts, 
 nor to conduct themselves in the same manner as their more fortunate 
 normal fellows. They should be cared for in institutions provided 
 especially for them. 
 
 The fact that 11 per cent of the inmates of the institutions have 
 some form of mental disorder warrants the conclusion that the 
 problem presented by this group should be recognized and special 
 provision made for it, or that this class should be excluded from 
 admission to these institutions. The adoption of such a program 
 would contribute to make correctional institutions what they purport 
 to be, namely, schools for character building. In other words, mental 
 
10 COEKECTIONAL METHODS JUVENILE DELINQUENTS. 
 
 disorders must be taken into account in attempting tlie reformation 
 of juvenile delinquents. 
 
 Since the presence of mentally abnormal children among juvenile 
 delinquents suggests that special provisions should be made for this 
 group in correctional institutions and probationary systems, the 
 important corollary follows, that a psychopathologist should occupy a 
 place on the staff of correctional institutions and that one of simUar 
 training should servo as an arm of the juvenile courts. These meas- 
 ures would lead to a better understanding of the psychopathic child, 
 enable a better grouping of delinquents, serve in the administration 
 of disciplinary measures, and aid both in preventing the miscarriage of 
 ^ justice and in the i3roper disposition of certain cases. Furthermore, 
 the better understanding of psychopathic children would perhaps 
 serve to jjrcvcnt or to modify antisocial reactions in adolescents. 
 
 References. 
 
 (1) A Study of the Mental and Physical Status of the Citizens of the National Junior ' 
 
 Republic, Annapolis Junction, Md. By Taliaferro Clark, Ass'stant Surgeon 
 General (R), and W. L. Treidway, Passed Assistant Surgeon, United States 
 Public Health Service. (Unpublished.) 
 A Study of the Mental Condition of the Inmates of Four Colorado Institutions 
 for Minors. By W. L. Treadway, Passed Assistant Surgeon, United States 
 Public Health Service. (Unpublished.) 
 
 (2) Laws of New York, 1824. Chap. CXXVI. 
 
 (3) Laws of New York, 1826. Chap. XXIV. Sec. 1. 
 
 (4) Ibid. Sec. II. 
 
 (5) The Care of Destitute, Neglected, and Delinquent Children. By Homer Folks. ! 
 
 The MacMiilen Co. 1902. i 
 
 (6) Girls Reformatories, Reasons for Establishing. By W. P. Letch worth. Mathews,' i 
 
 Northrup & Co. Buffalo. 1887. ' 
 
 (7) Juvenile Offenders in the United States. By T. J. Charlton. In "Reformatory 
 
 System in the L^nited States." Government Printing Ofiice. 1900. 
 
 (8) The history of the develoijmcnt of correctional methods will be found in the Pro- ; 
 
 ceedings of the National Conference of Charities and Corrections, 1875, 1880; : 
 1885, 1888, 1890, 1894, 1896, 1897. ^ 
 
 o