“And if we add to such a degree of chance as perhaps must of necessity exist, the belief spread abroad in the community, whether rightly founded or otherwise, that political, personal or other improper considerations reach out and influence the decisions which are supposed to take cognizance only of the law and the facts, we have gone a long way toward a state in which every man feels justified in being a law unto himself.
“But when the law grips and the culprit finds himself behind the bars of the jail or the reformatory, what processes have we set in motion? I suppose that of all the factors that have entered into the production and encouragement of crime, the consensus of opinion among those competent to judge would place the county jail foremost. With what inconceivable callousness we have thrown into promiscuous association those not yet determined to be guilty of an offense (and of whom a goodly number will finally be declared innocent) and those against whom the judgment of conviction has been entered! With what inconceivable shortsightedness we have mingled those guilty of the least offenses with those to whom vice and crime have become second nature, and under circumstances of enforced idleness and enforced association! Worst of all, children arrested for even the slightest offenses, and occasionally for no offense other than homelessness, have been unintentionally made the pupils of adepts in every form of vice and crime. I am painting no imaginary or fanciful picture; I am describing the thing that has existed, and still exists, throughout practically the entire United States. The county jail is the classic instance of an institution established to serve one purpose and actually serving exactly the opposite purpose, intended to promote the good order of the community, and actually a most potent factor in every form of demoralization, an agency by which the traditions of crime are handed on undiminished from one generation to another, by which the ranks are kept full and new recruits at least equal in numbers those who drop out.
“And as to our penal institutions for the care only of convicted offenders for considerable periods of time, what is the net effect of prison life upon the prisoner? We would like to think that the work of John Howard has been substantially completed. We gladly recognize the fact that a large and increasing number of prison officials, such as those present at this national congress, sincerely desire and earnestly labor for the good of their prisoners, but I suspect that they would agree with us that the inherent and almost unescapable tendency of prison life, even in the best institutions, is not to build up either the physical or moral stamina; and unfortunately not all officials of penal institutions are in attendance at this congress, and not all are represented by the spirit which is here present. The work of John Howard has to be done over again with each generation. There are only too many prisons to which the biting words of Oscar Wilde would apply:
“The vilest deeds like poison weeds
Bloom well in prison-air:
It is only what is good in Man
That wastes and withers there:
Pale Anguish keeps the heavy gate,
And the Warder is Despair.
“For they starve the little frightened child
Till it weeps both night and day:
And they scourge the weak, and flog the fool
And gibe the old and gray,
And some grow mad, and all grow bad,
And none a word may say.
“With midnight always in one’s heart,
And twilight in one’s cell,
We turn the crank, or tear the rope,
Each in his separate Hell;
And the silence is more awful far
Than the sound of a brazen bell.
“And never a human voice comes near
To speak a gentle word:
And the eye that watches through the door
Is pitiless and hard:
And by all forgot, we rot and rot,
With soul and body marred.
“The establishment of juvenile reformatories has always indicated a realization of the evils of leaving children uncared for and equally of the evil of committing those of tender years to penal institutions. Born of a benevolent purpose, to what extent have they in practice realized the intent of their founders? When we contemplate the extent to which prison methods have been reproduced in juvenile reformatories; the extent to which cells and bolts and bars have been deemed necessary; the severe and ofttimes brutal punishments inflicted; the mingling of those of tender years with those much farther along in the school of crime; the absence until recently, and in many instances at present even, of facilities for suitable industrial training; the woeful inadequacy of any system of care or oversight while on parole, we are obliged to admit that even the juvenile reformatory has not been an unmixed blessing; that many have learned within its walls far more about wrongdoing than they knew before; and that its régime has been too often far removed from that which would develop strength of purpose and strength of character.
“The recent revolution in the methods of some reformatories which find its most complete expression in the New York State Agricultural and Industrial School of Industry, near Rochester, N. Y., is the strongest evidence of the weakness of the other plan. At this institution the boys are subdivided into groups of twenty-two each. These groups are not placed closely about a central “Village Green,” but are scattered as widely as possible over an area of fourteen hundred acres of fine farming land. Each group has not only its cottage, but its barn, its live stock, etc. The boys lead as nearly as possible the life of the ordinary farmer’s son. You might drive through the grounds of the institution without recognizing it as an institution. Its work is commended to the serious consideration of all those interested in juvenile reformatories.
“At the outset we indicated, however, that the great forces for the prevention of crime are to be found not in institutions, but in influences; not in repression, but in development; not so much in discipline as in affection; not in coercion, but in care. To provide these things, it is not always necessary to remove the juvenile offender, even though he be a real offender, from his home. We have in the past decade witnessed an extraordinary development in many States of the Union of a system which is in effect an effort to carry personal interest, care, affection, uplifting influence, inspiring personality, into the home. This is the probation system. The probation officer is simply a representative of the community striving to make up that which has been lacking; to counteract the slowly acting influences which have made for deterioration; to set in motion the recuperative factors in the individual and in his immediate environment.”