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diff --git a/.gitattributes b/.gitattributes new file mode 100644 index 0000000..6833f05 --- /dev/null +++ b/.gitattributes @@ -0,0 +1,3 @@ +* text=auto +*.txt text +*.md text diff --git a/18932-8.txt b/18932-8.txt new file mode 100644 index 0000000..9adf339 --- /dev/null +++ b/18932-8.txt @@ -0,0 +1,4101 @@ +The Project Gutenberg EBook of Mental Defectives and Sexual Offenders, by +W. H. Triggs, Donald McGavin, Frederick Truby King, J. Sands Elliot, Ada G. Patterson, C.E. Matthews and J. Beck + +This eBook is for the use of anyone anywhere at no cost and with +almost no restrictions whatsoever. You may copy it, give it away or +re-use it under the terms of the Project Gutenberg License included +with this eBook or online at www.gutenberg.org + + +Title: Mental Defectives and Sexual Offenders + Report of the Committee of Inquiry Appointed by the Hon. + Sir Maui Pomare, K.B.E., C.M.G., Minister of Health + +Author: W. H. Triggs, Donald McGavin, Frederick Truby King, J. Sands Elliot, Ada G. Patterson, C.E. Matthews and J. Beck + +Release Date: July 29, 2006 [EBook #18932] + +Language: English + +Character set encoding: ISO-8859-1 + +*** START OF THIS PROJECT GUTENBERG EBOOK MENTAL DEFECTIVES AND SEXUAL OFFENDERS *** + + + + +Produced by Jonathan Ah Kit, Cori Samuel and the Online +Distributed Proofreading Team at http://www.pgdp.net + + + + + + 1925. + NEW ZEALAND. + + MENTAL DEFECTIVES AND SEXUAL OFFENDERS. + + REPORT OF THE COMMITTEE OF INQUIRY APPOINTED BY + THE HON. SIR MAUI POMARE, + K.B.E., C.M.G., MINISTER OF HEALTH. + + * * * * * + +_Laid on the Table of the House of Representatives by Leave._ + + * * * * * + +CONSTITUTION OF THE COMMITTEE. + + HON. W. H. TRIGGS, M.L.C., Chairman. + + SIR DONALD MCGAVIN, Kt., C.M.G., D.S.O., M.D. (Lond.), F.R.C.S. + (Eng.), Director-General of Medical Services, Defence Department. + + SIR FREDERICK TRUBY KING, Kt., C.M.G., M.B., B.Sc. (Public + Health) (Edin.), Director Division of Child Welfare, Department of + Health. + + J. SANDS ELLIOTT, Esq., M.D., Bac. Surg. (Edin.), Chairman of + the Council of the N.Z. Branch of the British Medical Association. + + MISS ADA G. PATERSON, M.B., Ch.B. (N.Z.), L.M. (Dublin), + Director Division of School Hygiene, Department of Health. + + C. E. MATTHEWS, Esq., Under-Secretary for Justice and + Controller-General of Prisons, &c. + + J. BECK, Esq., Officer in Charge Special Schools Branch, + Education Department. + + Secretary: J. W. BUCHANAN, Esq. + + * * * * * + + +CONTENTS. + + + PART I.--INTRODUCTORY AND HISTORICAL. PAGE + + Section 1.--=Origin and Scope of Inquiry=: Mental Deficiency, + Increase of; North Canterbury Hospital Board and others suggest + Inquiry; Committee, Personnel; Nature of Inquiry; Places + visited and inspected; Sittings, Date and Place of; Witnesses + examined, and Work done; Appreciation of Services rendered; + Value of Memoranda supplied by Sir George Newman, Secretary of + State for the United States, Dr. E. S. Morris (Tasmania), Dr. + Helen MacMurchy (Ottawa), and Dr. Eric Clarke (Toronto); + Secretarial Services 2 + + Section 2.--=Two Distinct Questions=: Mental Defectives and Sexual + Perverts, Comments on 5 + + + PART II.--PROBLEM OF THE FEEBLE-MINDED. + + Section 1.--=A Menace to Modern Civilization=: Feeble-minded, + Danger of Unrestricted Multiplication; Lothrop Stoddart's + Views; American Army, Psychological Test of; Results and + Deductions 5 + + Section 2.--=Heredity= _v._ =Environment=: Genetics and + Heredity; Heredity and Environment, Aspects reviewed; + Degenerate Families, Life-histories; Dr. Macgregor, Deductions + from his Report; Degenerate Stocks imported, Effect of; + Environmental Factor, Importance of; Pre-natal and Post-natal + Care, Value of; Housing Problem; Relationship of Impaired + Nutrition, Debility, and Disease to Impaired Control; Dietetics + and Child Welfare; Picture-shows, Effect on Children, and + Recommendations; Venereal Disease Committees' Report as to + Effect of Syphilis, &c.; Director Division of School Hygiene, + Attention drawn to Report; Excessive Competition, Effect on + School-children 6 + + Section 3.--=Illustrative Cases of Hereditary Degeneracy=: Juke + Family; Kallikak Family; New Zealand Cases cited; Sir Robert + Stout's Comments 7 + + Section 4.--=Elements of the Problem=: Basic Phases, + Registration, Educational Care and Training of Feeble-minded + Children, Oversight and Supervision; Educational Curriculum for + various Groups; Residential Schools; Farm and Industrial + Colonies for Segregation 11 + + Section 5.--=Estimates as to Numbers of Mental Defectives=: + Education Department Returns; Retardation, Problem of; + Feeble-minded and Epileptic Cases, Return showing 12 + + Section 6.--=Study of Feeble-minded and Delinquent Children=: + Methods employed in other Countries; United States of America; + New Zealand; Need of Psychological Experts; Tredgold, Quotation + from 14 + + Section 7.--=Method of dealing with Mental Defectives in New + Zealand--Present Legal Provision for Notification and Education + of Feeble-minded Children and for Care of Custodial + Feeble-minded Adults and Children=: Education Act, 1914; + Provision of; "Feeble-minded," Definition of; Mental Defectives + Act, 1911; English Mental Deficiency Act; Public Schools, + Special Classes; Epileptic Children, Education of; Otekaike and + Richmond Special Schools; Nature of Institutions and Training, + with Suggestions; Caversham Industrial School; Weraroa Boys' + Training-farm; Committal, Nature of; Value of Home Life in + Comparison with Institutional 14 + + Section 8.--=Children's Courts=: Committee's Recommendations; + Clinics for Physical and Psychological Examination 17 + + Section 9.--=Policy for the Future=: Notification; English + Commission, 1908, Basic Principles laid down; Register of + Feeble-minded; Eugenics Board; Dr. Gray's Suggestions; + Psychiatrists, Suggested Appointment; Eugenic Board, Proposed + Duties and Powers; Departments to control Feeble-minded; + Marriage and Carnal Knowledge with Feeble-minded; Parents' and + Guardians' Responsibilities 17 + + Section 10.--=The Question of Sterilization=: Operations, + Nature of; X-rays, Use of; American Laws; Dr. H. Laughlin, + Chicago, Views; Central Association for Mental Welfare of Great + Britain, Opinion on Sterilization; Evidence in support of + Sterilization; Committee's Opinion and Recommendation; Eugenic + Board's Powers 19 + + Section 11.--=Segregation= 21 + + Section 12.--=The Question of Expense=: Cost to State for Want + of Supervision, Case cited; Humanitarian and National Aspects 21 + + Section 13.--=Immigration=: Introduction of Feeble-minded and + Undesirables from Overseas; Medical Inspection of Intending + Immigrants; System in Force; Committee's Suggestions; Ordinary + Passengers from Overseas, Medical Supervision of; "Prohibited + Immigrants," Definition of 22 + + Section 14.--=Summary of Findings and Recommendations= 23 + + + PART III.--SEXUAL OFFENDERS. + + Section 1.--=Scope and Origin of the Inquiry=: Prisons Board, + Resolution passed; Medical and Surgical Reports; Indeterminate + Sentence; Segregation 24 + + Section 2.--=Seriousness of the Evil=: Sexual Offenders, Numbers + serving Sentence; Government Statistician's Return of Persons + sentenced 25 + + Section 3.--=Types of Offences=: Sexual Offences; Various + Classes, with Comments on; Types found in Prisons; Inspector of + Prisons' Opinion; Sexual Perverts, Cure of 25 + + Section 4.--=Suggested Remedies=: Corporal Punishment; + Inspector-General of Mental Hospitals' Recommendations; + =Sterilization and Desexualization=; Castration; Sterilization; + British Medical Association, N.Z., Motion passed; Vasectomy and + Castration; Committee's Recommendation 26 + + Section 5.--=Scientific Treatment and Segregation with + Indeterminate Sentence=: Medical Examination; Indeterminate + Sentence; Women and Children, Protection of; Mr. Hawkins's + Evidence on Control of Sexual Perverts 27 + + Section 6.--=Summary of Recommendations=: Crimes Act; Prisons + Board, Powers of; Psychiatrist, Appointment and Duties; Eugenic + Board, Power to advise Prisons Board; Sterilization; + =Concluding Remarks= 27 + + + APPENDIX.--=Past Mistakes in Immigration=: Extract from Report + on Hospitals and Charitable Institutions of the Colony, 1888, + by the late Dr. Macgregor, Inspector-General. =The Health of + School Children=: Extract from the Report of the Director of + the Division of School Hygiene, 1924. =Return showing Sexual + Offenders= serving Sentence in New Zealand Prisons, 1924. + =Table showing the Number of Sexual Offenders sentenced under + respective Headings in New Zealand Prisons. Some Illustrative + Histories= 29 + + + * * * * * + +The Hon. the Minister of Health, Wellington. + +SIR,-- + +The Committee of Inquiry into Mental Defectives and Sexual Offenders +appointed by you to inquire into and report upon the necessity for +special care and treatment of mental defectives and sexual offenders in +New Zealand have the honour to submit herewith their report. + + + + +PART I.--INTRODUCTORY AND HISTORICAL. + + +SECTION 1.--ORIGIN AND SCOPE OF INQUIRY. + +For a considerable time there has been a growing feeling of anxiety +among the public owing to the number of mental defectives becoming a +charge upon the State, and also the alarming increase in their numbers +through the uncontrolled fecundity of this class. Furthermore, owing to +the frequency of sexual offences, many of a most revolting character, +there was a strong demand that some action should be taken to prevent +further acts of this nature; it being suggested that the law should be +altered to make it possible for surgical operations to be performed upon +these offenders. + +The North Canterbury Hospital Board considered the need for action in +this matter so great that they set up a Committee to go into the +question and take evidence, which was done, and various recommendations +were made to the Government. + +A perusal of departmental files reveals that many persons and social +bodies have urged upon the Government the desirability of setting up a +Committee or Commission of Inquiry to go into this subject. + +The Minister of Health duly considered the representations made, and +appointed the following Committee to inquire into the question:-- + + The Hon. W. H. Triggs, M.L.C. (Chairman). + Sir Donald McGavin, Kt., C.M.G., D.S.O., M.D. (Lond.), F.R.C.S. (Eng.). + Sir F. Truby King, Kt., C.M.G., M.B., B.Sc. (Public Health) (Edin.). + J. Sands Elliott, Esq., M.D., Bac. Surg. (Edin.), Chairman of the + Council of the British Medical Association (New Zealand Branch). + Miss Ada G. Paterson, M.B., Ch.B. (N.Z.), L.M. (Dublin). + C. E. Matthews, Esq., Under-Secretary for Justice and Controller-General + of Prisons, &c. + J. Beck, Esq., Officer in Charge, Special Schools Branch, Education + Department. + +The function and duty laid upon the Committee was as follows:-- + + (1.) To inquire and report as to the necessity for special + care and treatment of the feeble-minded and subnormal, and to + propose the general means by which such care and treatment, if + any, should be provided. + + (2.) To inquire and report as to the necessity for the + treatment of mental degenerates and persons charged with + sexual offences, and to recommend forms of treatment for the + various types of cases. + +The Minister of Health expressed his desire that the Committee should +hear such evidence and representations on the above-mentioned matters as +might be necessary fully to inform the Committee on the questions +referred to it, and further suggested to the Committee that the various +organizations and persons likely to be interested should be notified +that the Committee would, at a certain place and date, hear any evidence +they might desire to tender. + +The following places were visited and inspected by the Committee: The +Myers Special School, Auckland; the Waikeria Prison Reformatory; the +Tokanui Mental Hospital, Waikeria; the New Plymouth Prison; the Boys' +Training-farm, Weraroa; the Point Halswell Reformatory for Women, +Wellington; the Special School for Girls, Richmond, Nelson; the Mental +Hospital, Nelson; the Mental Hospital, Stoke, Nelson; the Te Oranga +Home, Burwood, Christchurch; the Paparua Prison, Templeton; the Special +School for Boys, Otekaike; the Caversham Industrial Home for Girls, +Dunedin; the Borstal Institution, Invercargill. + +Sittings were held at various centres in New Zealand, and a large number +of witnesses were examined, as shown in the following table:-- + + -------------------------+------------------------------------------ + Places and Dates of | + Sittings. | Witnesses examined or Work done. + -------------------------+------------------------------------------ + Wellington, 23rd May, |Preliminary meeting. + 1924. (Forenoon only) | + Wellington, 30th May, |Dr. Clark, School Medical Officer, Napier. + 1924. (Forenoon only) |Mr. J. Caughley, M.A., Director of Education. + |Professor J. Tennant, Professor of Education, + | Victoria College. + Wellington, 2nd June, |Mr. N. R. McKenzie, Inspector of Schools, + 1924. (Forenoon only) | Education Department. + |Miss N. Valentine, Education Department. + |Miss Barlow, Education Department. + |Dr. Elizabeth Gunn, School Medical Officer, + | Wanganui. + Wellington, 4th June, |Mrs. McHugh, Health Patrol, Wellington. + 1924. (Afternoon only) |Father McGrath, representing His Grace the + | Archbishop of the Roman Catholic Church. + |Mr. T. P. Mills, Superintendent, Presbyterian + | Orphanage and Probation Officer. + |Dr. Jeffreys, Medical Superintendent, Porirua + | Mental Hospital. + Auckland, 11th June, |Dr. Hilda Northcroft } Representing the + 1924. |Dr. Kenneth MacKenzie } British Medical + |Dr. E. Roberton } Association, + | } Auckland Branch. + |Dr. Mildred Staley. + |Dr. J. R. Macredy, School Medical Officer, + | Auckland. + |Canon F. W. Young, Council of Christian + | Churches, Auckland. + |Dr. Fitt, Professor of Education, Auckland + | University. + |Mrs. Nicoll. + |Mrs. Watson. + Auckland, 12th June, |Dr. Milsom, representing the British Medical + 1924. | Association, Auckland Branch. + |Professor Anderson, Professor of Moral and + | Mental Philosophy, Auckland University. + |Mr. J. Cupit, Juvenile Probation Officer. + |Mr. W. E. A. Gibbs. + |Professor Sperrin-Johnson, Professor of + | Biology, Auckland University. + |Mr. H. Binstead, Lecturer on Psychology, + | Training School, Auckland. + |Rev. Jasper Calder. + |Mr. W. S. J. Dales. + |Dr. Wilkie, School Medical Officer, Auckland. + Auckland, 13th June, |Sister Hannah, representing the National + 1924. | Council of Women. + |Miss M. Girdler, St. Mary's Home, Otahuhu. + |Mr. C. W. Carter. + |Rev. T. K. Jeffreys, Presbyterian Social + | Service Association. + |Mr. J. W. Poynton, S.M. + |Mr. N. Law, Headmaster, Normal School. + |Dr. Beattie, Medical Superintendent, + | Auckland Mental Hospital. + |Dr. D. N. Murray, Prison Medical Officer. + |Visit of Inspection to the Myers Special + | School, Queen Street, Auckland. + Hamilton, 14th June, |Dr. Douglas. + 1924. |Dr. F. S. Pinfold. + |Mr. Phillip Goodwin, Juvenile Probation + | Officer. + Waikeria Reformatory, |Dr. H. L. Gribben, Superintendent, Waikeria + 15th June, 1924. | Reformatory, and Medical Superintendent of + | the Tokanui Mental Hospital. + |Dr. MacPherson, Tokanui Mental Hospital. + |Visit of inspection paid to Waikeria + | Reformatory and Tokanui Mental Hospital. + New Plymouth, |Miss Tootell, Boarding-out Officer, Wanganui. + 25th June, 1924. |Dr. R. C. Brewster, Gaol Surgeon, New + | Plymouth. + |Mr. E. T. Holden, Secretary, New Plymouth + | Hospital Board. + |Visit paid to New Plymouth Prison. + Otekaike, 2nd July, |Miss Wylie, Head Teacher of Special School. + 1924. |Mr. William Meikleham, Manager of Special + | School. + |Visit paid to Special School for Boys and + | Farm at Otekaike. + Dunedin, 3rd July, |Mrs. Joan Murray, representing Society for + 1924. | Protection of Women and Children. + |Dr. E. Irwin, School Medical Officer. + |Mr. J. Lock, Juvenile Probation Officer. + |Dr. A. M. McKillop, Superintendent, Mental + | Hospital, Seacliff. + |Dr. A. R. Falconer, Medical Superintendent, + | Dunedin Hospital. + |Mr. G. M. Galloway, representing the Society + | for Protection of Women and Children. + Invercargill, 4th July, |Mr. M. Hawkins, Inspector of the Prisons + 1924. | Department and Superintendent of the + | Borstal Institution. + |Mr. McCarroll, Juvenile Probation Officer, + | Education Department. + |Mr. Pryde, Secretary of the Hospital Board. + |Mr. McLean, Hon. Secretary of the Prisoners + | Aid Society. + |Visit of inspection paid to Borstal + | Institution and Farm. + Dunedin, 5th July, 1924. |Visit of inspection paid to Caversham + | Industrial School for Girls. + Dunedin, 7th July, 1924. |Dr. Marshall McDonald } Representing the + |Dr. Kenneth Ross } British Medical + | } Association, + | } Dunedin Branch. + |Miss Ralston, Inspector of Industrial and + | Special Schools. + |Dr. Stuart Moore. + |Mr. A. M. Paterson. + Christchurch, 9th July, |Dr. F. V. Bevan-Brown, representing the + 1924. | British Medical Association, Christchurch + | Branch. + |Dr. C. L. Nedwill, Prison Medical Officer. + |Miss Cardale, representing the National + | Council of Women. + |Dr. A. C. Thomson, representing the British + | Medical Association. + |Rev. P. Revell, Secretary, Prison Gate + | Mission. + |Mrs. Herbert. + |Miss Hunt, Superintendent, Addington + | Reformatory. + |Mr. J. A. Blank, Attendance Officer, + | Education Department. + |Miss Baughan, Official Visitor to the + | Addington Reformatory. + Christchurch, 10th July, |Dr. Crosbie, Medical Superintendent, + 1924. | Mental Hospital. + |Dr. Levinge. + |Mr. Gumming, Juvenile Probation Officer, + | Timaru. + |Mr. William Reece, member of the Prisons + | Board. + |Professor Chilton, Professor of Biology, + | Canterbury College. + |Mr. C. T. Aschman, Headmaster, Normal School. + |Miss Howlett, representing the National + | Council of Women and Women's Christian + | Temperance Union. + |Miss Edwards, Manager of the Receiving Home, + | Christchurch. + |The Hon. G. W. Russell. + |Visit of inspection paid to Te Oranga Home, + | Burwood. + Christchurch, 11th July, |Dr. Phillipps, School Medical Officer. + 1924. |Professor Shelley, Professor of Education, + | Canterbury College. + |Mr. A. Bissett, Juvenile Probation Officer, + | Christchurch. + |Visit of inspection paid to Paparua Prison, + | Templeton. + Wellington, 15th July, |Colonel Bray, Secretary, Men's Department, + 1924. (Forenoon only) | Social Service Work, Salvation Army. + |Canon T. Feilden Taylor, Social Service + | Department of Church of England. + |Professor Kirk, Professor of Biology, + | Victoria College. + |Mr. F. S. Shell, Juvenile Probation Officer. + Wellington, 16th July, |Dr. E. Fenwick, representing the British + 1924. (Forenoon only) | Medical Association, Wellington Branch. + |Mrs. Brigadier Glover, Salvation Army Prison + | Officer and Probation Officer. + |Miss Jean Begg. + |Mr. R. W. Bligh, White Cross League + | representative. + Wellington, 24th July, |Visit of inspection to Point Halswell + 1924. | Reformatory, Wellington. + Levin, 5th August, 1924. |Visit of inspection to Boys' Training Farm, + | Weraroa. + Nelson, 22nd August, |Dr. Gray, Superintendent, Mental Hospital, + 1924. | Nelson. + |Visit of inspection to Special School for + | Girls, Richmond. + |Visit of inspection to Mental Hospital, + | Stoke. + |Visit of inspection to Mental Hospital, + | Nelson. + Wellington, 9th |Consideration of report. + September, 1924. | + (Forenoon only) | + 12th September, 1924. | " + 15th September, 1924. | " + (Afternoon only) | + 16th September, 1924. | " + (Afternoon only) | + 22nd September, 1924. | " + (Afternoon only) | + 6th October, 1924. | " + (Forenoon only) | + 13th October, 1924. | " + (Forenoon only) | + 22nd October, 1924. | " + (Forenoon only) | + 24th October, 1924. | " + 28th October, 1924. | " + (Forenoon only) | + 29th October, 1924. | " + (Forenoon only) | + 5th November, 1924. | " + (Forenoon only) | + +It will thus be seen that, apart from time spent in travelling, the +Committee have met on thirty-five days and have heard ninety-two +witnesses in person. + +The Committee would like to express their thanks to the witnesses, many +of whom went to considerable trouble to collect information and prepare +evidence. They are especially grateful to the British Medical +Association for its willing co-operation and assistance; to the large +number of members of the medical profession throughout the Dominion who +responded to the Committee's request for information; to the authorities +overseas for their response to requests for information; and to many +other persons who by means of correspondence and literature have placed +at the Committee's disposal a large amount of information which has been +of material assistance in the investigation; also to the various +Hospital Boards throughout the Dominion who so willingly placed their +Boardrooms at the disposal of the Committee. + +Sir George Newman, the Chief Medical Officer of the Board of Education +and the Ministry of Health, England, very courteously supplied the +Committee with a valuable memorandum on the care of mental defectives in +England and Wales, while the Secretary of State for the United States, +through the good offices of the American Consul-General, Mr. Edwin N. +Gunsaulus, kindly forwarded information supplied by the United States +Public Health Service regarding the legislation and regulations in force +in various States where sterilization for eugenical purposes has been +legalized. + +Information of great value and interest has also been received from Dr. +E. S. Morris, Director of Health, Tasmania; from Dr. Helen MacMurchy, +Department of Health, Ottawa; and from Dr. Eric Clarke, Toronto, +Assistant Medical Director, Canadian National Conference for Mental +Hygiene. + +The Committee further wish to make special mention of the services +rendered by the Secretary, Mr. J. W. Buchanan, whose work has been very +heavy owing to the number of witnesses examined and the extent of ground +covered in a comparatively short time. This would not have been possible +but for the complete arrangements made by Mr. Buchanan, and the ability +and energy which he showed generally in the discharge of his duties left +nothing to be desired. + + +SECTION 2.--TWO DISTINCT QUESTIONS. + +Before proceeding to the subject-matter of the Committee's +investigations and the conclusions arrived at it is necessary to point +out as clearly and emphatically as possible that the questions submitted +to the Committee were entirely separate and distinct from each other. It +is true that a certain proportion of mental defectives show their lack +of self-control in regard to sex instincts and functions as in other +respects. This is particularly the case with mentally defective girls, +and constitutes one of the chief difficulties in dealing with them +satisfactorily. Some of this class find their way into prison on account +of sexual offences, but it is very far from correct to suppose that all +feeble-minded persons are sexual offenders, or that all sexual offenders +are mentally defective. On the contrary, among sexual offenders of the +worst type, those convicted of unnatural offences, are occasionally +found to be persons possessing intellectual and artistic powers above +the average. There is something wrong in their mental, moral, and +emotional balance, as will be pointed out in the proper place, but, as a +rule, it is not the "intelligence quotient" which is at fault. + + + + +PART II.--PROBLEM OF THE FEEBLE-MINDED. + + +SECTION 1.--A MENACE TO MODERN CIVILIZATION. + +The Committee are of opinion that the unrestricted multiplication of +feeble-minded members of the community is a most serious menace to the +future welfare and happiness of the Dominion, and it is of the utmost +importance that some means of meeting the peril should be adopted +without delay. The position is the more serious because, while the +feeble-minded are extraordinarily prolific, there is a growing tendency +among the more intellectual classes for the birth-rate to become +restricted. + +An American writer, Lothrop Stoddart, in his striking book entitled +"Revolt against Civilization," expresses the fear that the very +foundations of civilization are being undermined. He finds reasons for +great pessimism as regards the future in the results of the intelligence +tests taken in the American Army during the war. + +The American War Department made psychological tests of 1,700,000 +officers and men, who were graded as follows:-- + + Grade. Percentage. Mental Age. + + A 4½ 18-19 Very superior intelligence. + B 9 16-17 Superior intelligence. + C1 16½ 15 Average intelligence. (Rarely capable + of finishing high-school course.) + C-- 25 13-14 Low average intelligence. + D 15 11 Inferior intelligence. + D-- 10 10 Very inferior intelligence. + +Assuming that these 1,700,000 men are a fair sample of the entire +population of 100,000,000 (and Stoddart says there is every reason to +believe that it is a fair sample), this means that the average mental +age of Americans is only about fourteen; that 45,000,000, or nearly +one-half of the whole population, will never develop mental capacity +beyond the stage represented by a normal twelve-year-old child; that +only 13,500,000 will ever show superior intelligence; and that only +4,500,000 can be considered "talented." "Still more alarming," the +author continues, "is the prospect of the future. The overwhelming +weight of evidence indicates that the A and B elements in America are +barely reproducing themselves, while the other elements are increasing +at rates proportionate to their decreasing intellectual capacity; in +other words, that intelligence is to-day being steadily bred out of the +American population." + +The biologist Davenport calculated that at present rates of reproduction +1,000 Harvard graduates of to-day would have only fifty descendants two +centuries hence, whereas 1,000 Roumanians to-day in Boston, at their +present rate of breeding, would have 100,000 descendants in the same +space of time. + +Mr. Lothrop Stoddart emphatically scouts the view which is occasionally +put forward to the effect that genius is a form of insanity, and that +therefore one ought to be careful about discouraging the marriage even +of epileptics and mentally unbalanced persons for fear a possible +Napoleon or Julius Cæsar or Beethoven should be lost to the world. +"Careful scientific investigation," he says, "has clearly disproved this +notion. For one thing, elaborate statistical studies of eminent persons +have shown them to be less liable to insanity than the general +population. Of course, a considerable number of eminent men can be +listed who unquestionably suffered from various neuropathic traits. But +it was not those traits that made them eminent; on the contrary, these +were handicaps. Somewhere back in their ancestry a taint was introduced +into a sound superior strain, and produced this disharmonic combination +of qualities." + + +SECTION 2.--HEREDITY _V._ ENVIRONMENT. + +The Committee feel bound to refer to the great strides made during the +last half-century towards establishing laws and theories of genetics and +heredity. Unfortunately, terms such as the "integrity of the germ plasm" +and "the Mendelian law," while marking great advances in biological +thought and science, have become too much associated in the public mind +with a depressing and fatalistic notion that heredity determines +everything and that environment can play but a very insignificant part +in human evolution, development, and progress--physical, mental, or +moral. Such, of course, is not the case. + +In ultimate origin all evolution and all heredity are the outcome, +summation, and expression of the effects of environmental influences, +acting on the whole organism under certain laws of transmission. The +laws of heredity, though as yet only partially determined, are already +sufficiently ascertained to prove for practical purposes that, in order +to promote integration and further progress in human evolution--not +disintegration and degeneration--two things are essential and +complementary. On the one hand, we must do everything possible in the +direction of improving the nutrition, health, conditions of life, and +habits of the community; and, on the other hand, we must promote and +encourage parenthood on the part of the best and stablest stocks, and do +everything in our power to discourage, or in the extreme cases even to +prevent, proliferation of unfit and degenerate strains. + +For the purpose of the present inquiry we need merely state as a +practical preliminary regarding heredity that it has been proved beyond +question that if two feeble-minded persons marry they will most probably +produce abundant offspring, of whom all may be subnormal, and a large +proportion will become a burden on the State; and that if one such +person is mated with a healthy individual an undue proportion of their +children are likely to prove degenerate or defective, and the +unsoundness will continue to make its appearance in succeeding +generations. + +While local evidence confirmatory of this came before the Committee, +first place will be given to certain classic and exhaustive +investigations and life-histories of degenerate families, going back +many generations, such as no young country could possibly supply. +However, the forcible and far-sighted report of the late Dr. Duncan +Macgregor (originally Professor of Mental Science at Otago University, +and subsequently Inspector-General of Asylums, Hospitals, and Charitable +Aid), quoted in the Appendix, shows clearly that some very degenerate +stocks imported into this country under the active immigration policy of +the "seventies" and "eighties" were already threatening, thirty-five +years ago, to become a serious tax on the country, as well as tending to +lower the high physical, mental, and moral standard established by the +original pioneers and settlers. + +We shall now revert for the moment to the environmental factor. The +first most pressing and immediate practical duty of the Government and +the community is to spare no pains to improve the status and environment +of the family so as to promote the highest attainable standard of +physical, mental, and moral health for the new generation--already in +our midst or bound to arrive in the course of the next few years. + +It is becoming more and more widely recognized that by due attention to +the pre-natal and post-natal care of mother and child an infinity of +good can be done--indeed, a great deal is already under way in this +direction throughout the Dominion. But the Committee are satisfied that +much more ought to be done to ensure for children of the pre-school and +school ages more generally favourable home conditions, and healthier +environment and habits outside the home. + +In the meantime it is obvious that very little can be effected in the +way of bettering the average heredity; but are we taking adequate +measures in the direction of improving the environment of mother and +child? The housing problem is still far from satisfactory; help in the +home can scarcely be procured, and the rearing and care of children +throughout the pre-school and school periods, in a large proportion of +cases, is neither conducive to a high standard of nutrition, growth, and +moral development, nor to the establishment of normal self-control, +especially as regards sexual habits and manifestations. The Committee +cannot ignore the fact that the leading medical and psychological +authorities lay it down as an axiom that the power of self-control is at +its highest when the individual is physically active, well-nourished, +and in perfect bodily health, and that impaired control always +accompanies impaired nutrition, debility, and disease. It has been said, +with profound wisdom and insight, that ultimately and fundamentally +reproduction should be regarded as essentially "an exuberant phase of +nutrition"; and there is no escaping the wide implication of Schiller's +aphorism that "Love and Hunger rule the World." + +In view of these considerations the Committee feel compelled to refer to +such serious handicaps to all-round health, control, and efficiency as +the prevalence of wrong feeding habits--_e.g._, giving children food +between meals and the insufficient provision of fresh fruit and +vegetables in the daily diet and the abuse of sweets. Other prominent +and avoidable handicaps, seriously affecting many children throughout +the Dominion, which ought to receive more serious attention are +insufficiency of sunlight and fresh air in the home and at school, +insufficient daily outing and exercise, lack of adequate provision in +the way of playgrounds and swimming-baths, and last, but not least, the +highly injurious practice of frequenting "picture-shows." + +As the Committee are called on to deal specially with the problem of +increasing manifestations of sexual depravity they cannot pass by the +fact that in the course of the last twenty years the younger members of +the community have been spending a steadily increasing proportion of +their time, during the most impressionable period of life, in what are +liable to prove forcing-houses of sexual precocity and criminal +tendencies. There is every reason for regarding the habit of "going to +the pictures" without adequate restrictions as contributing seriously to +precocious sexuality, and also to weakening the powers of inhibition and +self-control in other directions--powers which are the distinctive +attributes of the higher human being. + +Alongside these considerations, the bodily harm done to the young by +frequently spending their afternoons and evenings in hot, stuffy, +overcrowded halls shrinks into insignificance, though serious enough in +itself. + +The Committee endorses the opinions expressed by Education authorities, +and by practically every organization throughout the Dominion concerned +with the welfare of children, upon the harmful effect of moving-picture +shows as at present conducted. The Committee sympathizes with proposals +for reform along the following lines:-- + + (1.) Stricter censorship, not only of films, but of picture + posters, handbills, and advertisements. + + (2.) Regulations as to the age of admission for children when + unaccompanied by a responsible adult, and to such pictures as + are not pronounced by the Censor as suitable for children. + + (3.) Proper safeguards for the morals of children and young + persons within picture-theatres, including adequate + supervision of the premises. + +The Committee desire it to be clearly understood that in this report +they have not particularly dealt with mental disabilities resulting from +diseases such as syphilis, or toxic influences such as alcohol, drugs, +&c. These questions have already been covered to some extent by the +Report of the Venereal Diseases Committee, and in any case would involve +too wide a field of investigation for the present inquiry. + +An authoritative summary taken from this year's report of the Director +of the Division of School Hygiene is quoted in the Appendix as pointing +out most of the faults and mistakes in environment and upbringing to +which reference has been made, and because it draws special and +much-needed attention to the injurious effects of overwork and excessive +competition and the need for more sleep and rest. + +We would merely add to this very clear, practical statement that +encouragement of excessive competition, inside or outside the school, +for any purpose whatsoever, is costly and damaging to the whole being, +and that, in the opinion of the Committee, nothing needs to be impressed +more strongly on parents and school-teachers than Froebel's injunction, +"Give space and time and rest." + + +SECTION 3.--ILLUSTRATIVE CASES OF HEREDITARY DEGENERACY. + +_The Juke Family._ + +To show the close relationship existing between the criminal and the +psychopath the record of the so-called Juke family in America was +compiled by R. L. Dugdale. + +The descendants of one morbid couple were traced through five +generations. Whilst a small proportion were honest workers, the great +majority were paupers, criminals, and prostitutes. + +Of 540 Jukes practically one-fifth were born out of wedlock, 37 were +known to be syphilitic, 53 had been in poorhouses, 76 had been sentenced +to prison, and of 229 women of marriageable age 128 were prostitutes. +The economic damage inflicted upon the State of New York by the Jukes in +seventy-five years was estimated at more than $1,300,000, to say nothing +of diseases and other evil influences which they helped to spread. + +A more recent investigation shows that 2,820 people have been studied; +2,094 were of Juke blood and 726 of "X" blood married into the Juke +family; of these, 366 were paupers, while 171 were criminals, and 10 +lives have been sacrificed by murder. In school-work 62 did well, 288 +did fairly, while 458 were retarded two or more years. It is known that +166 never attended school; the school data for the rest of the family +were unobtainable. There were 282 intemperate and 277 harlots. The total +cost to the State has been estimated at $2,093,685. + + +_The Kallikak Family._ + +The history of the Kallikak family has been traced and fully described +in detail by Dr. Goddard, and his study shows the hereditary nature and +sociological bearings of feeble-mindedness. + +Martin Kallikak was a youthful soldier in the Revolutionary War. At a +tavern frequented by the militia he met a feeble-minded girl by whom he +became the father of a feeble-minded son. In 1912 there were 480 known +direct descendants of this temporary union. It is known that 36 of these +were illegitimates; that 33 were sexually immoral; that 24 were +confirmed alcoholics; and that 8 kept houses of ill-fame. The +explanation of so much immorality will be obvious when it is stated that +of the 480 descendants 143 were known to be feeble-minded, and that many +of the others were of questionable mentality. + +A few years after returning from the war this same Martin Kallikak +married a respectable girl of good family. From this union 496 +individuals have been traced in direct descent, and in this branch of +the family there were no illegitimate children, no immoral women, and +only one man who was sexually loose. There were no criminals, no keepers +of houses of ill-fame, and only two confirmed alcoholics. Again the +explanation is clear when it is stated that this branch of the family +did not contain a single feeble-minded individual. It was made up of +doctors, lawyers, judges, educators, traders, and landholders. + + +_New Zealand Cases._ + +But it is not necessary to go to the records of older countries to find +examples of this kind. Unfortunately, this young Dominion, whose history +as a European settlement is comprised within the lifetime of its oldest +inhabitants, is already reproducing some of the saddest problems of +civilization which perplex the people of the Old World. We started with +every advantage in the shape of a favourable climate and rich natural +resources. The original settlers were, for the most part, men and women +of sturdy determination, enterprising spirit, and strong physique. + +In the "seventies" a vigorous public-works policy was inaugurated, and +great efforts were made to introduce fresh population, the result being +that undoubtedly a great impetus was given to settlement, and the +country was fairly started on the road to prosperity. But, +unfortunately, it is now only too apparent that insufficient care was +taken in the selection of immigrants. + +The following extract from a statement made to the Committee by Sir +Robert Stout, Chief Justice, and President of the Prisons Board, +illustrates this point: "The Prisons Board has sometimes brought before +it several persons of one family who have offended against our laws, and +in the experience I had in 1884 and 1885, when looking after our +Hospitals and Charitable Aid Department in the General Government, I +found that people obtaining charitable aid had done so for three +generations; that is, grandfather, father or mother, and children were +all obtaining aid from the Government because they were unable to +maintain themselves. Some of the cases were traced, and it was found +that the grandfathers, or grandparents, had been originally in +poorhouses in the Homeland, and although they came to New Zealand and +had greater opportunities than they had in their Homeland, yet their +inability to provide for themselves continued." + +How serious the problem has already become will be seen from the +following illustrative cases selected from a large number given in the +evidence:-- + + _Case No. 1._ + +--------------------------------+ + | Father: | Mother: | + | Weak-minded. | Weak-minded. | + | | | + +----------+----------+----------+ + |Female, | + |born 1906.| + +----------+ + |Female, | + |born 1907.| + +----------+ + |Female, | + |born 1908.| + +----------+ + |Female, | + |born 1909.| + +----------+ + |Female, | + |born 1911.| + +----------+ + |Male, | + |born 1912.| + +----------+ + |Male, | + |born 1913.| + +----------+ + |Male, | + |born 1915.| + +----------+ + |Female, | + |born 1916.| + +----------+ + +All these children except one are feeble-minded, and when committed to +the care of the State were found living under deplorable conditions. +Most of these children will require lifelong control in an institution. +The total cost of maintaining this family will be approximately £9,500. +These children are cousins of another family under State control. There +are four children, two of whom are simple-minded. The mother is +feeble-minded, and the father died in a mental hospital. In this case +the mothers of the children are sisters. + + _Case No. 2._ + +----------------------------------+ + | Father: | Mother: | + | Feeble-minded. | Feeble-minded | + | | and drunkard. | + | | | + +---------+-------------+----------+ + |Female, | + |illegitimate,| + |born 1902. | + +-------------+ + |Male, | + |born 1904. | + +-------------+ + |Male, | + |born 1906. | + +-------------+ + |Male, | + |born 1907. | + +-------------+ + |Male, | + |born 1910. | + +-------------+ + |Male, | + |born 1912. | + +-------------+ + |Female, | + |born 1914. | + +-------------+ + |Female, | + |born 1916. | + +-------------+ + |Male, | + |born 1918. | + +-------------+ + |Male, | + |born 1920. | + +-------------+ + |Male, | + |born 1923. | + +-------------+ + +All these children are feeble-minded and have been brought under State +control shortly after birth. Some are now in mental hospitals and some +in special schools. All these children are lifelong custodial cases. The +cost to the State for maintenance is approximately £16,000, towards +which amount the father has contributed but £6. + + _Case No. 3._ + +----------------------------------------------------+ + | Father: | Mother: | + | Old-age pensioner in | Apparently weak mentally | + | Home for Aged People. | and morally--at present | + | | in reformatory home. | + | | | + +------------------+-------------------------+---------------------+ + |1. Female. | Female, Female, Male, | All these children | + | Prostitute | born born born | are illegitimate. | + | residing with | 1908. 1911. 1913. | Reputed father a | + | drunkard. | | drunkard and man of | + | | Male, | bad character. | + | | born 1915. | | + +------------------+-------------------------+---------------------+ + |2. Female. | Male, Male, Female, | All these children | + | Prostitute and | born born born | are illegitimate. | + | addicted to | 1907. 1910. 1912. | In most cases the | + | drink. | | father is unknown. | + | | Male, Female, | | + | | born 1914. born 1917. | | + +------------------+-------------------------+---------------------+ + |3. Female. | Male, Male, | Both illegitimate. | + | Immoral and | born 1911. born 1912. | Reputed fathers | + | generally bad | | well-known bad | + | character. | | characters. | + | Inmate of | | | + | private | | | + | reformatory. | | | + +------------------+-------------------------+---------------------+ + |4. Female. | Female, Female, | Mother married a | + | Indifferent, | born born | widower with three | + | married | 1908. 1912. | children. There are | + | criminal, now | | three more the | + | in prison. | Female, born 1916. | result of marriage | + | | | maintained by the | + | | | State. | + +------------------+-------------------------+---------------------+ + |5. Female. | Female, Female, | All delicate | + | Drunkard and | born born | neurotic types and | + | married a | 1898. 1900. | difficult to | + | drunkard | | manage. | + | although man | Female, Female, | | + | of good | born 1902. born 1905. | | + | education. | | | + | | Female, born 1908. | | + +------------------+-------------------------+---------------------+ + |6. Female. | Male, born 1910. | | + | Well-known | | | + | prostitute, | | | + | married member | | | + | of notorious | | | + | criminal | | | + | family, and | | | + | himself | | | + | criminal. | | | + +------------------+-------------------------+---------------------+ + +All these children, numbering twenty-one, were committed to the care of +the State, in most cases shortly after birth. Twelve of the children are +illegitimate. The husband of daughter No. 6 is also the father of one +each of the offspring of daughters Nos. 2 and 3. Most of the children +are delicate and poorly developed, and at least six of them are +definitely tubercular. The remainder are either neurotic or erratic in +their conduct and have given a great deal of trouble in their +upbringing. The total cost to the State for the maintenance of these +children may be quoted at £10,000, but of this amount £482 has been +recovered from the various men liable. It is difficult to assess the +State's total commitment. If some of the children have to be maintained +until they reach the age of twenty-one the additional cost will be +£3,000. There is the probability, too, that the offspring of these +children will become charges upon the State. + + _Case No. 4._ + +--------------------+---------------------+ + | Father: | Mother: | + | Addicted to drink | Drunkard and | + | and degenerate. | morally deficient. | + | | | + +------------------------------------+----------------+ + | | Female, | + | | born 1908. | + | +----------------+ + | | Male, | + | | born 1909. | + |All these children are illegitimate |Admitted special| + |and are feeble-minded, requiring | school, 1920. | + |lifelong control. Three are now +----------------+ + |inmates of mental hospitals, and | Female, | + |in time the remainder of the | born 1910. | + |family at present in special +----------------+ + |schools will be sent on to mental | Male, | + |hospitals. | born 1914. | + | +----------------+ + | | Male, | + | | born 1916. | + | +----------------+ + | | Female, | + | | born 1917. | + +------------------------------------+----------------+ + | | Male, | + | | born 1918. | + |All probably feeble-minded. +----------------+ + |Not yet brought under | Male, | + |State control. | born 1920. | + | +----------------+ + | | Male, | + | | born 1923. | + +------------------------------------+----------------+ + +An officer of the Education Department describes the home as "one of the +dirtiest and most squalid homes I have seen." The cost (including past, +present, and approximate future maintenance) to the State for the upkeep +of this family is estimated at £10,000. Nothing has been paid by the +parents towards the support of these children. In all probability, the +remaining members of the family will be brought under State control at a +probable cost of £4,500. + + _Case No. 5._ + +--------------------------------------------------+ + | Father: | Mother: | + | Drunken waster; | Feeble-minded helpless | + | subnormal; | invalid. Died shortly | + | frequently in gaol. | after children committed | + | | to care of State. | + | | | + +--------------------------------------------------+ + |Male, born 1904. | + |Tubercular. Partly | + |self-supporting. | + +------------------------+ + |Female, born 1907. | + |Tubercular. Suffers | + |from epileptic seizures.| + |Inmate mental hospital. | + |Lifelong custody. | + +------------------------+ + |Male, born 1909. | + |Subnormal. May in | + |time become partly | + |self-supporting | + |under favourable | + |conditions. | + +------------------------+ + |Male, born 1911. | + |Mentally deficient. | + |Case for lifelong | + |control. | + +------------------------+ + |Male, born 1913. | + |Mentally deficient. | + |Lifelong custodial | + |case. | + +------------------------+ + |Female, born 1914. | + |Feeble-minded and | + |badly nourished. Case | + |for permanent | + |segregation. | + +------------------------+ + |Male, born 1916. | + |Very backward. May | + |become partly | + |self-supporting | + |under favourable | + |conditions. | + +------------------------+ + +In 1916 the whole of this family was committed to the care of the State, +and at least six of them will be lifelong cases. The cost to the State, +computed up to twenty-one years in each case, is approximately £8,500, +but the additional future cost may easily be estimated at £5,000, making +in all the sum of £13,500. The father was ordered to pay at the rate of +15s. a week, but the amount recovered from him to date is only £156. + + _Case No. 6._ + +---------------------+-----------------------+ + | Father: | Mother: | + | Subnormal. Was a | Has always been | + | watersider, so | addicted to periodic | + | dirty in habits | fits of insanity. | + | that watersiders | Has been in mental | + | complained. A | hospital on several | + | sexual case. | occasions. | + | | | + +--------------------------------+----------------+ + | | Female, | + | | born 1904. | + | | Subnormal. | + | +----------------+ + | | Female, | + | | born 1909. | + |These four children were | Subnormal; | + |committed to the care of |also delinquent.| + |the state in 1917. +----------------+ + | | Female, | + | | born 1915. | + | | Subnormal. | + | +----------------+ + | | Female, | + | | born 1916. | + | | Subnormal. | + |--------------------------------+----------------+ + | | Unknown | + |Not yet brought under +----------------+ + |State control. | Unknown | + | +----------------+ + | | Unknown | + +--------------------------------+----------------+ + +The approximate cost to the State of maintaining these four children +will be £5,150, less what is recovered from the father. Up to the +present the amount received from him is £176. Should the other three +children be brought under State control, the additional cost may amount +to approximately £5,000. + +This is a glaring case of persons being allowed to marry who are totally +unfit to marry. A relative stated that the mother's mentality was in a +shocking state at the time of marriage. The father has always been +subnormal. The woman is too insane at times to attend to ordinary +household duties or matters of ordinary personal cleanliness. At the +time the children were committed the home was in a shockingly filthy +condition, and at that time was one of the worst brought under the +notice of the Department in the district. The second girl (age fifteen) +has had her hair cut for the sake of cleanliness by some kindly disposed +well-wisher. The mother allowed the dirt to accumulate to such an extent +that the whole of the girl's head was covered with a scab of dirt. She +had to enter the Hospital to have this removed. This was a most +objectionable case. After the State took charge of these children the +mother and father were still allowed to cohabit, with the result that +three more children have been born. Without doubt, these children will +also be supported by the State. The father is a sexual case, and +foster-parents of the children have objected to the father visiting them +on account of the way he handles them. + + +SECTION 4.--ELEMENTS OF THE PROBLEM. + +Wallen, in his book "Problems of Subnormality," draws attention to three +basic phases of the problem of the feeble-minded:-- + + "(1.) The obligation of society to identify and register as + early as possible all feeble-minded children. All students of + social problems will concede that feeble-mindedness is one of + the fundamental causes of our numerous social ills. It is a + prolific source of poverty, destitution, all kinds of crimes + against property and person, social immorality, illegitimacy, + and of prolific and degenerate progeny. + + "There are few problems in present-day constructive social + economics which are more important than the development of a + State-wide and a nation-wide policy for the compulsory + official identification and registration of feeble-minded + children, particularly all those who come from homes where the + conditions are not such as to guarantee continuous supervision + and support. + + "(2.) The proper educational care and training of + feeble-minded children. The adequate discharge of this + obligation involves segregating the feeble-minded in special + classes as soon as they can be indubitably diagnosed and + providing for them the type of training which will maximally + develop those powers and aptitudes which they possess and + which will maximally equip them for earning their livelihood. + + "(3.) Provision for continuous oversight and supervision over + the feeble-minded." + +It is clear that if we wish to reduce the number of mentally defective +and socially inadequate individuals we must not only consider measures +for preventing as far as possible the transmission of hereditary defect, +but must also provide for the youth of the country an environment and +training calculated to encourage the development of its best powers. +There is no doubt that unfavourable home conditions and unsuitable +educational methods conspire to keep many children from realizing their +full capabilities. This is especially true of the backward and +feeble-minded. It is, moreover, wasteful and ineffective to force on +children of poor mental receptivity and potentialities an educational +curriculum devised for those of normal mentality, since the subnormal +impede the general progress in an ordinary class, and in it they soon +form a discouraged minority which learns to accept failure +unquestioningly. Untrained to perform the simple work which is within +their power and in the achievement of which they might earn self-respect +and happiness, they feel themselves to be aliens, and may cease to +regard the laws of society in which they have no sense of membership. In +such cases the community which might have benefited from their work had +their potentialities been properly developed is burdened by their +maintenance, and, further, if they are not law-abiding, has also the +expense of segregating them in reformatories and gaols. Hence it is +clearly the duty of the State to adapt the educational curriculum to the +requirements of various groups of children. + +The child who has been handicapped by illness and lack of opportunity, +the child who is inherently dull and backward, must be distinguished +from the child with nervous instability or definite mental defect. +Wherever possible, the training suitable for various improvable types of +children should be arranged in connection with the ordinary public +schools. But the curriculum must be modified to suit the need of the +individual and should be directed with the object of making him a useful +member of society. By this means these pupils are not deprived of that +association with their normal fellows which is of such value as a +preparation for their after-life in the community. + +For children whose homes are unsuitable or too remote from centres, who +require more continuous supervision, or who tend to become delinquent, +special residential schools will be necessary. These schools would also +be used for those whose capabilities cannot be assessed without extended +expert observation for a considerable period. + +The special school is to be regarded as a training-centre for such +feeble-minded children as are expected as a result of the training +received there to be fitted to take a place in the community and to +perform useful work under adequate supervision. There is a danger of +filling the special schools with children whose poor mental endowment +renders them incapable of receiving benefit at all commensurate with the +energy and expense devoted to them. Such children are subjects for +custodial institutions. + +Institutional care is necessary for mentally defective persons whose +helplessness or anti-social traits would render them either the victims +of the unscrupulous or a menace to society. Such individuals should be +segregated in farm and industrial colonies, so that not only is the +community freed from the responsibility of their presence, but they +themselves are afforded opportunity of leading much happier and more +useful lives, and of becoming, to some extent, self-supporting. + +All feeble-minded children within the community, whether in special +classes, or on parole from an institution for the feeble-minded, or over +school age, should be carefully supervised. + +It is clear that the problem of making provision for the feeble-minded +and mentally abnormal in the community is first to be encountered in the +schools, though there must be considered also a much smaller number of +such low mental capacity that they have never sought admission there. + +In deciding the place of the feeble-minded in the community factors +other than the degree of mental defect have to be considered. Many +feeble-minded individuals are capable of performing useful work, and +provided they have no anti-social traits and can receive adequate care +outside their permanent inclusion in an institution is undesirable, not +only from consideration of their own well-being, but also from a social +and economic standpoint. Many feeble-minded individuals are so dependent +upon routine that having once been trained in the regular performance of +simple duties they find difficulty in breaking their methodical +programme. In this way their lack of initiative is really protective, as +it tends to keep them steadfastly at their labours. + +In the case of all feeble-minded persons living outside institutions, +whether with relatives or otherwise, the State should, in the interest +of both such feeble-minded individuals and of society, have the ultimate +right of supervision. + +The magnitude of the task to be undertaken cannot be estimated unless we +have some indication of how numerous are those for whom special measures +must be adopted. The information given below must not be too literally +interpreted, but will serve to throw some light upon existing conditions +in New Zealand. + + +SECTION 5.--ESTIMATES AS TO NUMBERS OF MENTAL DEFECTIVES. + +In the absence of a complete system of notification, which the Committee +consider is urgently necessary, any estimate as to the number of +feeble-minded to be dealt with must be largely a matter of conjecture. + +From the annual report of the Education Department, however, interesting +information is available showing the ages of the pupils in the several +classes of the primary schools. The following table is considered worthy +of reprinting in this report, for from the figures it supplies some idea +may be formed of the number of backward and feeble-minded children +attending primary schools. Children of extremely low-grade mentality do +not attend school as a rule, while feeble-minded children higher in the +scale, discouraged by the unsuitable course of instruction and lack of +sympathetic treatment, tend to leave school early. Hence the number of +feeble-minded children in any community must be considerably larger than +the school records indicate. + +The following table shows the ages of pupils in the several classes of +the primary schools. The numbers between the heavy horizontal lines +represent those that, beginning school under six years of age spend an +average of two years in the preparatory classes and one year in each of +the standards. The numbers above the upper heavy lines have progressed +at a greater rate than that indicated, and those below the lower lines +have either begun school later or have progressed more slowly. + +The most arresting feature in the table (p. 13) is the large number of +children in classes lower than should be expected at their age. Thus the +preparatory classes had 12,693 pupils over the age of eight years. This +number is certainly a considerable reduction on the total for the +previous year, but it still represents no less than 18 per cent. of the +total roll of those classes. Particular attention is being directed to +the problem of retardation, and in some of the larger centres special +classes for retardates have been established. + +It will also be seen that the actual number of children retarded three +years or more, including the preparatory classes and up to Standard +III--beyond which the higher grades of the feeble-minded do not progress +as a rule--is 4,917 out of a total of 212,709 children attending school, +or a trifle over 2 per cent. In some countries three years' retardation +is regarded as _primâ facie_ evidence of mental deficiency. Probably New +Zealand has much the same proportion of mental defectives as other +countries. This is stated by Goddard to be between 2 and 3 per cent. of +the population. + +A recent survey made by the Education Department of the children +attending the primary schools in a typical area disclosed the fact that +out of a total school population of 16,499 no fewer than 950 pupils, +constituting 5.7 per cent. of the total school enrolment, are retarded +two years or more. Some of these may be classed as dull normal; some may +be suffering from remediable physical defects; others may be merely the +victims of unfavourable circumstances, while others again may be what +Burt calls "late bloomers"--_i.e._, cases of slow development. Many of +them, however, will ultimately prove to be mental defectives. Deficiency +sometimes does not reveal itself definitely until the pre-adolescent +period or early adolescence. + +Of the total number on the school registers 266, or 1.6 per cent., are +retarded three years or more. It is interesting to note from information +supplied by Mr. N. R. McKenzie, Inspector of Schools, that this is +exactly the percentage of defectives discovered in the schools of a +section of the city of Toronto as the result of a psychological survey. +It also corresponds with the number in the Vancouver city schools, where +nineteen special classes are operating with a school population of +19,000--_i.e._, one class per 1,000 pupils. + +For the purpose of this report a preliminary survey from information +supplied by social workers, school-teachers, police, Hospital Boards, +&c., has been made by the Education Department of what may be regarded +as the obviously feeble-minded and epileptic cases known to exist +outside institutions in the Dominion. + +The following figures show the number of such cases reported, but these +figures are incomplete--the actual number must be greater:-- + + At 24th June, 1924. + + Feeble-minded. Epileptic. + + Age. Male. Female. Male. Female. + + Under sixteen years 524 285 41 43 + Over sixteen years 305 203 35 31 + ___ ___ __ __ + 829 488 76 74 + + _Recapitulation._ + + Males 905 + Females 562 + _____ + 1,467 + +_Table showing Ages of Pupils in the several Classes of the Primary +Schools._ + + +---------------+---------------+---------------+---------------+ + | | Class P. | Standard I. | Standard II. | + | Ages. +-------+-------+-------+-------+-------+-------+ + | | Boys. | Girls.| Boys. | Girls.| Boys. | Girls.| + +---------------+-------+-------+-------+-------+-------+-------+ + |5 and under 6 | 7,923 | 7,334 | .. | .. | .. | .. | + | | | | | | | | + |6 " 7 |10,776 |10,356 | 73 | 72 | 3 | 2 | + | | | | | | | | + |7 " 8 |10,324 | 9,291 | 2,021 | 2,047 | 111 | 141 | + | |================================ | | + |8 " 9 | 4,970 | 4,183 = 5,696 | 5,413 = 1,729 | 1,884 | + | | | ================================| + |9 " 10 | 1,400 | 1,118 | 4,443 | 3,732 = 5,011 | 5,152 | + | | | | | ================| + |10 " 11 | 393 | 277 | 1,657 | 1,162 | 4,210 | 3,624 | + | | | | | | | | + |11 " 12 | 112 | 107 | 487 | 383 | 1,814 | 1,461 | + | | | | | | | | + |12 " 13 | 54 | 30 | 146 | 91 | 628 | 425 | + | | | | | | | | + |13 " 14 | 18 | 13 | 51 | 24 | 201 | 125 | + | | | | | | | | + |14 " 15 | 7 | 5 | 10 | 9 | 58 | 42 | + | | | | | | | | + |15 " 16 | 2 | 1 | 2 | 6 | 12 | 6 | + | | | | | | | | + |16 " 17 | 1 | .. | 1 | 2 | .. | 2 | + | | | | | | | | + |Over 17 | .. | .. | .. | 1 | .. | .. | + +---------------+-------+-------+-------+-------+-------+-------+ + |Totals (1923) |35,980 |32,715 |14,587 |12,942 |13,777 |12,864 | + +---------------+-------+-------+-------+-------+-------+-------+ + + +---------------+---------------+---------------+---------------+ + | Standard III. | Standard IV. | Standard V. | Standard VI. | + |-------+-------+-------+-------+-------+-------+-------+-------+ + | Boys. | Girls.| Boys. | Girls.| Boys. | Girls.| Boys. | Girls.| + +-------+-------+-------+-------+-------+-------+-------+-------+ + | .. | .. | .. | .. | .. | .. | .. | .. | + | | | | | | | | | + | .. | .. | .. | .. | .. | .. | .. | .. | + | | | | | | | | | + | 3 | 1 | .. | .. | .. | .. | .. | .. | + | | | | | | | | | + | 113 | 135 | 3 | 2 | .. | .. | .. | .. | + | | | | | | | | | + | 1,447 | 1,531 | 102 | 66 | .. | 4 | 1 | .. | + |================ | | | | | | + | 4,570 | 4,749 = 1,311 | 1,439 | 82 | 108 | 6 | 4 | + |================================ | | | | + | 4,202 | 3,827 = 4,166 | 4,214 = 1,123 | 1,202 | 93 | 95 | + | | ================================= | | + | 2,268 | 1,860 | 3,890 | 3,515 = 3,540 | 3,664 = 1,020 | 1,064 | + | | | | ================================| + | 935 | 669 | 2,129 | 1,764 | 3,766 | 3,271 = 3,255 | 3,277 | + | | | | | | ================| + | 235 | 139 | 790 | 500 | 1,848 | 1,499 | 3,101 | 2,883 | + | | | | | | | | | + | 36 | 26 | 148 | 81 | 532 | 349 | 1,454 | 1,010 | + | | | | | | | | | + | 8 | 6 | 11 | 13 | 61 | 30 | 194 | 114 | + | | | | | | | | | + | 1 | .. | .. | 3 | 8 | 8 | 25 | 13 | + +-------+-------+-------+-------+-------+-------+-------+-------+ + |13,818 |12,943 |12,550 |11,597 |10,960 |10,135 | 9,149 | 8,460 | + +-------+-------+-------+-------+-------+-------+-------+-------+ + + +---------------+-----------------+ + | Standard VII. | Totals. | + |-------+-------+--------+--------+ + | Boys. | Girls.| Boys. | Girls. | + +-------+-------+--------+--------+ + | .. | .. | 7,923 | 7,334 | + | | | | | + | .. | .. | 10,852 | 10,430 | + | | | | | + | .. | .. | 12,459 | 11,480 | + | | | | | + | .. | .. | 12,511 | 11,617 | + | | | | | + | .. | .. | 12,404 | 11,603 | + | | | | | + | .. | .. | 12,229 | 11,363 | + | | | | | + | .. | 1 | 11,997 | 11,290 | + | | | | | + | 3 | 3 | 11,549 | 10,652 | + | | | | | + | 20 | 42 | 10,375 | 9,185 | + |===============| | | + | 34 | 47 | 6,083 | 5,124 | + | | | | | + | 23 | 37 | 2,209 | 1,516 | + | | | | | + | 3 | 15 | 279 | 182 | + | | | | | + | 1 | 3 | 35 | 28 | + +-------+-------+--------+--------+ + | 84 | 148 |110,905 |101,804 | + +-------+-------+--------+--------+ + + +SECTION 6.--STUDY OF FEEBLE-MINDED AND DELINQUENT CHILDREN. + +_Methods employed in other Countries._ + +In many parts of America and in some European countries the problem of +the mentally backward and feeble-minded child receives close attention. +The juvenile delinquent is also carefully studied. For children who fail +to make good in school, or who are guilty of frequent misdemeanours, a +system of intelligence testing and psychological analysis is carried +out. A study is also made of family history and environmental +influences. Children who are "maladjusted to their environment" are kept +under survey with a view to finding what is the difficulty and how it +can be overcome. To quote from the "Mental Hygiene Bulletin," published +by the National Committee for Mental Hygiene for the United States of +America: "Children showing definite problems are selected for more +intensive study and treatment. The grossly mentally handicapped child, +who is likely to become a social problem if not properly dealt with in +childhood; the psychopathic and mentally maladjusted child, who later in +life may develop mental disease; the child manifesting conduct disorders +which may be the beginning of a delinquent or criminal career; the +retarded child; the epileptic; the child with speech-defect or with some +physical disability; the child with gross personality difficulties; the +exceptionally brilliant child--all present problems that demand +attention during the child's school life. Such children are given a +thorough physical examination, a careful psychiatric study, and an +individual psychological examination, including a variety of +psychological tests, not only to determine the child's intelligence +rating, but, in so far as possible, his special abilities and +disabilities. A social study is made of the child's home, school, and +other environments to determine what factors may have unfavourably +influenced the development of the child, and what forces may be utilized +in securing the child's adjustments. The results of all these studies +are given to the school authorities with recommendations relative to the +needed adjustments." + +In New Zealand there is need of increased facilities for the study of +the individual child, and the services of psychological experts should +be available in order to group children according to their mental +equipment and special requirements. Only those fully qualified to +estimate accurately all the evidence available are fitted to decide the +destiny of children. + +Herein lies the danger of relying exclusively upon the use of mental +tests. + +_Mental tests_ are of definite value in enabling the observer to arrive +at a conclusion regarding the general mental development of the subject, +or to investigate some particular psychological function. A too +exclusive dependence upon the result of the application of these tests, +especially by a layman, would invariably lead to error. A comprehensive +survey is necessary, taking into consideration such factors as family +history, environment, physical condition, behaviour, temperament, &c. +The observation, possibly for a considerable period of time, of an +expert psychiatrist or psychologist may be necessary in order to arrive +at an accurate estimate of the mental ability of the subject. + +In this regard we quote from Tredgold, "Mental Deficiency": "There are, +however, very many exceptions, particularly when we are dealing with the +milder grades of deficiency, so that if serial tests are depended upon +for the diagnosis of these cases they may be, and often are, very +fallacious. I may say here that although it would, of course, be +extremely valuable if we could devise tests which would accurately +measure mental capacity, particularly that capacity and those qualities +which are needed for social adaptation and maintenance, we have not yet +succeeded in doing so. The mental factors which may be involved in this +capacity for social adaptation, and which render the individual in need +of care, supervision, or control, are many and varied, and there is even +some danger that too much reliance upon serial tests may distract from +the adequate investigation of these qualities and defects and lead to +totally erroneous conclusions." + +There is no doubt, however, that in the hands of competent observers +properly applied tests afford information of great value in assessing +mental and moral capacity, but the observer must be competent. + + +SECTION 7.--METHOD OF DEALING WITH MENTAL DEFECTIVES IN NEW +ZEALAND. + +_Present Legal Provision for Notification and Education of Feeble-minded +Children, and for Care of Custodial Feeble-minded Adults and Children._ + +The Education Act, 1914, contains provision (see section 127) for the +establishment of special schools for the education and training of +afflicted children (deaf, blind, feeble-minded, and epileptic) between +the ages of six and twenty-one years, with provision in the case of +inmates of special schools for extension of the period of detention +where it is considered necessary in the public interest. For the +purposes of this Act,-- + +"'Feeble-minded child' means a child who, not being an idiot or imbecile +or otherwise a proper person to be sent to an institution under the +control of the Mental Hospitals Department, and not being merely +backward, is by reason of mental or physical defect incapable of +receiving proper benefit from instruction in an ordinary school, but is +not incapable by reason of such defect of receiving benefit from +instruction in a special school." + +"'Epileptic child' means an epileptic child who is unfit by reason of +severe or frequent epilepsy to attend an ordinary school, but is not +idiot or imbecile or otherwise a proper person to be sent to an +institution under the control of the Mental Hospitals Department." + +Section 127: "(2.) It shall be the duty of the parent of any ... +feeble-minded or epileptic child to provide efficient and suitable +education for such child." + +"(3.) If the parent of such child fails to provide such education for +such child, or is deemed by the Minister to be unable to provide such +education, the Minister may direct that such child be sent to such +special school or other institution for the education of feeble-minded +or epileptic children as he thinks fit." + +Section 129: "Every parent, teacher of a school (either public or +private), constable, or officer of a charitable or kindred institution +who is aware of the place of residence (either temporary or permanent) +of a blind, deaf, feeble-minded, or epileptic child, and the householder +in whose house any such child resides, shall send notification of the +fact to the Minister, giving name, age, and address of the child; and if +any such person neglects or fails to comply with this provision, such +person shall on conviction thereof be liable to a fine not exceeding one +pound, or in the case of a second or subsequent offence, whether +relating to the same or another child, not exceeding five pounds." + +Section 56: "Every public school shall be organized and conducted in +accordance with regulations (a copy of which shall be conspicuously put +up in the school): Provided that the Minister may, on the application of +the Board, sanction the establishment of special classes for backward +children--that is, children who, through physical infirmity, absence +from school, or otherwise, are below the average standard of education +reached by other children of the same age." + +The Mental Defectives Act, 1911, divides mentally defective persons into +six classes, as under:-- + +"'Mentally defective person' means a person who, owing to his mental +condition requires oversight, care, or control for his own good or in +the public interest, and who, according to the nature of his mental +defect, and to the degree of care, oversight, or control deemed to be +necessary, is included in one of the following classes:-- + + "_Class I:_ Persons of unsound mind--that is, persons who, + owing to disorder of the mind, are incapable of managing + themselves or their affairs. + + "_Class II:_ Persons mentally infirm--that is, persons who, + through mental infirmity arising from age or decay of their + faculties, are incapable of managing themselves or their + affairs. + + "_Class III:_ Idiots--that is, persons so deficient in mind + from birth or from an early age that they are unable to guard + themselves against common physical dangers, and therefore + require oversight, care, or control required to be exercised + in the case of young children. + + "_Class IV:_ Imbeciles--that is, persons who, though capable + of guarding themselves against common physical dangers, are + incapable, or if of school age will presumably, when older, be + incapable, of earning their own living by reason of mental + deficiency existing from birth or from an early age. + + "_Class V:_ Feeble-minded--that is, persons who may be capable + of earning a living under favourable circumstances, but are + incapable from mental deficiency existing from birth or from + an early age of competing on equal terms with their normal + fellows, or of managing themselves and their affairs with + ordinary prudence. + + "_Class VI:_ Epileptics--that is, persons suffering from + epilepsy." + +This is similar to the classification in the English Mental Deficiency +Act, which also includes the following definition:-- + + "'Moral imbeciles'--that is, persons who from an early age + display permanent mental defect, coupled with strong criminal + or vicious propensities, on which punishment has little or no + deterrent effect." + +In the opinion of the Committee it is very important that a similar +definition should be included in any amendment of the New Zealand Act. + +A Magistrate may order the committal to an institution of any person +coming within these definitions if he is satisfied that such person is +mentally defective and two medical men give a certificate to that +effect. Persons coming under the description in Classes I, II, III, or +IV are committed to the mental hospitals, but there seems to be +considerable reluctance both on the part of medical practitioners to +certify and of Magistrates to commit to a mental hospital epileptics and +those described as "feeble-minded." Evidence was given before the +Committee to the effect that there would not be the same disinclination +to send these classes of patients to a special institution such as a +farm colony or an industrial colony. + +Apart from the residential special schools, special classes have been +established in connection with public schools in each of the large +centres of population throughout the Dominion with promising results. + +The Committee visited the special classes in one of the centres, and +were impressed with the sympathetic attitude of the teachers towards +their scholars and the happy appearance of the children, who seemed to +be keenly interested and busy over their appointed tasks. + +There is as yet no special provision in New Zealand for the education of +epileptic children. Fortunately, the number of these is apparently +small, but, as in many cases it is undesirable for them to attend the +ordinary classes of the elementary schools, the question of arranging +for their tuition otherwise requires earnest consideration. + +Following on legislative authority contained in the Education Act +already referred to, provision for feeble-minded children, within the +meaning of the Act, was made by establishing the special school at +Otekaike, near Oamaru, with accommodation for 195 boys, and some years +later a similar institution was opened at Richmond, near Nelson, with +provision for about eighty girls. + +These institutions contain two separate divisions, providing for--(1) +The training of children of school age, and (2) the instruction of young +persons over school age in handicraft and farm-work. + +Both institutions have modern and well-equipped day schools with trained +women teachers, and at Otekaike the industrial division is provided with +workshops and instructors in trades and handicrafts. + +The children are housed in modern and well-appointed cottage homes, each +with accommodation for thirty-five, and are supervised by selected women +attendants. + +The Committee visited and inspected both Otekaike and Richmond, and were +very favourably impressed with the healthy environment and careful +management of these institutions, and with the humane and sympathetic +methods adopted for the purpose of making the best of imperfect human +material. + +At both places physical exercises, musical drill, and organized games +form an important part of the training, and the teachers deserve +commendation for the efficiency of the pupils in these respects and +their general appearance of physical fitness. + +Moral training and training in habits of personal cleanliness and prompt +obedience form an important part of the curriculum, and the effects are +noticeable in the quick movements and alert attitude of the inmates. The +girls at Richmond receive training in domestic work, needlework, +knitting, darning, &c., according to their ability. + +The children are taught various kinds of handiwork, and by grouping them +according to mental capacity they are given a school course modified to +suit the individual. In the industrial division at Otekaike, baskets, +sea-grass furniture, and all kinds of wickerware and coir mats are well +made, and are readily sold. Bootmaking and repairing for the institution +are also carried out by certain of the inmates under a practical man. +Attached to Otekaike there is an area of land where farming, gardening, +and fruitgrowing absorb most of the labour of the older inmates. + +At Richmond the area of land available for cultivation is limited, but +even so it occurred to the Committee that something more might possibly +be done in the direction of providing congenial and profitable work for +the older girls, as, for instance, the growing of flowers for sale in +the Wellington markets. + +At Otekaike, after training, the best types of the older inmates are +placed out, usually with farmers in the district, and for the most part +are leading useful lives under the supervision of the local Juvenile +Probation Officers of the Education Department. + +The matter of placing out girls from the school at Richmond is obviously +one of much greater difficulty. + +At both Otekaike and Richmond there is a growing group of custodial +cases, due to the fact that in many instances the parents or guardians +are either unable to provide proper protective measures for the children +if released, or are unsuitable in other ways to have the control of +them. On the other hand, there is reluctance on the part of medical +practitioners to certify such cases for a mental hospital. It is very +desirable, of course, that the special schools should be used as +trying-out places for children whose mental equipment is questionable, +but where after a reasonable trial it is evident that merely custodial +care is required there should be some simple method of passing them on +to farm colonies or suitable custodial homes. + +As a matter of fact, the school at Richmond has its full complement of +pupils, and as many cases have now to be refused admission it is +urgently necessary that other provision should be made, especially for +the older girls needing custodial care. + +Mention should also be made of a visit paid by the Committee to the +industrial school at Caversham, which deals with girls and young women +who have failed to make good when placed out under supervision in the +community. There is a small clothing-factory attached to the +institution, which provides useful employment for certain of the +better-type girls. It is stated that, even under present conditions, +which are not altogether satisfactory, the majority of the Caversham +girls benefit from the training they receive to such an extent that they +can be trusted to earn their living in the community under supervision. + +The Committee, however, are of opinion that the buildings and site are +most unsuitable for such an institution. Little level space is available +for recreation purposes, the property is overlooked at the back, and the +location and general plan of the buildings are such that the utmost +vigilance has to be exercised. For the inmates belonging to the +reformatory section it is considered that such an institution should be +situated in the country with sufficient suitable land to permit of +gardening and farming on a small scale. This would afford healthful +occupation for the inmates and contribute towards their support. Such an +institution should be so situated as to be readily accessible from all +parts of the Dominion. + +In the matter of the admission of young offenders over sixteen years of +age to the Caversham Industrial School, and also to the Boys' +Training-farm at Weraroa, the Committee found that in these cases the +Courts have no authority to commit direct, but must first sentence the +young person to imprisonment and then recommend transfer to an +industrial school. Such a system is not only cumbersome, but is +fundamentally wrong, and should be remedied as soon as possible. The +Courts should have discretionary powers to commit any young offender +under eighteen years of age direct to an industrial school. + +At Caversham there is a small proportion of the inmates who should be +transferred to a Borstal institution. This refers to the so-called +"over-sexed" girl, and the girl with strong anti-social proclivities, +who should be confined to an institution where there is provision for +segregation and treatment of refractory cases. In many instances these +young women should be kept under control for a considerable period. Many +are hopelessly immoral, and in the interests of society should not be +allowed their liberty. + +That section of the Caversham institution comprising children committed +to the care of the State on account of destitution or unsuitable +conditions in their homes would be better provided for in a separate +receiving home. This would be in accord with the practice obtaining in +all the other centres. + +The Education Department deals with all children committed to the care +of the State for causes varying from destitution to delinquency. The +procedure is for the police to charge the children and for the +Magistrate to commit them to the nearest receiving home, where they are +kept under observation, trained in proper habits, and so forth, and as +soon as possible, if they exhibit no anti-social traits, placed out in +selected foster-homes. The Department holds the view, shared by leading +authorities, that home life, however humble, provided the foster-parents +are suitable people, is better than institution life for the majority of +the children who are cast on the State for sustenance and protection. +The supervision of these cases, and the selection of employment for them +when they become old enough, are carried out by the nurses, Managers of +receiving homes, and Juvenile Probation Officers of the Education +Department. Several of these officers gave valuable evidence in the +course of this inquiry. These officials not only look after the welfare +of the children brought under State control, but also carry out a great +deal of preventive work in the way of advising parents and supervising +children, who by their timely and kindly intervention are saved from +coming within the scope of the law. + + +SECTION 8.--CHILDREN'S COURTS. + +Several witnesses before the Committee pointed out the need for the +establishment of special Courts for children and juveniles. + +The Committee recommend that such provision be made, and also that +clinics be established providing for the physical and psychological +examination of all children coming under the jurisdiction of these +Courts. The fuller knowledge thus acquired would be extremely valuable +to the authorities dealing with the children. + +Many countries have recognized this need and have established properly +constituted Courts for dealing with children and juveniles as apart and +distinct from Police Courts. + +In this connection it is surprising to find that New Zealand is lagging +behind in that in the laws relating to the punishment of crime hardly +any distinction in procedure is made between the child and the adult. It +is true, of course, that a practice has grown up whereby children are +dealt with in the Police Courts at a time apart from the hearing of +adult cases, but the procedure of the Criminal Court has been +retained--_i.e._, the young delinquent is charged with an offence, is +required to plead, and if found guilty is liable to conviction. In the +majority of such cases the charges are for minor offences and are dealt +with summarily, but a child charged with an indictable offence and +remanded to the Supreme Court for trial or sentence may in the interim +be detained in prison. + +By arrangement between the Departments concerned most of the cases of +children and juveniles are investigated by the Juvenile Probation +Officer of the Education Department prior to the hearing, but these +officers have no legal standing in any Court, and are not even empowered +to bring a destitute child before a Magistrate for committal to the care +of the State. This function must be carried out by a police constable. + +The Children's Court, as it is constituted in other countries, is a +Court of equity, and its principal function is to consider all children +brought before it as cases requiring protection and care. It is the +business of the Court, by means of careful investigation in each case of +conduct, school history, family history, and mental condition, to +ascertain, if possible, the reason for misconduct, and either to +eliminate or modify the causes, or to remove the child from the +environment that has contributed to its present condition. + +The presiding Magistrates are usually selected on account of their +experience with children and knowledge of child psychology. In some of +the Courts in America women are selected for these positions. + +It is common knowledge that lack of mental balance, retardation, and +physical defect are responsible for much juvenile delinquency, and it is +therefore essential that if the children appearing before the Courts are +to be dealt with in a scientific manner there should be provision on the +lines recommended above. + + +SECTION 9.--POLICY FOR THE FUTURE. + +It seems to the Committee that the Dominion has now come to the parting +of the ways in this matter, and unless the multiplication of the +feeble-minded is to be allowed to go on in an ever-increasing ratio, +with consequences dreadful to contemplate, the problem must be dealt +with on broader lines, and in a more comprehensive fashion. + +In the first place, a comprehensive system of notification is essential +so that a register as complete as possible may be made of the cases to +be dealt with. + +The English Commission for Inquiring into the Care and Control of the +Feeble-minded, whose report appeared as far back as 1908, laid down the +basic principles of a sound policy in dealing with this question. Their +first principle was that persons who cannot take a part in the struggle +for life owing to mental defect should be afforded by the State such +protection as may be suited to their needs. Their next principle was +that the mental condition of these persons, and neither their poverty +nor their crime, is the real ground of their claim for help from the +State. Their third principle was that if the mentally defective are to +be properly considered and protected as such it is necessary to +ascertain who they are and where they are. + +This, of course, is the object of the system of registration to which we +have referred. + +Lastly, the English Commission held that the protection of the mentally +defective person, whatever form it takes, should be continued as long as +it is necessary for his good. + +These principles appear to us to be quite sound, and we have no +hesitation in adopting them. + + +_Proposed Eugenic Board._ + +In regard to the method of compiling the register, some excellent +suggestions were made by Dr. Theodore Grant Gray, Medical Superintendent +of the Nelson Mental Hospital. He proposed, first, that a Government +Department or sub-department should be created to deal with all +feeble-minded and mentally defective persons living outside +institutions. It would deal not only with the feeble-minded, but it +would act the part of a Government "after-care association," in that it +would keep in touch with all persons discharged from mental hospitals. +One of its duties would be to keep a register of all feeble-minded, +epileptic, and mentally defective persons living outside institutional +care. Dr. Gray further suggests that the register should be compiled in +the following manner:-- + + (1.) It would be a statutory duty of all School Medical + Officers to report to the Department the names of all + feeble-minded or epileptic children in their districts. + + (2.) It would be the duty of the District Education Board to + report any child of school age who was not attending school + because of feeble-mindedness or epilepsy. + + (3.) It would be the duty of the Superintendent, owner, or + licensee of every hospital, private hospital, industrial + school, or reformatory prison to notify the Department upon + the admission of any person suffering from feeble-mindedness + or epilepsy. + + (4.) It would be the duty of the Superintendent of every + mental hospital to notify the name of every person discharged + from a mental hospital. + + (5.) It would be the duty of every Judge or Magistrate in all + cases brought before him in which there appears to be mental + enfeeblement or epilepsy to call to his assistance an + alienist, and, if the report is confirmatory, to order such + person's name to be placed upon the register. + +N.B.--In the case of sections 1, 2, and 3 the Department would apply to +a Magistrate for an order to register the person concerned. In section 4 +the process would be automatic. + + * * * * * + +The Committee consider the machinery suggested for the purpose of +compilation of the register very suitable, subject to such modifications +as may be found necessary in practice, but have come to the conclusion +that it would be preferable for many reasons to keep cases of this kind, +as far as possible, free from Courts, a large part of whose work +consists in trying persons charged with criminal offences, and to follow +the plan which seems to be working very well in several American +States--namely, to set up a Board of experts to deal with these cases. + +The Board, which might be called the Eugenic Board, should be a central +Board associated with a special Department or sub-department, of which +the head should be a man of sufficient personality, energy, and +organizing-power to grapple effectively with this question--first, by +taking the necessary steps to compile a reasonably exhaustive register, +and afterwards, by co-ordination with cognate Departments or by +independent departmental action, to build up the necessary machinery to +provide for the care, segregation, supervision, or treatment of the +class with which his Department is required to deal. + +The compilation of the register is a departmental matter, but +legislative authority will be necessary, to provide for compulsory +notification and to prescribe the means. A well qualified departmental +officer should at once be detailed to take this matter in hand and +formulate from the evidence given to the Committee and from other +sources of information the method and means of obtaining complete +registration. + +The first step towards the formation of the Board should be the early +selection and appointment of a thoroughly trained and experienced +psychiatrist. Irrespective of the necessity for the employment of such a +man as the scientific member of the proposed Board, the Committee are of +opinion that the Departments of Health, Mental Hospitals, Prisons, and +the Special Schools Branch of the Education Department are at present +suffering from the lack of expert advice in this direction, and that it +is high time the Government had in its service at least one trained +psychological expert, with recourse to the services of other men with +similar training in the four centres. + +The Eugenic Board should be vested with power to examine all cases +notified and, after due investigation, to place on the register-- + + (1.) Such persons as in its judgment come within the + definition in the Mental Deficiency Act of feeble-minded; + + (2.) Persons afflicted with epilepsy associated with + automatism or other conditions rendering them especially + liable to dangerous, immoral, or otherwise anti-social + manifestations, and in the case of juvenile epileptics the + mere frequency of fits rendering them unsuitable for + attendance at ordinary schools; + + (3.) Moral imbeciles as defined in the English Mental + Deficiency Act; and + + (4.) Persons discharged from mental hospitals. + +It should be the function of the Board to order or recommend to the +Minister the segregation, supervision, or treatment of the different +classes. Cases receiving adequate care in their homes would not, of +course, be interfered with. + +The Eugenic Board, of course, should have power to remove any name from +the register if it is of opinion that there is no longer any need for +registration. There should be the right of appeal to a Judge of the +Supreme Court against the decision of the Board to place a person on the +register, and there should also be power to apply to a Judge for the +removal of the name from the register in cases where the Board declines +to do so. These provisions should, it is considered, effectively +safeguard the liberty of the subject. + +The machinery necessary to deal adequately with this vital +question--vital in its influence on the purity of our race--must be +somewhat extensive, but use should be made as far as possible of +existing governmental and private agencies and organizations. + +The work requires organization, and the first essential is, therefore, +the appointment of an organizing head. Unless such an appointment is +soon made the matter will drift. The heads of the existing Departments +of State under whom such an organization might be placed have already +more business to handle than they can comfortably overtake. Some one +must be selected to specialize on this work and this work alone. + +The question naturally arises as to the Department of State to which the +proposed sub-department for the care of the feeble-minded might best be +attached. In the judgment of the Committee the education of +feeble-minded children should be continued by the Education Department, +which has evolved a very successful system and is administering it well. +After everything possible has been done in the matter of education a +large proportion, as they grow up, will be quite unable to hold their +own in the world, and for their own protection and safety, and in the +interests of society, must be cared for in some institution, where they +may be kept usefully occupied in gardening or farming, or in some +handicraft which will serve to keep them in health and help to recoup +the State some part of the cost of their maintenance. It is, of course, +most essential that they should not be allowed to reproduce their kind, +thus further enfeebling and deteriorating the national stock, adding to +the burden of the community and to the sum of human misery and +degradation. "To produce but not to reproduce" sums up the best scheme +of life for these unfortunates. + +Looking at all the circumstances of the case, it appears to the +Committee that it would be better if the compilation of the register, +the provision of the farm and industrial colonies, and the after-care of +adult feeble-minded patients coming under Classes V and VI and "moral +imbeciles" were entrusted to a special branch of the Mental Hospitals +Department. It is essential that the feeble-minded shall be kept +separate from the insane, while the feeble-minded themselves, of course, +require careful classification. + +It is very important that marriages with registered persons should be +made illegal, and, as a corollary to this, that it should be made an +indictable offence for any person knowingly to have carnal knowledge of +a registered person. It should also be provided that any parent or +guardian who facilitates or negligently allows any registered person to +have carnal intercourse with another person shall be guilty of an +indictable offence. + + +SECTION 10.--THE QUESTION OF STERILIZATION. + +A question which has given the Committee much anxious thought is as to +whether sterilization should be adopted as a method of preventing the +propagation of the feeble-minded. That it would be an effective method +as regards the persons operated on goes without saying. The operation of +vasectomy in the case of males is a very simple one, which may be +performed with the aid of a local anæsthetic, and may be said for all +practical purposes to be unattended by any risk to the patient. In the +case of women a similar operation on the Fallopian tubes, which is known +as salpingectomy, is an abdominal operation and cannot be said to be +entirely free from danger, although it is not regarded as very serious. +Except for the prevention of fertility, the operation does not interfere +with the sexual powers of the patient and has little or no effect on +sexual desires. It has been stated that a process of sterilization by +means of X-rays can be applied to either sex. The only evidence +available, however, shows that this method is still in the experimental +stage, and the Committee, for this reason, cannot recommend it, +especially as there is a danger that it might damage the cells producing +the internal secretions which influence the secondary sexual +characteristics and so injuriously affect the general health and +mentality. + +Several States in America have passed laws providing for the +sterilization of persons in State institutions who are--(1) Insane, (2) +feeble-minded, (3) criminalistic. + +In some of the States an appeal was made to the Supreme Court, and, the +law being pronounced unconstitutional, no attempt was made to enforce +it. In other States the law has been allowed to become a dead-letter. Up +to the 1st January, 1921, the latest date dealt with by the most +recently published work on the subject, there have been 124 State +institutions legally authorized to perform operations for sterilization, +of which thirty-one have made more or less use of their authority, while +ninety-three have not. The total number of operations performed up to +the date mentioned was 3,233, divided into classes as follows: +Feeble-minded, 403; insane, 2,700; criminalistic, 130. Of this total of +3,233 operations the State of California contributed no less than 2,538, +and in this State a single institution (the State Hospital for the +Insane at Patton) is responsible for no fewer than 1,009 cases. A Bill +introduced in 1924 into the Senate to legalize sterilization of mental +defectives, &c., was rejected. + +Dr. H. H. Laughlin, of the Psychological Laboratory of the Municipal +Court of Chicago, has devoted several years to the study of this +question, and has recently published the result of his researches in a +book entitled "Eugenical Sterilization in the United States." He +publishes the texts of all the laws past and present, gives his idea of +a model sterilization law, together with the necessary forms for putting +it into effect. He also deals with the physiological and mental effects +of sexual sterilization. A reviewer of his book, writing in the _Journal +of Heredity_ of October, 1923, states forcibly the case for the +opponents of sterilization. He expresses the opinion that "The release +of sterilized individuals with feeble inhibitions or anti-social +tendencies is the equivalent to the creation of so-many new and virulent +foci of venereal diseases and promiscuity." + +Furthermore, the Central Association for Mental Welfare of Great +Britain, which was formed in 1913 to act as a co-ordinating and +representative body on all questions affecting mental defectives and +their relations to the community, not long ago referred the question to +their standing Medical Committee, who gave the considered opinion that +"sterilization at the present time is not a practical proposition." + +The Committee of the Central Association being in complete agreement +with this view, the Association decided not to advocate the policy of +sterilization, because they consider that it would have only a limited +influence in preventing the increase of mental deficiency, that it would +be attended with certain harmful results in other directions, and +because its adoption is impracticable. The Association's statement on +this subject goes on to say: "It is very important to remember that +although propagation by defectives is one of the causes of mental +deficiency, nevertheless this is by no means the only social menace +attaching to their presence in the community. If left unguided and +unprotected, their lack of stability and control may lead them to commit +serious crime, such as theft, arson, assault, and even murder. Their +inability to maintain economic independence results in vagrancy and +destitution. Their helplessness in the face of obstacles frequently +brings about their complete collapse at the first rebuff which they have +to meet. The interest of the community can only be adequately protected +by the segregation of a considerable proportion of these persons in +suitable institutions. A sterilized defective would not be any less +liable to these happenings than would one who was unsterilized. A +defective woman, from the fact of her being sterilized and incapable of +bearing children, would be more prone to illicit intercourse, to adopt a +life of prostitution, and to spread venereal disease. It follows that +segregation would still be needed in the case of a very large proportion +of defectives, but, if they are segregated, sterilization is +unnecessary. On the other hand, there can be very little doubt that any +general adoption of sterilization would, in actual practice, lead to the +non-segregation of a large number of defectives who should be under care +and thus to an increase of the foul evils mentioned." + +Having thus stated the arguments against sterilization the Committee +must now present the other side of the question. + +In the first place, it is evident that, as far as the United States is +concerned, the extension of sterilization of the mentally defective has +received a grave set-back by reason of the declaration of the Supreme +Court of the United States that the laws in certain States permitting +sterilization are unconstitutional. This ruling, of course, does not +apply to New Zealand. + +Further, opponents of sterilization ask to be shown its good results; +but obviously the results cannot emerge in one generation or in a +comparatively short space of time, but only in the ultimate lessening of +the proportion of mental defectives in the community by diminishing the +hereditary supply. + +There is no doubt also that much confusion exists in the minds of the +public as to the meaning of sterilization and desexualization or +castration. The process of sterilization, as has been shown, involves +only a simple and safe operation and has the sole effect of preventing +reproduction. Sterilization, therefore, should not be loaded with the +objections which apply to the far-reaching effects of castration. The +former, unlike the latter, is not prone to produce harmful effects upon +the mind or morals of the sterilized individual. + +The assertion that "sterilization at the present time is not a practical +proposition" is difficult to understand. It is certainly practicable, +and is as likely to be favoured as opposed by public opinion, especially +that section of the public that understands the difference between +simple sterilization and desexualization. As regards the suggestion that +sterilization may lead to new foci of venereal disease, it must be borne +in mind that the unsterilized feeble-minded are already prone to sexual +promiscuity, and there is no evidence that sterilization would increase +this tendency. The opponents of sterilization offer as an alternative +only permanent segregation to prevent the transmission of mental defect. +It is evident, however, that the cost of the segregation of all mental +defectives capable of reproducing other mental defectives would be +exceedingly heavy. The Committee advocates powers of segregation and of +sterilization, these powers to be placed in the hands of the Eugenic +Board, under proper safeguards and the right of appeal. + +Sterilization in suitable cases is not a high price to pay for liberty. +There are in our mental hospitals to-day men and women who suffer from +recurrent insanity, who are admitted to the mental hospitals from time +to time and discharged when they are better, and in the intervals +between their admission cohabit with their wives or husbands, as the +case may be, and bring more defective children into the world. If +discretionary power were given to the Board as suggested it should, and +no doubt would, be exercised cautiously and tentatively. + +Sterilization gives the patient liberty to do useful work in the +community, is less drastic than segregation for life, and on the whole a +much slighter interference with the rights of the individual, which are +surely subordinate in such cases to the rights of the State. + +There are, of course, numbers of mental defectives who can never be +allowed their liberty, and in the case of these the question of +sterilization need not be considered. There are many cases of mentally +defective girls, liberated from institutions in New Zealand for the +purpose of engaging in domestic service or other work, returning +afterwards the mothers of illegitimate children, probably also mentally +defective. Unless such are to be maintained for years as wards of the +State in institutions, should they ever again be allowed their liberty +unless they undergo the operation of sterilization? + +This is the question: Can the propagation of mental defect by mental +defectives and the debasing of the race thereby be greatly checked if +not completely prevented? The answer is assuredly, Yes, by segregation +and by sterilization. + +The Committee recommends that both methods be placed in the hands of the +Eugenic Board, with powers to discriminate as to which method is the +more suitable for each individual case. The two methods are +complementary, not antagonistic, and suitable safeguards for the liberty +of the subject are provided. + +The Committee recommends that the Eugenic Board should be given the +power in suitable cases to make sterilization a condition of release +from any of the institutions under the charge of the Department of +Mental Hospitals or removal of their names from the register on +probation, but that in no case should the operation be performed without +the consent of parents or guardians of the persons concerned. + +The Committee consider that the persons so operated upon and liberated +should be released on probation and kept under supervision for a +reasonable period, and that they should be returned to institutional +care if found to be leading an immoral life, or unable to support +themselves, or for any other reason which the Eugenic Board may consider +sufficient. + +If the recommendation as to sterilization being authorized under the +conditions specified is adopted, the Committee think it would be +advisable to introduce some provision as in the American Acts, making it +unlawful to perform operations whose object is the prevention of +reproduction in cases not authorized by the Board unless the same shall +be a medical necessity. + + +SECTION 11.--SEGREGATION. + +It will be neither possible nor desirable to segregate all mental +defectives. Feeble-minded children who are receiving adequate care and +training in their own homes will, of course, be left there. When they +reach the age of adolescence the question of their disposal should be +considered by the Board. In many cases the inmates of special schools, +after they have received some training, would do well if returned to +their homes or boarded out in selected foster-homes under supervision. + +The real difficulty arises, especially in the case of girls, when the +age of adolescence is reached. + +In the opinion of the Committee it is of the utmost importance that +mental defectives should be prevented from reproducing. No person who +has been placed on the register should be allowed to marry until the +Eugenic Board has given its consent by removing the name from the +register. + +It is altogether wrong to suppose that there is any unkindness in taking +the feeble-minded, who are unable to battle for themselves, under the +care of the State and preventing them from bringing forth another +generation of defectives. The real unkindness consists in allowing such +unfortunates to be brought into the world. + +In school, and still more in the after-struggle for existence, the +feeble-minded find themselves the butts of their fellows, and the +"inferiority complex" thus developed tends to make them sink lower in +the scale both in intellect and morals. + +"On the other hand, it is the general experience of those who have had +many years' practical experience with defectives that the majority are +far happier in suitable institutions engaged in congenial occupations, +and having the companionship of their mental equals, than when they are +exposed to the difficulties of an outside world to which they are +incapable of adapting themselves. In many cases, indeed, such freedom +amounts to the infliction of positive cruelty." + +This statement is taken from the memorandum of the Central Association +for Mental Welfare of Great Britain, to which reference has already been +made, and this Committee can, from their own observation, endorse the +views thus expressed. + +It seems desirable, however, to point out the fallacy of a popular idea +that the world could easily stamp out defectives and degenerates by +merely adopting a vigorous policy of segregation and sterilization. Even +if it were possible by these means to prevent all manifest mental +defectives from reproducing, it cannot be expected that this class will +be thereby eliminated from the population, since mental defectives may +be the offspring of apparently normal stocks, or may be descended from +stock in which only minor manifestations of impaired nervous vitality, +such as instability, eccentricity, &c., have hitherto been evident, and +in a large proportion of cases they are no doubt the progeny of persons +belonging to the higher grade of distinctly degenerate stock--persons +who have not themselves necessarily shown any marked traits of +instability or degeneracy, and to whom therefore sterilization or +segregation would be inapplicable. + + +SECTION 12.--THE QUESTION OF EXPENSE. + +It will probably be objected that the plan for cutting off as far as +possible further additions to the mental defectives of the Dominion will +involve increased expenditure. This is, unfortunately, the case; but +will it not be a much more costly process to allow the present +unrestricted multiplication of these defectives to continue in an +ever-increasing ratio? If they are allowed to multiply, their +unfortunate offspring will have to be provided for in one way or +another--some by means of charitable aid, some in our prisons, some in +our mental hospitals. Take the case of the defective couple, case No. 4, +page 9, themselves in receipt of charitable aid, who have already +produced eleven children, all of whom are being provided for by the +State, while, as the couple are still living together and the woman is +still of child-bearing age, it is quite possible that the total may yet +be increased. This family, it is estimated, will cost the State at least +£16,000. Will any one seriously contend that it would not have been +sound economy if this couple had been taken in the first instance, +placed in separate farm colonies where they would have lived fairly +useful lives, and been prevented from casting such an excessive burden +on the State? We might take each of the cases quoted in an earlier part +of this report, and many others which we have not quoted, and ask the +same question in regard to each. There is no doubt whatever that from +the purely financial point of view it is very much to the interest of +the community that this problem should be taken boldly in hand at once +while the evil is within fairly manageable proportions, instead of +allowing it to grow into an intolerable burden. + +Consider the humanitarian aspect. Surely it is a kindly act to give the +protective care of the State to those unfortunate persons who are unable +to hold their own in the struggle for existence, and who, if left to +their own devices, will fall miserably by the way and in many cases +become a menace to society. + +Lastly, there is the national question to be considered. Surely it is +important that our stock should be kept as sound and virile as possible, +and that where a process of deterioration has been detected every +attempt should be made to stop it as soon as possible and by every means +in our power. + + +SECTION 13.--IMMIGRATION. + +The Committee feel very strongly that any attempt to check the +multiplication of mental defectives in the Dominion will to a large +extent be labour thrown away if the greatest care is not at the same +time taken to prevent the introduction of feeble-minded and other +undesirable persons from overseas. The distance of New Zealand from +Europe and the cost of the long passage have on the whole had a +selective influence on the character of the immigrants and tended to +keep up the standard of quality. As already mentioned, however, serious +mistakes were made in the "seventies" of last century. Very striking +testimony to this effect is contained in the report of the late Dr. +Macgregor, Inspector-General of Hospitals and Charitable Institutions, +presented in 1888, an extract from which appears in the Appendix of this +report. In the brief space of fifteen years the dire consequences of the +mistakes made in previous immigration without due regard to its quality +had already become apparent, and in the most impressive terms Dr. +Macgregor, who was an exceedingly able and far-sighted public servant, +pointed out that the evil done by the introduction of an undesirable +class of immigrant is never finished. + +"The impaired health, low morality, and insanity descend to the +offspring, and are a continued drain upon this community." + +The benefit of a well-regulated stream of immigration into this country +is not open to question. A substantial addition to our population is now +more than ever needed if this country is to progress and its resources +are to be developed sufficiently to enable it to bear with ease the +heavy burden imposed on the community by the Great War. The point which +it is desired to emphasize is that constant vigilance is necessary to +keep up the standard of quality of the new-comers in view of the very +natural desire to send off to a new land those who are physically or +mentally unable to maintain themselves in the land of their birth. Such +vigilance, it need hardly be pointed out, is especially necessary at the +present time when the volume of immigration is greatly increased owing +to the condition of affairs in the Mother-country. + +As a matter of fact, there seems no doubt that immediately after the +conclusion of the war the system of control and medical inspection was +not so strict as it should have been, especially in the case of the +Imperial Government's overseas settlement scheme for ex-service men and +women. The New Zealand Government, however, sent Home an officer from +the Immigration Department to rectify matters and to provide for a more +thorough examination of assisted immigrants. + +Under the system at present in force a special roster of medical +referees has been compiled, and no person is accepted as an assisted +immigrant without a certificate of physical and mental fitness from one +of these doctors. The medical examiner, in the instructions, is +particularly requested "To satisfy himself that the applicant is in +every way a fit subject to pass a thorough medical examination, as +applicants are liable to rejection both at the port of embarkation and +at the port of arrival." Finally, the doctor is required to sign the +following statement: "Having read and made myself conversant with the +instructions contained in Form KA supplied me, I certify that I have +this day examined the above-named, and am of the opinion that ---- +is in ---- health and of sound constitution. ---- is not suffering from +any mental or bodily defect which in my opinion would unfit ---- for +earning ---- own living as a ----." + +The form provides for a very complete examination, but as regards +certain conditions, especially previous mental diseases, the examiner is +necessarily dependent on the statements of the applicant. + +The Committee were informed that New Zealand has now the reputation with +the Imperial authorities of being the hardest and most exacting of all +Dominions regarding the health and physical fitness of immigrants. + +The Committee think that, in addition to the precautions already taken, +inquiry should be made, as far as may be possible, into the family and +personal history of assisted immigrants, particularly as to whether they +disclose any cases of insanity, epilepsy or feeble-mindedness, crime, or +dependence on charitable aid. + +The Committee are further of opinion that the time has now arrived when +closer supervision should be exercised over those persons who come as +ordinary passengers with the intention of remaining in the Dominion. + +The Immigration Restriction Act, 1908, provides that "When any passenger +arriving on board any ship is either lunatic, idiotic, deaf, dumb, +blind, or infirm, and is likely to become a charge upon the public," the +owner, master, or charterer of the ship shall be required to enter into +a bond in the sum of £100 for every such passenger, the person entering +into the bond and his sureties being bound to pay to the Minister all +expenses incurred within the space of five years for the maintenance of +such passenger. + +Under the Act the following are made "prohibited immigrants":-- + + "(_b._) Any idiot or insane person." + + "(_c._) Any person suffering from a contagious disease which + is loathsome or dangerous." + + "(_d._) Any person the date of whose arrival in New Zealand is + earlier than two years after the termination of any offence + which, if committed in New Zealand, would be punishable by + death, or imprisonment for two years or upwards, not being a + mere political offence, and no pardon having been granted." + +By Order in Council tuberculosis is gazetted as a contagious disease +which is dangerous within the meaning of the Act, and syphilis and +leprosy are contagious and loathsome diseases within the meaning of the +Act. + +To any one who has seen a medical inspection of passengers arriving in +an overseas vessel it is obvious that any degree of feeble-mindedness +short of manifest imbecility or dementia would be liable to be admitted, +and a good many cases of tuberculosis escape detection. Other countries +are now alive to the importance of greater care being taken to guard +against the admission of these who are likely to lower the mental and +physical standard of the race, and in the opinion of the Committee +stricter precautions should be taken in New Zealand. The smallness of +this country makes it all the more important that it should be occupied +and developed by a selected population, while its attractiveness as a +field of settlement and the limited amount of land available place it in +a position of independence in which it is able to insist on the +maintenance of a high standard of fitness on the part of those desiring +to share in its advantages. + + +SECTION 14.--SUMMARY OF FINDINGS AND RECOMMENDATIONS. + +The Committee find-- + + (1.) That the unchecked multiplication of the feeble-minded + and epileptic is leading to a continually growing addition to + the sum of human misery, an ever-increasing burden on the + State, and the serious deterioration of the race. + + (2.) That it would be sound economy, as well as in the best + interests of humanity, to deal with the problem at once, even + though it involve a substantial expenditure. + +The Committee therefore recommend: + + (1.) That to the definitions in the New Zealand Mental + Defectives Act, 1911, there should be added a further + definition--namely, that of "moral imbecile" contained in the + English Act. + + (2.) That a special branch of the Mental Hospitals Department + be established to deal with all classes of mental defectives + who are not inmates of mental hospitals, and to act as an + "after-care" Department to look after patients discharged from + mental hospitals. + + (3.) That a Eugenic Board be appointed, to include a skilled + psychiatrist, another member of the medical profession, and to + be presided over by a Magistrate as Chairman. + + (4.) That the duty of the Department shall be to keep a + complete register of persons coming under the following + definitions in cases where the Eugenic Board has decided that + the patients in their own interests or in the interests of + society should be placed on the register:-- + + (_a._) Mental defectives who are not inmates of mental + hospitals who in the judgment of the Eugenic Board come within + the definition of "feeble-minded" in section 2, Class V, of + the Mental Defectives Act, 1911. + + (_b._) Persons afflicted with epilepsy associated with + automatism or other conditions rendering them especially + liable to dangerous, immoral, or otherwise anti-social + manifestations, and in the case of juvenile epileptics the + mere frequency of fits rendering them unsuitable for + attendance at ordinary schools. + + (_c._) Moral imbeciles as defined in the English Mental + Deficiency Act, 1913. + + (_d._) Persons discharged from mental hospitals. + + (5.) That the care of backward and feeble-minded children, so + long as these remain in an educable stage, shall be the duty, + as at present, of the Education Department. + + (6.) That the Education Department obtain the services of + psychological experts with a view to creating a comprehensive + system providing increased facilities for the study of the + individual child in school, for the classification of children + according to their mental capacities, and for the adaptation + of the curriculum to the needs of special children. This may + necessitate the establishment of an increased number of + special classes, an extension of the residential special + schools, and also provision for social readjustment of the + children when required. + + (7.) That fuller provision be made in connection with our + Universities and training colleges for the education of + teachers in child psychology and its practical application, + and for their training for service in special classes and + special schools. + + (8.) That full use be made of residential special schools for + those cases who fail to benefit by attendance at special + classes, but who are considered capable of training in manual + work or handicrafts. The lower grades of the feeble-minded who + require merely custodial care should, as a general rule, be + excluded from special schools, but where there is any doubt as + to a child's degree of mentality or aptitude for manual + training admission to a special school for a probationary + period should be arranged. + + (9.) That the Education Department shall report to the Eugenic + Board those inmates of special schools found incapable of + receiving benefit from further residence in such schools, and + the Eugenic Board shall be empowered to place on the register + such as they consider should be so dealt with. + + (10.) In regard to those on the register, the Eugenic Board + shall have the power to order the removal of feeble-minded + persons and moral imbeciles to a farm or industrial colony to + be provided for the care and training of such persons. + + (11.) That any person alleged to be feeble-minded, or the + parents or guardians of such person, shall have the right of + appeal to a Judge of the Supreme Court against the placing of + his or her name upon the register, and the parents or + guardians of any person on the register shall have the right + to apply to a Judge of the Supreme Court for the removal of + the name of such person from the register, or for his or her + release from any institution established under the Act. + + (12.) The Committee recommend the establishment of farm or + industrial colonies where feeble-minded or delinquent persons + who are custodial cases may be usefully and, as far as + possible, profitably employed, and where they may receive the + care and protection required by their condition. + + (13.) In regard to sterilization, the Committee find that the + operation of vasectomy in men can be carried out under local + anæsthesia, and is free from risk. The analogous operation of + salpingectomy in women is an abdominal operation, but the risk + is not considered serious. These operations are effective in + preventing procreation, but do not otherwise interfere with + the sexual powers of the patient. In the case of persons + suffering from recurrent insanity or idiopathic epilepsy, + high-grade morons, and others who in the interests of + themselves and of society ought not to be allowed to + reproduce, but who do not for other reasons require custodial + care, it is desirable that the operation of sterilization + should be considered by the Eugenic Board. + + (14.) The Committee recommends that the Eugenic Board should + be given the power in suitable cases to make sterilization a + condition of release from any of the institutions under the + charge of the Department of Mental Hospitals, or removal of + their names from the register on probation, but that in no + case should the operation be performed without the consent of + parents or guardians of the persons concerned. + + (15.) The Committee consider that the persons so operated upon + and liberated should be released on probation and kept under + supervision for a reasonable period, and that they should be + returned to institutional care if found to be leading an + immoral life, or unable to support themselves, or for any + other reason which the Eugenic Board may consider sufficient. + + (16.) The Committee consider that marriage with any registered + person should be made illegal, and that it should be an + indictable offence for any person to have carnal knowledge of + any registered person. It should also be provided that any + parent or guardian who facilitates or negligently allows any + registered person to have carnal knowledge of another person + shall be guilty of an indictable offence. + + (17.) In view of the fact that feeble-minded persons and + others likely to become a burden on the community have in the + past been introduced from overseas, the Committee recommend + that, in addition to the precautions already taken in regard + to assisted immigrants, inquiry should be made into the family + history, especially as to whether it discloses any cases of + insanity, epilepsy, or feeble-mindedness, and that applicants + unable to produce satisfactory evidence on this point should + be excluded. The Committee are further of the opinion that + closer supervision should be exercised over persons who come + as ordinary passengers with the intention of remaining in the + Dominion. + + + + +PART III.--SEXUAL OFFENDERS. + + +SECTION 1.--SCOPE AND ORIGIN OF THE INQUIRY. + +The second section of the order of reference requires the Committee "To +inquire and report as to the necessity for the care and treatment of +mental degenerates and persons charged with sexual offences, and to +recommend forms of treatment for the various types of cases." + +The Committee's finding and recommendation in regard to the "care and +treatment of mental degenerates" who have not been charged with criminal +offences are embodied in the first part of this report. + +The origin of the inquiry, in so far as it concerns the care and +treatment of mental degenerates and sexual offenders who appear before +the Courts, is to be found in the resolution of the Prisons Board first +appearing in their annual report for the year 1920 and repeated in their +reports for 1921 and 1922. + +The resolution is as follows:-- + +"Whereas an increasing number of sexual offences has been the subject of +frequent and serious judicial comment, especially in cases where young +children were the victims, or the very serious nature of the charge +connoted a perversion dangerous to the moral well-being of society; and, +as the experience of the Board in dealing with prisoners of this class +accords, as far as it goes, with the now generally accepted opinion +that, with certain exceptions, persons committing unnatural offences +labour under physical disease or disability, or mental deficiency or +disorder, or both, which accounts for the sexual perversion and the +morbid character of the offence charged: It is resolved by the Prisons +Board strongly to recommend to the Government an amendment of the Crimes +Act under which such offenders could be dealt with scientifically-- + + "(1.) Before sentence is pronounced, by furnishing expert + medical or surgical reports or evidence: + + "(2.) By sanctioning an indeterminate sentence: + + "(3.) By segregating persons so sentenced and subjecting them, + under proper safeguards, to any medical or surgical treatment + which may be deemed necessary or expedient either for their + own good or in the public interest." + +The repeated occurrence of gross offences of the character described by +the Prisons Board, both before and since the Committee commenced its +sittings, has focussed public attention more strongly upon the +necessity for immediate action in regard to the more adequate treatment +of this class of degenerate than upon the much larger and relatively +more important class of mental defective covered by the first section of +the order of reference. + +The bulk of the evidence heard by the Committee and practically the +whole of the information obtained from various sources bore more +particularly upon the question of the care and prevention of the +propagation of the mentally defective part of the population coming +under the general designation of "feeble-minded." While, however, the +evidence obtained regarding the prevalence of sex offences and the care +and treatment of the offenders was not great in volume, it was eminently +practical in character. Apart from this, the flagrant cases reported in +the daily Press during the past few months in connection with the +Supreme Court Sessions in the various centres offer sufficient proof of +the necessity for some drastic amendment of the law on the lines +suggested by the Prisons Board. + + +SECTION 2.--SERIOUSNESS OF THE EVIL. + +That the order for an inquiry into this question was by no means +premature was made apparent to the Committee by the presentation at its +first sitting of a return furnished by the Prisons Department, which +appears in the Appendix to this report, page 30, showing the number of +sexual offenders of the various classes who were actually serving +sentences on the 10th May, 1924. The total number of the sexual +offenders in the prisons of the Dominion on that date was 185. This +number represented 17.273 per cent. of all the prisoners then in +custody. Unfortunately, this percentage has since been increased by +recent commitments of cases of the most serious types. + +A return compiled by the Government Statistician (Mr. Malcolm Fraser) +shows that during the five years, 1919-1923, there were 331 persons +sentenced in the Supreme Court for sexual offences as follows: Rape, 5; +attempted rape, 19; indecent assault on a female, 150; indecent assault +on a male, 50; unlawful carnal knowledge, 49; attempted unlawful carnal +knowledge, 18; incest, 17; unnatural offence, 23: total, 331. + + +SECTION 3.--TYPES OF OFFENCES. + +It is obvious that included under the heading of sexual offences are +cases which vary so greatly in their gravity and in their very nature as +to have little in common. There is a great gulf between the lad +convicted of unlawful carnal knowledge with a girl who is under the +legal age of consent, but who in some instances may even be the actual +instigator of the offence, and the miscreant who tampers with little +girls of tender years, or sets himself deliberately to corrupt boys. It +was this class which the Prisons Board had in mind when it passed the +resolution quoted, and no doubt it is the class which the Committee's +order of reference is intended to cover. + +This class of offence is held in so much detestation by normal persons +possessing ordinary healthy natural instincts that they find it +impossible to consider the question from a judicial and coldly +scientific point of view. It is evident, however, that this must be done +if we are to entertain any hope of finding and applying an effective +remedy to this cancer in the social organism. The evidence given before +the Committee leads them to the belief that the evil is much more +prevalent than is generally supposed--that the cases which come before +the Court constitute only a percentage of those which actually occur. + +The ignorance of the general public in regard to these matters +occasionally leads to an unjust attitude of mind towards some of the +offenders brought before the Courts. Take the case of an old man charged +with "exhibitionism." To the normal mind this seems a particularly +disgusting proceeding, and the offender's age is regarded as an +aggravation. The explanation is that the higher nerve-cells of the old +man are degenerating, that he may be thus unable effectively to control +his morbid sexual impulses, particularly if stimulated by an enlarged +prostate. Such a person is a subject for pity rather than punishment; he +must be restrained from annoying others by his offensive behaviour, but +it is really a case for medical treatment. + +Another class to be considered is the confirmed homosexualist. There are +well-known examples of men eminent in the arts and literature given to +this unnatural practice, and of the offenders who come before the Courts +only a small proportion can be described as feeble-minded. The practice +is not confined to the male sex, although for reasons which will be +apparent it is only males who come before the Courts charged with this +specific offence. Many parents are unaware that girls as well as boys +may contract bad habits and fall into sexual abnormalities, but it is a +fact which they ought to know in order that the danger may be guarded +against. + +Mr. Hawkins, Inspector of Prisons, whose experience extending over forty +years in charge of prisoners in New Zealand makes his opinion of great +weight, says there are two types of sexual offenders to be found in our +prisons: First, there are those who yielded to sudden temptation, +assaulted women or young female children, sometimes under circumstances +exhibiting extreme brutality. In the majority of these cases, he says, +the offenders are curable under a proper system of treatment, and it is +seldom that they again offend. He goes on to say: "The real sexual +pervert, however, who is continually tampering with young children is +different, as is also the case when young boys are the victims. The +worst pervert of all is the one who flagrantly offers himself for the +purposes of sodomy. Strange as it may seem, there are quite a number of +such degenerates in our prisons to-day; middle-aged and elderly men +being the chief offenders of this class. In my opinion segregation for +life is the only course, and my years of experience among such a class +have convinced me of this, their case being absolutely hopeless when +this stage has been reached, and no cure is possible in such cases." + +This pessimistic view, unfortunately, is fully confirmed by the records +of cases examined by the Committee. Long terms of imprisonment, though +combined with the lash, have proved quite ineffective as a deterrent, +even to the individual concerned. In some cases the offender within a +short time after his release has been detected in the same practices and +rearrested. Still less does such a punishment act as a deterrent to +other addicts, if for no other reason than that each individual +cherishes the conviction that he will not be found out. + +Records of a number of illustrative cases are set out in the Appendix, +pages 31-33. + + +SECTION 4.--SUGGESTED REMEDIES. + +As regards the infliction of corporal punishment which is often +advocated, Dr. Murray, Medical Officer to the Mount Eden Prison at +Auckland, who has had a good deal of experience with sexual offenders, +said he had seen a good many flogged, and he did not think it had any +effect as a deterrent. He added, "Nothing will deter men once they have +taken on that line. I think you will find in some cases where a person +has been addicted to those practices before marriage he will drift again +into the same course after a certain number of years. It seems a +perversion they have no control over, and after a certain number of +years it masters them." + +The general opinion of those who have been in touch with this problem +for many years is well expressed in the following extract from a very +valuable report furnished to the Committee by Dr. F. S. Hay, +Inspector-General of Mental Hospitals, on the different questions coming +within the scope of the inquiry:-- + +"As a member of the Prisons Board I have had the matter of the sexual +offender brought under my notice and have come to some very definite +conclusions. + +"I think that he should be brought to trial in the ordinary way, with +perhaps suppression of publication of names of the offender and victim. +If found guilty, he should be given an indeterminate sentence, and be +removed to a farm reformatory prison, where he would be brought under +skilled medical and lay observation, and his case studied in respect +to--_Mentality_, when if afterwards it is decided that he is mentally +defective or deficient in terms of the Act he can be transferred to the +proper institution; _physical condition_, when if there is any disorder +it can be remedied. If the disorder is causative (_e.g._, prostatic in +the elderly) and surgical or medical interference is necessary, it will +be carried out and its results carefully watched and reported on. + +"At present the sentences vary from, say, a year to ten years or more, +the seriousness of the case being one determining factor; but often +similar cases have years of difference in their sentences, and at the +end of the sentence they once more enter the world, and a fair +proportion repeat the offence. The people in the reformatory prisons +can, with experience of a case lasting over some years, foretell the +failure fairly accurately. + +"The degree of sexual perversion being measured by the amount of +interference with children, which accounts for the measure of the +sentence, means no essential difference in the intent or in the +likelihood of repetition, and therefore scientifically the sentences +should be equal. I suggest that they should be made equal by being made +indeterminate. + +"Those of whom the Medical Officer cannot report favourably would +continue on. They could be given a right of revision. Those of whom he +can report very favourably could be released on probation, and so on. +The essential feature is that no hurried diagnosis is made before trial, +but diagnosis and prognosis are arrived at after months and maybe years +of close observation and by a staff gaining experience daily." + + +_Sterilization and Desexualization._ + +The increase of sexual offences during recent years and the disgust felt +by all normally disposed people when contemplating cases of sexual +perversion and assault upon young children have created a strong public +opinion in favour of dealing with these offences as radically as +circumstances will permit. + +Demands are constantly made that the offenders should undergo "a +surgical operation," which is intended to imply either castration or +simple sterilization. + +The British Medical Association, at their annual Conference held in +Auckland in April, 1924, resolved that the following motion be adopted +by the Council: "That this Conference can make no recommendation for +surgical desexualization in the treatment of the adult sex pervert. The +only safeguard for young children in this matter is the permanent +segregation of the offender, either in prisons or in farm colonies. The +Conference emphasizes the importance of the sterilization of the chronic +mentally or morally unfit that a future generation may benefit thereby." + +The Committee therefore considers it necessary to set out as clearly as +may be possible the result of such operations and its deductions from +the evidence taken and authorities consulted as to the probability of +the achievement of the result desired. + +To consider in the first place the operation of simple sterilization +(vasectomy or salpingectomy). It is quite clear that this operation, +when properly carried out, prevents procreation by the individual +operated upon. Although the knowledge of the loss of this power may +modify the views of life held by the individual the operation _per se_ +does not affect his physical or mental health. This would be +anticipated, as the production of the internal secretion of the sexual +glands in either sex (ovaries or testes) continues. + +Sexual desire and capacity for coitus are not usually appreciably +impaired by this operation, and it clearly could not be expected to +restrain the sexual offender from the pursuit of his perverted modes of +gratification. As, however, it appears that in a proportion of cases of +sexual perversion the tendency is an hereditary one, these operations +would, as in the case of the feeble-minded, tend to restrict the number +of individuals in the community afflicted in this manner. The Committee +would therefore recommend that simple sterilization be considered by the +Eugenic Board in relation to sexual perverts. + + +_Castration (Desexualization)._ + +The operation of desexualization implies the removal of the sexual +glands (ovaries or testes), and involves other considerations than the +operation of simple sterilization. + +The loss of the internal secretion of these glands may produce physical +and mental changes in the individual. These effects vary greatly in +degree according to the age at which the operation is performed. + +The earlier it is done the more decided the result. If performed _before +puberty_ the secondary sexual characteristics fail to develop. The voice +does not change in the male; the development of hair is more sparse; the +general physical development is less masculine; and mentally the +individual is less aggressive. Most pertinent of all as bearing upon the +question under review, sexual desire and capacity do not develop, either +at all, or at any rate, not to the same degree as in a normal +individual. This result, however, is not constant, and depends +principally upon the age at which the operation is performed. + +_After puberty_ the operation is very much less effective. The secondary +sexual characteristics have been already established and persist. It +occasionally occurs that certain mental effects are produced. In women +these resemble, generally speaking, those occurring at the climacteric. +In both sexes, however, mental disturbances may occasionally arise. + +The immediate effect upon sexual desire and capacity is slight. It would +appear, however, from the small amount of evidence available on this +point that the tendency is to a gradual diminution of sexual desire, +possibly even to disappearance after some years. + +As it is generally after puberty that sexual perversion becomes +manifest, it is clear that much cannot be expected from this operation. + +The problematic result and the extent of the mutilation restrain the +Committee from any suggestion that such an operation should be made +compulsory. + +The Committee feel that the information at present available in regard +to sterilization or desexualization of sexual offenders is quite +inadequate to permit of a sound and final judgment as to the value of +the procedure. They recommend, therefore, that the whole question be +remitted for careful investigation to the Eugenic Board which it is +proposed should be set up. + + +SECTION 5.--SCIENTIFIC TREATMENT AND SEGREGATION WITH INDETERMINATE +SENTENCE. + +After very careful consideration the Committee have come to the +conclusion that it is most desirable, in continuation of the system of +prison reform which has been inaugurated with so much success in this +country, that every person charged with a serious sexual offence should +be carefully examined by a medical man and skilled psychiatrist before +his trial, and evidence given to the Court of any physical or mental +defect having a bearing on the case. + +In the judgment of the Committee, the best way of dealing with persons +guilty of sexual crimes is by means of the indeterminate sentence. Each +case should be examined by a psychiatrist as well as by the Prison +Medical Officer, and the length of the period of detention should be +determined by the Prisons Board after looking into the nature of the +offence and considering the report of the psychologist and evidence as +to the conduct of the prisoner while under detention. In cases of the +worst type the indeterminate sentence would doubtless resolve itself +into detention for life. + +At all costs the women and children of the community must be protected +against this class of offender. The evidence of Mr. Hawkins as to this +class is emphatic and very much to the point:-- + +"Personally I have never yet seen a complete cure in the case of a real +sexual pervert. Years of imprisonment, to my own personal knowledge, +have failed to do any good whatever. Treat them kindly, give them useful +work, and make their lives as pleasant as possible, but never let them +loose on society again. Even if this were done, the trouble with such +individuals is by no means ended, as if it is intended to prevent them +following their beastly tendencies constant unremitting supervision will +be necessary. The average citizen has not the slightest conception of +the utter depths of depravity to which a confirmed male sexual pervert +will descend. Instances of such depravity have occurred to my knowledge. +Many of the men referred to are not fit to live, but it must be +remembered that in many instances the evil tendencies have been +inherited, while in others environment has played a prominent part." + +The information placed before the Committee, which is summarized in the +foregoing paragraphs, leads to the conclusion that the requirements of +the position are fairly well covered by the terms of the Prisons Board's +resolution. + + +SECTION 6.--SUMMARY OF RECOMMENDATIONS. + +The Committee recommend,-- + + (1.) That the Crimes Act be amended to provide for the passing + of an indeterminate sentence upon persons convicted of sexual + offences. The Courts to be given full discretion as to whether + the sentence shall be definite or indeterminate. + + (2.) That the Prisons Board be vested with the same power of + recommendation for the release on probation or final discharge + of prisoners under an indeterminate sentence as they have now + in regard to all other prisoners. + + (3.) That a psychiatrist be appointed to advise the Prisons + Department as to the classification and treatment, and that he + be available to the Courts for the examination, before + sentence, of sexual offenders, or of offenders who are thought + to be irresponsible on account of mental defect. + + (4.) That the Prisons Board be advised by the Eugenic Board in + regard to the release on probation or final discharge of all + sexual offenders or feeble-minded offenders coming under its + jurisdiction. + + (5.) The Committee feel that the information at present + available in regard to sterilization or desexualization of + sexual offenders is quite inadequate to permit of a sound and + final judgment as to the value of the procedure. They + recommend, therefore, that the whole question be remitted for + careful investigation to the Eugenic Board which it is + proposed should be set up. + + +CONCLUDING REMARKS. + +It goes without saying that the work of the Committee in pursuing their +investigations has been of a very painful and depressing character. We +need not refer to the depth of human degradation and the revolting +pathological details which had to be explored in dealing with the second +order of reference, beyond saying that the witnesses who faced the +unpleasant task of giving evidence deserve the thanks of the public for +discharging what they evidently felt to be a public duty. In the inquiry +into the problem of the feeble-minded the most saddening experience of +the Committee was the sight of so many children deprived of their full +share of the light of reason, often maimed and stunted in body as well +as in intellect. The sight was made sadder still by the reflection that +unless prompt and effective action is taken the multiplication of these +degenerates will increase and the race will steadily deteriorate. + +Professor William MacDougall, the noted psychologist of Harvard +University, speaking at Toronto recently in reference to the disregard +of eugenic methods in America in maintaining and improving the national +stock, said: "As I watch the American people speeding daily with +invincible optimism down the path that leads to destruction I seem to be +watching one of the greatest tragedies of history." + +New Zealand is a young country already exhibiting some of the weaknesses +of much older nations, but it is now at the stage where, if its people +are wise, they may escape the worst evils of the Old World. It has +rightly been decided that this should be not only a "white man's +country," but as completely British as possible. We ought to make every +effort to keep the stock sturdy and strong, as well as racially pure. +The pioneers were for the most part an ideal stock for a new offshoot of +the Mother-country. The Great War revealed that from their loins have +sprung some of the finest men the world has ever seen, not only in +physical strength, but in character and spirit. It also revealed that an +inferior strain had crept in and that New Zealand was already getting +its share of weaklings. Surely our aim should be to prevent, as far as +possible, the multiplication of the latter type, and to increase the +elements of the mental, moral, and physical strength of the nation. In +these beautiful and richly dowered islands we have a noble heritage--to +be in keeping and to ensure the full development of their resources and +enjoyment of their blessings the inhabitants should be of the highest +type obtainable by human effort. + +This is the lesson which has been impressed upon the minds of the +Committee during their investigations, and they have been sustained in +their saddening experience by the hope that this lesson will be taken to +heart by both the Parliament and the people of the Dominion. + +W. H. TRIGGS, Chairman. +D. MCGAVIN. +F. TRUBY KING. +J. S. ELLIOTT. +ADA G. PATERSON. +CHAS. E. MATTHEWS. +J. BECK. + +J. W. BUCHANAN, Secretary. + + + + +APPENDIX. + +PAST MISTAKES IN IMMIGRATION. + +EXTRACT FROM REPORT ON HOSPITALS AND CHARITABLE INSTITUTIONS OF THE +COLONY, 1888, BY THE LATE DR. MACGREGOR, INSPECTOR-GENERAL. + + +Many causes have conspired in our history as a colony to intensify the +good-nature of our people--at any rate, so far as extravagance in +vicarious charity is concerned. Our sensitiveness to suffering has been +greatly stimulated by the comparative absence from our towns of those +sights of misery and squalor that deaden the feelings by familiarity; +and the lavish life we have led since 1870 has made us free-handed to +the poor and impatient of the trouble required to find out whether our +charity was wisely or mischievously given. + +During our years of plenty, when borrowed money was being largely spent, +and the prices of wool, &c., were high, I was in charge of the Dunedin +Asylum, and remember with what forebodings I regarded the quality of the +immigrants that were being poured into the country after the despatch of +instructions in October, 1873, to the Agent-General "To grant free +passages, and also, if necessary, advance expenses to port of +embarkation and outfit." + +Twenty thousand immigrants were, if possible, to be sent out in six +months. With wonderful rapidity the results became apparent. From all +parts came reports of the evil quality of the immigrants. The +Immigration Minister, writing to the Agent-General in June, 1874, says: +"I have already called your attention to the fact that the shipment by +the ... included a number of girls out of the Cork Workhouse, and I took +the opportunity of remarking on the very undesirable character of such +immigration. A perusal of the report of the Immigration Officer at +Dunedin will, I think, convince you how very disastrous it is likely to +prove to the cause of immigration if such modes of selection as those +adopted by Mrs. ---- (who was paid per emigrant) are under any +circumstances permitted. The result in the colony of the landing and +distribution of such women as these complained of, and of such +immigrants as the "young men" whom Mr. Allen states he has ascertained +to be professed thieves, and one of them a ticket-of-leave man, is +naturally a feeling of indignation and dismay." + +No doubt this was an extreme case, but, nevertheless, it is plain that, +what with the great influx of a low class of navvies during the height +of our public works, and the vicious and degenerate people, of whom so +many were introduced at this time, the average of our population in +point of quality was considerably deteriorated. My experience as Medical +Officer of our largest asylum for so many years has convinced me that +the ultimate cost of this degraded class of people to this country is +enormous. For instance, here is an account of two families and their +asylum history:-- + + +--------+-------------------------------+---------------+-------------+ + | | | Cost per | | + | | | Head. Rate, | | + |Number. | Name. | £1 per Week | Total Cost. | + +--------+-------------------------------+---------------+-------------+ + | | | £ s. d.| £ s. d.| + | | _Family of B._ | | | + |I | A.B. (brothers) | 80 2 0 | | + |II | C.B. | 274 4 0 | | + |III | D.B. | 230 2 0 | | + |IV | E.B. | 8 2 0 | | + |V | F.B. | 8 2 0 | | + | | |---------------+ 600 12 0 | + | | _Family of C._ | | | + |I | A.C., wife | 472 2 0 | | + |II | B.C., husband of A.C. | 418 0 0 | | + |III | D.C., daughter of A.C. | 834 2 0 | | + | | and B.C. | | | + |IV | E.C., " | 1,318 2 0 | | + |V | F.C., illegitimate daughter | 169 8 0 | | + | | of E.C. | | | + |VI | G.C., husband of F.C., but no | 5 2 0 | | + | | blood relation | | | + | | |---------------+ 3,216 16 0 | + | | | |-------------| + | | | |£3,817 8 0 | + +--------+-------------------------------+---------------+-------------+ + +Such people and their offspring are at this moment a fruitful source of +those idle and useless persons who bring discredit on the cause of that +portion of our people who cannot find employment. They fill our gaols, +our hospitals, and our asylums, and, like a swarm of low parasitical +organisms, they have, to an extent that is almost incredible, absorbed +the outdoor relief that was meant for the self-supporting and struggling +poor. I am sure that by far the largest proportion of the aid that has +been so abundantly distributed by the various charitable agencies, +especially in our large towns, has been spent in supporting a great many +idle and vicious persons whose example has had the most pernicious +effect in pauperizing the people. It should never be forgotten that the +evil caused by the introduction of this class is never finished. The +impaired health, low morality, and insanity descend to the offspring, +and are a continual drain upon the community. + + + + +THE HEALTH OF SCHOOL-CHILDREN. + +EXTRACT FROM THE REPORT OF THE DIRECTOR OF THE DIVISION OF SCHOOL +HYGIENE, 1924. + + +The fundamental necessities of healthy growth are simple, and it is +doubtful if there is any country in the world to-day where they are more +universally procurable. Fresh air, sunlight, food of the right type and +amount, adequate sleep and rest, wholesome exercise, are available for +all but that small section of the people already mentioned. Sir +Frederick Mott, in an address recently published in the _British Medical +Journal_, quotes Voltaire: "Regime in diet is better than medicine. Eat +moderately what you know by experience you can digest, for that which +you can digest only is good for the body. What is the medicine that +makes you digest? Exercise. What will repair your energy? Sleep." + +To this text he adds the benefits of sunlight and pure air. + +Reports from School Medical Officers continue to record that tea, white +bread, and meat play the chief part in the dietary of many homes. Fresh +fruit and vegetables, even in rural areas, are not eaten sufficiently. + +Frequent eating between meals takes away appetite and retards digestion. +Many children bring to school substantial "play-lunches" to be consumed +at the mid-morning interval. Others consume large quantities of sweets. +Healthy hunger they rarely know. A noteworthy fact is that in New +Zealand the consumption of sugar per head per annum is 117 lb., as +against rather more than half that quantity in Britain and much less in +other countries. Apart from its directly deleterious influence on the +teeth, the alteration of food values in the dietary necessitated by the +inclusion of so much sugar results in digestive troubles and disturbed +nutrition. In this country, with its many sources of supply, eggs, milk, +cheese, butter, fresh fruit, and vegetables should be available in +sufficient abundance and at low-enough prices to displace to a greater +extent the meat that is such a prominent article of diet in many +households. + +The value of rest, both physical and mental, for children is not +adequately recognized. In the country many children work early and late +at farm-work, as milking, &c., and in the city children earn money as +newsboys, message-boys, &c. Where the family exchequer needs to be +augmented in this way excuse must be made, but in many comfortable homes +children do not rest sufficiently. Mr. Cyril Burt, psychologist for the +London City Council, was recently reported as deploring the tendency in +modern education to attach undue value to the dramatic and theatrical. +Children who possess talent are made to drag it prematurely into the +light of publicity. They are over-trained and over-stimulated. Nearly +all children are taught to regard frequent amusement as essential to +happiness. To leave them to develop their own resources and allow them +to find interest in simple and natural things would be to extend widely +their chance of future happiness. + +It is the wrongly fed, insufficiently rested child that most readily +develops physical deformity. The fatigued nervous system is expressed in +general bodily slackness. There is deficient muscular and ligamentous +tone. The typical faulty posture is thus acquired, with drooping head, +flat chest, wing shoulders, prominent abdomen. Vitality is depressed and +the bodily mechanism out of gear. The grosser bony deformities so often +found in older lands associated with rickets are rarely seen in New +Zealand, but less evident manifestations of faulty diet and regime are +frequent. It is fortunate that in this country we cannot altogether +escape, however we seek our pleasures in stuffy rooms or dark, +ill-ventilated places of entertainment, those powerful and beneficial +agents for promoting healthy growth--sunlight and fresh air. For the +prevention of defect it is essential that the classroom should offer +hygienic conditions--_e.g._, good lighting and ventilation, suitable +furniture, &c. Another contributory factor in poor physical development +is the use of incorrect clothing and footwear. It is a common thing to +find from six to eight layers of tight garments constricting the chest +even in a child whose legs are scantily protected from cold. Shoes which +are too tight or too short, or which have heels so high as to prevent +correct body-balance, are very harmful. Clothing should offer adequate +protection, but should not prevent the most absolute freedom of +movement. + + + + +SEXUAL OFFENDERS IN NEW ZEALAND. + + +The Prisons Department has furnished the following return of +sexual offenders serving sentences in New Zealand prisons in 1924: +The total number of sexual offenders, 192; the total number of +sexual offenders born in New Zealand, 126; the total number of +sexual offenders born out of New Zealand, 66; the total number of +persons in the prisons serving sentences exceeding three months, +980; the total number of New-Zealand-born prisoners, 673; +proportion of sexual offenders--New-Zealand-born to total number +of New-Zealand-born criminals, 18.722; total number of prisoners +born outside New Zealand, 307; proportion of sexual offenders born +outside New Zealand to prisoners born outside New Zealand, 21.498. + + +TABLE SHOWING THE NUMBER OF SEXUAL OFFENDERS SENTENCED UNDER THE +RESPECTIVE HEADINGS IN NEW ZEALAND PRISONS AS ON 31ST AUGUST, 1924. + + Carnal Knowledge and Attempted Carnal Knowledge. 30 + Indecent Assault. 106 + Indecent Act. 3 + Indecent Exposure. 9 + Incest and Attempted Incest. 18 + Sodomy and Attempted Sodomy. 23 + Rape and Attempted Rape. 19 + Manslaughter. 1[A] + TOTAL 209[B] + + [Footnote A: Victim an old lady, aged 71, who died as the + result of a struggle, in which prisoner committed rape upon + her.] + + [Footnote B: Number includes 17 prisoners who appear under + more than one of the above headings, therefore the actual + number of individual offenders total 192.] + +Number of sentenced prisoners (exceeding three months) in custody on the +31st August, 1924, was 980, therefore sexual offenders (192 individuals) +represent 19.592 per cent. of the sentenced prison population serving +periods exceeding three months. + + +CARNAL KNOWLEDGE AND ATTEMPTED CARNAL KNOWLEDGE. + + ____________________________________________________________ + | Age of |Age of | Age of | Age of | Age of |Age of | + |Offender.|Victim.|Offender.| Victim. |Offender.|Victim.| + +---------+-------+---------+--------------+---------+-------+ + | 28 | 13 | 43 |Several young | 34 | 14 | + | 18 | 7 | | children | 22 | 15 | + | 18 | 7 | 52 | 14 | 30 | 9 | + | 34 | 15-5/6| 23 | 14 | 35 | 15 | + | 72 | 13-1/2| 25 | 9 | 27 | 12 | + | 21 | 8 | 44 | 6 | 28 | 9 | + | 29 |15-7/10| 37 | 15 | 37 | 14 | + | 29 | 13 | 29 | 15 | 35 | 3 | + | 40 | 14-1/2| 44 | 13 | 17 | 12 | + | 27 | 8 | 31 | 15 | 43 | 15 | + | 23 | 15 | | | | | + +---------+-------+---------+--------------+---------+-------+ + + +SOME ILLUSTRATIVE HISTORIES. + + +CASE NO. 1. + + ____________________________________________________ + |Number of |Age of | | + |Successive |Offender | | + |Convictions.|when | Offence. | + | |offence | | + | |committed.| | + +------------+----------+----------------------------+ + |A. 1 | 19 |Indecent assault on a male | + | 2 | 23 |Idle and disorderly | + | 3 | 26 |Indecent assault on a male | + | | | | + | | | | + | 4 | 37 |Indecent assault on males | + | | | (three charges) | + +------------+----------+----------------------------+ + __________________________________________________________________ + | Sentence. | Sentenced|Released|Period at Large | + | | (Date). | (Date).| before arrest | + | | | |on Further Charge. | + +-------------------------+----------+--------+--------------------+ + |4 years' hard labour | 21/12/06 |21/12/09| 2-1/2 months. | + |12 months' hard labour | 4/ 3/10 |29/12/10| 2 years 2 months. | + |10 years' hard labour | 17/ 3/13 |16/12/21| 2-1/2 years. | + |and 10 years' reformative| | | | + |detention | | | | + |10 years' hard labour | 25/ 6/24 |Still in| | + | | | prison.| | + +-------------------------+----------+--------+--------------------+ + +NOTE.--Offender was born at Auckland and is the third eldest of +a family of eight. He was evidently dull at school, as he passed the +Third Standard only at the age of 13. At the age of 16 he was charged +with the offence of vagrancy, convicted and discharged. The victims in +all his offences were children varying in age from 6 to 13 years. + + +CASE NO. 2. + + ______________________________________________________ + |Number of |Age of | | + |Successive |Offender | Offence. | + |Convictions.|When Offence| | + | |committed. | | + +------------+------------+----------------------------+ + | B. 1 | 23 |Theft (four charges) | + | 2 | 24 |Rogue and vagabond; vagrancy| + | 3 | 37 |Rape | + +------------+------------+----------------------------+ + _______________________________________________________________ + | | | | | + | Sentence. |Sentenced | Released |Period at Large | + | | (Date). | (Date). |before Arrest | + | | | |on Further Charge. | + +---------------------+----------+----------+-------------------+ + |1 month | 29/10/00 | 28/10/00 | 1 year. | + |3 months' hard labour| 5/11/01 | 4/ 2/02 | 1 year 9 months. | + |Hard labour for life | 1/ 2/04 | 3/12/23 | | + +---------------------+----------+----------+-------------------+ + +NOTE.--Offender is a native of New Zealand. The most serious of +his offences (No. 3) was committed on a girl 8½ years of age. After +serving six years of his term of life imprisonment the prisoner showed +signs of being mentally unsound, and in March, 1910, he was transferred +to a mental hospital. He remained a patient in a mental hospital until +March, 1915, when he escaped. It was afterwards ascertained that he was +aware of the fact that he was about to be returned to prison as being no +longer an insane person--hence his escape. After his escape he married, +and subsequently served two years with the Expeditionary Force. He was +returned to New Zealand as medically unfit and was arrested at Auckland +and returned to prison in August, 1917. Two members of his family--a +sister and a brother--have been convicted of theft and "conducting a +house of ill fame." + +This man was released on probation, on the certificate of an expert in +mental diseases, after serving the full life term of twenty years, but +soon after release gave clear indications of return to former criminal +perversions, and his rearrest was ordered. + + +CASE NO. 3. + + ______________________________________________________________________ + |Number of |Age of | | | + |Successive |Offender | Offence. | Sentence. | + |Convictions.|When Offence| | | + | |committed. | | | + +------------+------------+------------------+-------------------------+ + | C. 1 | 25 |Obscene exposure |3 months' hard labour | + | 2 | 26 | " |6 months' hard labour | + | 3 | 26 | " |12 months' hard labour | + | 4 | 27 |Wilful damage |14 days' hard labour | + | 5 | 27 |Obscene exposure |12 months' hard labour | + | 6 | 30 |Assault |2 months' hard labour | + | 7 | 31 |Obscene exposure |3 months' hard labour | + | 8 | 31 |Rogue and vagabond|1 month's hard labour | + | 9 | 31 | " |12 months' hard labour | + | 10 | 32 |Obscene language |2 months' hard labour | + | 11 | 33 |Indecent assault |6 years' hard labour and | + | | | on a female | 4 years' reformative | + | | | | detention | + | 12 | 40 |Indecent assault |7 years' hard labour | + | | | on a male | | + +------------+------------+------------------+-------------------------+ + ________________________________________ + |Sentenced |Released |Period at Large | + | (Date). | (Date). |before Arrest | + | | |on Further Charge. | + +----------+---------+-------------------+ + | 19/ 6/06 | 18/9/06 | 8 months. | + | 15/ 5/07 |22/10/07 | 1 day. | + | 23/10/07 | 15/8/08 | 3 months. | + |} 6/11/08 | 28/8/09 | 10 months. | + |} | | | + | 13/ 6/10 | 5/9/10 | 4 months. | + | 6/ 1/11 | 5/4/11 | 6 days. | + | 11/ 4/11 | 10/5/11 | 1 day. | + | 11/ 5/11 | 2/3/12 | 1 month. | + | 2/ 4/12 | 1/6/12 | 8 months. | + | 5/ 2/13 | 23/9/19 | 2 years 1 month. | + | | | | + | | | | + | 31/10/21 |Still in | | + | |prison. | | + +----------+---------+-------------------+ + +NOTE.--C. is a single man, aged 40 years, and a native of New +Zealand. He is a cabinetmaker by trade and said to be an excellent +tradesman. He appears to have been in trouble since he was 25 years of +age, and has constantly been in prison, the majority of his offences +being of a sexual nature. He is described as a highly dangerous criminal +and a menace to society. + + +CASE NO. 4. + + _____________________________________________________________________ + |Number of |Age of | | | + |Successive |Offender | Offence. | Sentence. | + |Convictions.|When Offence| | | + | |committed. | | | + +------------+------------+-----------------+-------------------------+ + | D. 1 | 15 |Theft |6 months' probation | + | 2 | 26 |Carnal Knowledge |20 years' hard labour | + | 3 | 38 | (1.) Indecent |(1.) 2 years' reformative| + | | | assault on a | detention; declared | + | | | male | habitual criminal | + | | | (2.) Indecent |(2.) 3 years' reformative| + | | | assault on a | detention | + | | | female | | + +------------+------------+-----------------+-------------------------+ + + +----------+---------+-------------------+ + |Sentenced |Released |Period at Large | + | (Date). | (Date). |before Arrest | + | | |on Further Charge. | + +----------+---------+-------------------+ + | 30/7/01 | ---- | | + | 1/2/12 | 20/2/22 | 2 years 6 months. | + | | | | + | 28/7/24 |Still in | | + | | prison | | + +----------+---------+-------------------+ + +NOTE.--D. is a native of New Zealand, aged 38 years and +married. His second offence, a very serious one, was committed on a +female child of 9 years, the child being subjected to great violence and +raped. He was released from prison on license on 20th February, 1922, +when he married a respectable woman who knew nothing of his past +history. She states that he was a good husband. There is one child of +the marriage, a female of 11 months. He is addicted to drink, and is +said to have been under the influence of liquor when he committed his +last offence. He is not a fit subject to be at liberty, as it was the +merest accident that his last offence did not become as serious as that +he committed in 1912. Offender has two brothers, both criminals. + + +CASE NO. 5. + + __________________________________________________________ + |Number of |Age of | | + |Successive |Offender | Offence. | + |Convictions.|when Offence| | + | |committed. | | + +------------+------------+--------------------------------+ + | E. 1 | 14 |Breaking, entering, and theft | + | 2 | 15 |Absconding | + | 3 | 15 |Breaking, entering, and theft | + | 4 | 19 |Drunk | + | 5 | 19 | " | + | 6 | 20 |Sodomy | + | 7 | 38 |(1.) Indecent assault on a male | + | | |(2.) Common assault | + +------------+------------+--------------------------------+ + ____________________________________________________________________ + | | | | | + | Sentence. |Sentenced |Released |Period at Large | + | | (Date). | (Date). |before Arrest | + | | | |on Further Charge.| + +--------------------------+----------+----------+------------------+ + |Committed to Burnham | 26/11/00 | ---- | | + |Returned to Burnham | 24/ 2/01 | ---- | | + |12 months' hard labour | 18/ 4/01 | 15/ 2/02 | 2 years 3 months.| + |Fined 5s. and costs | 23/ 5/04 | ---- | | + |Fined 5s. and costs | 3/11/04 | 3/11/04 | 3 months. | + |Life | 15/ 2/05 | 21/ 6/21 | 2 years 4 months.| + |(1.) 10 years' hard labour| 30/10/23 | Still in | | + |(2.) 1 year's hard labour | " | prison.| | + +--------------------------+----------+----------+------------------+ + +NOTE.--E. is a native of New Zealand, aged 39 years and +married, with one child. He is reported to suffer from injuries to the +head caused by a fall from a tree when eleven years of age, and to be +subject to uncontrollable fits of temper and loss of mental balance +since that age. Offender was educated in Auckland, and passed the Third +Standard only at the age of 13. He was committed to Burnham at the age +of 10 for two years, from which institution he absconded on several +occasions. According to his own statement, during his term at Burnham +the practice of sodomy was fairly common, and the boys often talked +about it, but in his opinion did not regard it as a serious offence. He +states they were flogged for it, but did not think much of that either, +because they were flogged for many other things which he knew were not +serious. He says he also met boys from another industrial school who +were sent to Burnham, who also did and talked about the same practice. +Altogether, therefore, he knew he was doing wrong, but he will not admit +that he regarded it in any way as a serious offence. In 1903 he went to +sea, and states that his chief companion was a member of the Salvation +Army, also a seaman. He affirms that during all the time he was at sea +he never heard the offence referred to. The men talked of women but +never of sodomy. From 1903 to 1905 he apparently lived a reasonably good +life. In 1905 he was convicted of sodomy and sentenced to life +imprisonment. He was released on license on the 20th June, 1921, and +followed the occupation of gardener around Auckland. He married in June, +1923, and is at present serving a long sentence. Offender alleges having +made arrangements to be sterilized, but states doctor refused to perform +operation. Drink appears to have had some effect upon his life. + + +CASE NO. 6. + + ________________________________________________________ + |Number of |Age of | | + |Successive |Offender | Offence. | + |Convictions.|when Offence| | + | |committed. | | + +------------+------------+------------------------------+ + | F. 1 | 12 | Theft | + | | | | + | 2 | 12 | " | + | 3 | 20 | " | + | 4 | 20 | " | + | | | | + | 5 | 21 |Breaking, entering, and theft | + | 6 | 22 |Vagrancy | + | 7 | 24 |Indecent assault | + | 8 | 25 |Escaping from custody | + | | | | + | 9 | 28 |Indecent assault | + | 10 | 37 | " | + | 11 | 43 |Indecent assault on a female | + | | | (two charges) | + | | | | + | | | | + +------------+------------+------------------------------+ + ___________________________________________________________________ + | | | | | + | Sentence. |Sentenced | Released |Period at Large | + | | (Date). | (Date).|before Arrest | + | | | |on Further Charge. | + +-------------------------+----------+----------+-------------------+ + |To come up when called | 8/10/92 | ---- | | + | upon | | | | + |Sent to Burnham | 5/12/92 | ---- | | + |7 days' hard labour | 28/ 4/00 | ---- | | + |To come up when called | 24/10/00 | ---- | | + | upon | | | | + |12 months' hard labour | 26/ 2/01 | 21/12/01 | 3 months. | + |3 months' hard labour | 13/ 3/02 | 21/ 6/02 | 1 year 8 months. | + | 5 years' hard labour | 17/ 2/04 | 23/12/07 | 9 months. | + | 4 months' hard labour, | 17/ 5/05 | " | | + | cumulative with above | | | | + |7 years' hard labour | 8/ 9/08 | 8/12/13 | 3 years 5 months. | + |7 years' hard labour | 14/ 5/17 | 20/11/22 | 6 months. | + |3 years' hard labour on | 8/ 5/23 | Still in | | + | each charge, cumulative,| | prison.| | + | and declared | | | | + | habitual criminal | | | | + +-------------------------+----------+----------+-------------------+ + +NOTE.--F. is a native of New Zealand, born in Napier, February, +1880, and is a labourer by occupation. He was convicted of theft at +Napier when a boy and sent to the Burnham Industrial School, from which +place he escaped on several occasions. He was discharged from the school +on the 30th April, 1898, and since then has continued his criminal +career, his further offences being of a sexual nature. He is given to +tampering with little girls, and has on four occasions committed +indecent assault of a more or less serious nature. He is undoubtedly a +menace to society and not fit to be at large. Offender is a temperate +man, and when out of gaol appears to have wandered about the country +doing an odd day's work here and there. His parents are dead. + + + + +_Approximate Cost of Paper._--Preparation, not given; printing (575 +copies), £42 + + * * * * * + +By Authority: W. A. G. SKINNER, Government Printer, +Wellington.--1925. + +_Price 1s._ + + + + + +End of the Project Gutenberg EBook of Mental Defectives and Sexual Offenders, by +W. H. Triggs, Donald McGavin, Frederick Truby King, J. Sands Elliot, Ada G. Patterson, C.E. Matthews and J. Beck + +*** END OF THIS PROJECT GUTENBERG EBOOK MENTAL DEFECTIVES AND SEXUAL OFFENDERS *** + +***** This file should be named 18932-8.txt or 18932-8.zip ***** +This and all associated files of various formats will be found in: + http://www.gutenberg.org/1/8/9/3/18932/ + +Produced by Jonathan Ah Kit, Cori Samuel and the Online +Distributed Proofreading Team at http://www.pgdp.net + + +Updated editions will replace the previous one--the old editions +will be renamed. + +Creating the works from public domain print editions means that no +one owns a United States copyright in these works, so the Foundation +(and you!) can copy and distribute it in the United States without +permission and without paying copyright royalties. Special rules, +set forth in the General Terms of Use part of this license, apply to +copying and distributing Project Gutenberg-tm electronic works to +protect the PROJECT GUTENBERG-tm concept and trademark. 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Sir Maui Pomare. + </title> + <style type="text/css"> +/*<![CDATA[ XML blockout */ +<!-- + body{margin-left: 10%; + margin-right: 10%; + } + + p { margin-top: .75em; + text-align: justify; + margin-bottom: .75em; + } + h1,h2,h3,h4,h5,h6 { + text-align: center; /* all headings centered */ + clear: both; + padding-top: .75em; + } + + + hr { width: 33%; + margin-top: 2em; + margin-bottom: 2em; + margin-left: auto; + margin-right: auto; + clear: both; + } + + table { margin-left: auto; margin-right: auto; } + td { padding-top: .75em; padding-left: 3px; padding-right: 3px; padding-bottom: 3px;} + td p { margin-bottom: 0em; margin-top: 0em;} + + .bordered { border-width: 1px 0 0 0; + border-spacing: 0; + border-collapse: collapse; + border-style: solid; + border-color: #aaa; } + + .style1 { margin: 0; + border-width: 0px 1px 0 0; + border-color: #aaa; + border-style: solid; + padding-top: .25em; + padding-bottom: .5em; + vertical-align: top;} + + .style2 { margin: 0; + padding-top: .25em; + padding-bottom: .5em; + padding-left: 1em; + vertical-align: top; } + + .style3 { margin: 0; + border-width: 1px 1px 1px 1px; + border-color: #aaa; + border-style: solid; + padding-top: .25em; + padding-bottom: .5em; + vertical-align: top;} + + .b-thick {border-width: 2px 2px 2px 2px; + border-color: #999; + border-style: solid;} + + .blockquot{margin-left: 5%; margin-right: 10%;} + .pagenum {position: absolute; left: 92%; font-size: smaller; text-align: right;} /* page numbers */ + + .centre {text-align: center;} + .right {text-align: right; } + .smcap {font-variant: small-caps;} + .gap {margin-left: 4em;} + + .toc {margin-left: 10%; margin-right: 10%; } + .hanging {margin-left: 3em; text-indent: -2em;} + .toc-right{text-align: right; vertical-align: bottom;} + .toc-left {text-align: center; font-variant: small-caps; padding-top: 1em;} + + .footnotes {border: dashed 1px;} + .footnote {margin-left: 10%; margin-right: 10%; font-size: 0.9em;} + .footnote .label {position: absolute; right: 84%; text-align: right;} + .fnanchor {vertical-align: super; font-size: .8em; text-decoration: none;} + + // --> + /* XML end ]]>*/ + </style> + </head> +<body> + + +<pre> + +The Project Gutenberg EBook of Mental Defectives and Sexual Offenders, by +W. H. Triggs, Donald McGavin, Frederick Truby King, J. Sands Elliot, Ada G. Patterson, C.E. Matthews and J. Beck + +This eBook is for the use of anyone anywhere at no cost and with +almost no restrictions whatsoever. You may copy it, give it away or +re-use it under the terms of the Project Gutenberg License included +with this eBook or online at www.gutenberg.org + + +Title: Mental Defectives and Sexual Offenders + Report of the Committee of Inquiry Appointed by the Hon. + Sir Maui Pomare, K.B.E., C.M.G., Minister of Health + +Author: W. H. Triggs, Donald McGavin, Frederick Truby King, J. Sands Elliot, Ada G. Patterson, C.E. Matthews and J. Beck + +Release Date: July 29, 2006 [EBook #18932] + +Language: English + +Character set encoding: ISO-8859-1 + +*** START OF THIS PROJECT GUTENBERG EBOOK MENTAL DEFECTIVES AND SEXUAL OFFENDERS *** + + + + +Produced by Jonathan Ah Kit, Cori Samuel and the Online +Distributed Proofreading Team at http://www.pgdp.net + + + + + + +</pre> + + +<h3><a name="Page_1" id="Page_1"></a>1925.<br /> +NEW ZEALAND.</h3> + +<hr class="short-line" /> + +<h1>MENTAL DEFECTIVES AND SEXUAL OFFENDERS.</h1> + +<h4>REPORT OF THE COMMITTEE OF INQUIRY APPOINTED BY<br />THE HON. SIR MAUI +POMARE, K.B.E., C.M.G., MINISTER OF HEALTH.</h4> + +<hr style="margin-top: 2em; margin-bottom: 0em;" /> +<p class="centre"><i>Laid on the Table of the House of Representatives by Leave.</i></p> +<hr style="margin-top: 0em; margin-bottom: 2em;" /> + +<div class="blockquot"> +<p class="centre smcap">Constitution of the Committee.</p> + +<p class="hanging"><span class="smcap">Hon. W. H. Triggs</span>, M.L.C., Chairman.</p> + +<p class="hanging"><span class="smcap">Sir Donald McGavin</span>, Kt., C.M.G., D.S.O., M.D. (Lond.), F.R.C.S. +(Eng.), Director-General of Medical Services, Defence Department.</p> + +<p class="hanging"><span class="smcap">Sir Frederick Truby King</span>, Kt., C.M.G., M.B., B.Sc. (Public +Health) (Edin.), Director Division of Child Welfare, Department of +Health.</p> + +<p class="hanging"><span class="smcap">J. Sands Elliott</span>, Esq., M.D., Bac. Surg. (Edin.), Chairman of +the Council of the N.Z. Branch of the British Medical Association.</p> + +<p class="hanging"><span class="smcap">Miss Ada G. Paterson</span>, M.B., Ch.B. (N.Z.), L.M. (Dublin), +Director Division of School Hygiene, Department of Health.</p> + +<p class="hanging"><span class="smcap">C. E. Matthews</span>, Esq., Under-Secretary for Justice and +Controller-General of Prisons, &c.</p> + +<p class="hanging"><span class="smcap">J. Beck</span>, Esq., Officer in Charge Special Schools Branch, +Education Department.</p> + +<p class="centre">Secretary: <span class="smcap">J. W. Buchanan</span>, Esq.</p> +</div> + +<hr /> + + +<h3>CONTENTS.</h3> + +<hr class="short-line" /> + +<table class="toc" summary="Table of Contents"> + +<tr><td class="toc-left">Part I.—Introductory and Historical.</td><td class="toc-left">page</td></tr> + +<tr><td><p class="hanging nogap">Section 1.—<b>Origin and Scope of Inquiry</b>: Mental Deficiency, + Increase of; North Canterbury Hospital Board and others suggest + Inquiry; Committee, Personnel; Nature of Inquiry; Places + visited and inspected; Sittings, Date and Place of; Witnesses + examined, and Work done; Appreciation of Services rendered; + Value of Memoranda supplied by Sir George Newman, Secretary of + State for the United States, Dr. E. S. Morris (Tasmania), Dr. + Helen MacMurchy (Ottawa), and Dr. Eric Clarke (Toronto); + Secretarial Services</p></td><td class="toc-right"><a href="#Page_2">2</a></td></tr> + +<tr><td><p class="hanging nogap">Section 2.—<b>Two Distinct Questions</b>: Mental Defectives and Sexual + Perverts, Comments on</p></td><td class="toc-right"><a href="#Page_5">5</a></td></tr> + + +<tr><td class="toc-left">Part II.—Problem of the Feeble-minded.</td><td> </td></tr> + +<tr><td><p class="hanging nogap">Section 1.—<b>A Menace to Modern Civilization</b>: Feeble-minded, + Danger of Unrestricted Multiplication; Lothrop Stoddart's + Views; American Army, Psychological Test of; Results and + Deductions</p></td><td class="toc-right"><a href="#Page_5">5</a></td></tr> + +<tr><td><p class="hanging nogap">Section 2.—<b>Heredity</b> <i>v.</i> <b>Environment</b>: Genetics and + Heredity; Heredity and Environment, Aspects reviewed; + Degenerate Families, Life-histories; Dr. Macgregor, Deductions + from his Report; Degenerate Stocks imported, Effect of; + Environmental Factor, Importance of; Pre-natal and Post-natal + Care, Value of; Housing Problem; Relationship of Impaired + Nutrition, Debility, and Disease to Impaired Control; Dietetics + and Child Welfare; Picture-shows, Effect on Children, and + Recommendations; Venereal Disease Committees' Report as to + Effect of Syphilis, &c.; Director Division of School Hygiene, + Attention drawn to Report; Excessive Competition, Effect on + School-children</p></td><td class="toc-right"><a href="#Page_6">6</a></td></tr> + +<tr><td><p class="hanging nogap">Section 3.—<b>Illustrative Cases of Hereditary Degeneracy</b>: Juke + Family; Kallikak Family; New Zealand Cases cited; Sir Robert + Stout's Comments</p></td><td class="toc-right"><a href="#Page_7">7</a></td></tr> + +<tr><td><p class="hanging nogap">Section 4.—<b>Elements of the Problem</b>: Basic Phases, + Registration, Educational Care and Training of Feeble-minded + Children, Oversight and Supervision; Educational Curriculum for + various Groups; Residential Schools; Farm and Industrial + Colonies for Segregation</p></td><td class="toc-right"><a href="#Page_11">11</a></td></tr> + +<tr><td><p class="hanging nogap"><a name="Page_2" id="Page_2"></a>Section 5.—<b>Estimates as to Numbers of Mental Defectives</b>: + Education Department Returns; Retardation, Problem of; + Feeble-minded and Epileptic Cases, Return showing</p></td><td class="toc-right"><a href="#Page_12">12</a></td></tr> + +<tr><td><p class="hanging nogap">Section 6.—<b>Study of Feeble-minded and Delinquent Children</b>: + Methods employed in other Countries; United States of America; + New Zealand; Need of Psychological Experts; Tredgold, Quotation + from</p></td><td class="toc-right"><a href="#Page_14">14</a></td></tr> + +<tr><td><p class="hanging nogap">Section 7.—<b>Method of dealing with Mental Defectives in New + Zealand--Present Legal Provision for Notification and Education + of Feeble-minded Children and for Care of Custodial + Feeble-minded Adults and Children</b>: Education Act, 1914; + Provision of; "Feeble-minded," Definition of; Mental Defectives + Act, 1911; English Mental Deficiency Act; Public Schools, + Special Classes; Epileptic Children, Education of; Otekaike and + Richmond Special Schools; Nature of Institutions and Training, + with Suggestions; Caversham Industrial School; Weraroa Boys' + Training-farm; Committal, Nature of; Value of Home Life in + Comparison with Institutional</p></td><td class="toc-right"><a href="#Page_14">14</a></td></tr> + +<tr><td><p class="hanging nogap">Section 8.—<b>Children's Courts</b>: Committee's Recommendations; + Clinics for Physical and Psychological Examination</p></td><td class="toc-right"><a href="#Page_17">17</a></td></tr> + +<tr><td><p class="hanging nogap">Section 9.—<b>Policy for the Future</b>: Notification; English + Commission, 1908, Basic Principles laid down; Register of + Feeble-minded; Eugenics Board; Dr. Gray's Suggestions; + Psychiatrists, Suggested Appointment; Eugenic Board, Proposed + Duties and Powers; Departments to control Feeble-minded; + Marriage and Carnal Knowledge with Feeble-minded; Parents' and + Guardians' Responsibilities</p></td><td class="toc-right"><a href="#Page_17">17</a></td></tr> + +<tr><td><p class="hanging nogap">Section 10.—<b>The Question of Sterilization</b>: Operations, + Nature of; X-rays, Use of; American Laws; Dr. H. Laughlin, + Chicago, Views; Central Association for Mental Welfare of Great + Britain, Opinion on Sterilization; Evidence in support of + Sterilization; Committee's Opinion and Recommendation; Eugenic + Board's Powers</p></td><td class="toc-right"><a href="#Page_19">19</a></td></tr> + +<tr><td><p class="hanging nogap">Section 11.—<b>Segregation</b></p></td><td class="toc-right"><a href="#Page_21">21</a></td></tr> + +<tr><td><p class="hanging nogap">Section 12.—<b>The Question of Expense</b>: Cost to State for Want + of Supervision, Case cited; Humanitarian and National Aspects</p></td><td class="toc-right"><a href="#Page_21">21</a></td></tr> + +<tr><td><p class="hanging nogap">Section 13.—<b>Immigration</b>: Introduction of Feeble-minded and + Undesirables from Overseas; Medical Inspection of Intending + Immigrants; System in Force; Committee's Suggestions; Ordinary + Passengers from Overseas, Medical Supervision of; "Prohibited + Immigrants," Definition of</p></td><td class="toc-right"><a href="#Page_22">22</a></td></tr> + +<tr><td><p class="hanging nogap">Section 14.—<b>Summary of Findings and Recommendations</b></p></td><td class="toc-right"><a href="#Page_23">23</a></td></tr> + + +<tr><td class="toc-left">Part III.—Sexual Offenders.</td><td> </td></tr> + +<tr><td><p class="hanging nogap">Section 1.—<b>Scope and Origin of the Inquiry</b>: Prisons Board, + Resolution passed; Medical and Surgical Reports; Indeterminate + Sentence; Segregation</p></td><td class="toc-right"><a href="#Page_24">24</a></td></tr> + +<tr><td><p class="hanging nogap">Section 2.—<b>Seriousness of the Evil</b>: Sexual Offenders, Numbers + serving Sentence; Government Statistician's Return of Persons + sentenced</p></td><td class="toc-right"><a href="#Page_25">25</a></td></tr> + +<tr><td><p class="hanging nogap">Section 3.—<b>Types of Offences</b>: Sexual Offences; Various + Classes, with Comments on; Types found in Prisons; Inspector of + Prisons' Opinion; Sexual Perverts, Cure of</p></td><td class="toc-right"><a href="#Page_25">25</a></td></tr> + +<tr><td><p class="hanging nogap">Section 4.—<b>Suggested Remedies</b>: Corporal Punishment; + Inspector-General of Mental Hospitals' Recommendations; + <b>Sterilization and Desexualization</b>; Castration; Sterilization; + British Medical Association, N.Z., Motion passed; Vasectomy and + Castration; Committee's Recommendation</p></td><td class="toc-right"><a href="#Page_26">26</a></td></tr> + +<tr><td><p class="hanging nogap">Section 5.—<b>Scientific Treatment and Segregation with + Indeterminate Sentence</b>: Medical Examination; Indeterminate + Sentence; Women and Children, Protection of; Mr. Hawkins's + Evidence on Control of Sexual Perverts</p></td><td class="toc-right"><a href="#Page_27">27</a></td></tr> + +<tr><td><p class="hanging nogap">Section 6.—<b>Summary of Recommendations</b>: Crimes Act; Prisons + Board, Powers of; Psychiatrist, Appointment and Duties; Eugenic + Board, Power to advise Prisons Board; Sterilization; + <b>Concluding Remarks</b></p></td><td class="toc-right"><a href="#Page_27">27</a></td></tr> + +<tr><td><p class="hanging nogap"><span class="smcap">Appendix</span>.—<b>Past Mistakes in Immigration</b>: Extract from Report + on Hospitals and Charitable Institutions of the Colony, 1888, + by the late Dr. Macgregor, Inspector-General. <b>The Health of + School Children</b>: Extract from the Report of the Director of + the Division of School Hygiene, 1924. <b>Return showing Sexual + Offenders</b> serving Sentence in New Zealand Prisons, 1924. + <b>Table showing the Number of Sexual Offenders sentenced under + respective Headings in New Zealand Prisons. Some Illustrative + Histories</b></p></td><td class="toc-right"><a href="#Page_29">29</a></td></tr> +</table> + + +<hr /> + + +<p style="margin-left: 1em;">The Hon. the Minister of Health, Wellington.</p> + +<p><span class="smcap">Sir</span>,—</p> + +<p>The Committee of Inquiry into Mental Defectives and Sexual Offenders +appointed by you to inquire into and report upon the necessity for +special care and treatment of mental defectives and sexual offenders in +New Zealand have the honour to submit herewith their report.</p> + +<hr /> + +<h2>PART I.—INTRODUCTORY AND HISTORICAL.</h2> + +<h3 class="smcap">Section 1.—Origin and Scope of Inquiry.</h3> + +<p>For a considerable time there has been a growing feeling of anxiety +among the public owing to the number of mental defectives becoming a +charge upon the State, and also the alarming increase in their numbers +through the uncontrolled fecundity of this class. Furthermore, owing to +the frequency of sexual offences, many of a most revolting character, +there was a strong demand that some action should be taken to prevent +further acts of this nature; it being suggested that the law should be +altered to make it possible for surgical operations to be performed upon +these offenders.</p> + +<p>The North Canterbury Hospital Board considered the need for action in +this matter so great that they set up a Committee to go into the +question and take evidence, which was done, and various recommendations +were made to the Government.</p> + +<p>A perusal of departmental files reveals that many persons and social +bodies have urged upon the Government the desirability of setting up a +Committee or Commission of Inquiry to go into this subject.</p> + +<p><a name="Page_3" id="Page_3"></a>The Minister of Health duly considered the representations made, and +appointed the following Committee to inquire into the question:—</p> + +<p class="hanging nogap">The Hon. W. H. Triggs, M.L.C. (Chairman).</p> +<p class="hanging nogap">Sir Donald McGavin, Kt., C.M.G., D.S.O., M.D. (Lond.), F.R.C.S. (Eng.).</p> +<p class="hanging nogap">Sir F. Truby King, Kt., C.M.G., M.B., B.Sc. (Public Health) (Edin.).</p> +<p class="hanging nogap">J. Sands Elliott, Esq., M.D., Bac. Surg. (Edin.), Chairman of the Council of the British Medical Association (New Zealand Branch).</p> +<p class="hanging nogap">Miss Ada G. Paterson, M.B., Ch.B. (N.Z.), L.M. (Dublin).</p> +<p class="hanging nogap">C. E. Matthews, Esq., Under-Secretary for Justice and Controller-General of Prisons, &c.</p> +<p class="hanging nogap">J. Beck, Esq., Officer in Charge, Special Schools Branch, Education Department.</p> + +<p>The function and duty laid upon the Committee was as follows:—</p> + +<div class="blockquot"><p class="hanging">(1.) To inquire and report as to the necessity for special + care and treatment of the feeble-minded and subnormal, and to + propose the general means by which such care and treatment, if + any, should be provided.</p> + +<p class="hanging">(2.) To inquire and report as to the necessity for the + treatment of mental degenerates and persons charged with + sexual offences, and to recommend forms of treatment for the + various types of cases.</p></div> + +<p>The Minister of Health expressed his desire that the Committee should +hear such evidence and representations on the above-mentioned matters as +might be necessary fully to inform the Committee on the questions +referred to it, and further suggested to the Committee that the various +organizations and persons likely to be interested should be notified +that the Committee would, at a certain place and date, hear any evidence +they might desire to tender.</p> + +<p>The following places were visited and inspected by the Committee: The +Myers Special School, Auckland; the Waikeria Prison Reformatory; the +Tokanui Mental Hospital, Waikeria; the New Plymouth Prison; the Boys' +Training-farm, Weraroa; the Point Halswell Reformatory for Women, +Wellington; the Special School for Girls, Richmond, Nelson; the Mental +Hospital, Nelson; the Mental Hospital, Stoke, Nelson; the Te Oranga +Home, Burwood, Christchurch; the Paparua Prison, Templeton; the Special +School for Boys, Otekaike; the Caversham Industrial Home for Girls, +Dunedin; the Borstal Institution, Invercargill.</p> + +<p>Sittings were held at various centres in New Zealand, and a large number +of witnesses were examined, as shown in the following table:—</p> + +<table summary="Committee meetings and presentation of evidence" class="bordered" cellspacing="0"> +<tr><td class="style1 centre" style="border-bottom: 1px solid #aaa">Places and Dates of Sittings</td><td class="style2 centre" style="border-bottom: 1px solid #aaa">Witnesses examined or Work done.</td></tr> +<tr><td class="style1">Wellington, 23rd May, 1924. (Forenoon only)</td><td class="style2">Preliminary meeting.</td></tr> +<tr><td class="style1">Wellington, 30th May, 1924. (Forenoon only)</td><td class="style2">Dr. Clark, School Medical Officer, Napier<br /> + Mr. J. Caughley, M.A., Director of Education.<br /> + Professor J. Tennant, Professor of Education, Victoria College.</td></tr> +<tr><td class="style1">Wellington, 2nd June, 1924. (Forenoon only)</td><td class="style2">Mr. N. R. McKenzie, Inspector of Schools, Education Department.<br /> + Miss N. Valentine, Education Department.<br /> + Miss Barlow, Education Department.<br /> + Dr. Elizabeth Gunn, School Medical Officer, Wanganui.</td></tr> +<tr><td class="style1">Wellington, 4th June, 1924. (Forenoon only)</td><td class="style2">Mrs. McHugh, Health Patrol, Wellington.<br /> + Father McGrath, representing His Grace the Archbishop of the Roman Catholic Church.<br /> + Mr. T. P. Mills, Superintendent, Presbyterian Orphanage and Probation Officer.<br /> + Dr. Jeffreys, Medical Superintendent, Porirua Mental Hospital.</td></tr> +<tr><td class="style1">Auckland, 11th June, 1924.</td><td class="style2"><table summary="layout"><tr><td style="padding-top: 0em;">Dr. Hilda Northcroft<br />Dr. Kenneth MacKenzie<br />Dr. E. Roberton</td><td style="padding-top: 0em; font-size: 2.5em;">}</td><td style="padding-top: 0em;"> + Representing the British Medical Association, Auckland Branch.</td></tr></table> + Dr. Mildred Staley.<br /> + Dr. J. R. Macredy, School Medical Officer, Auckland.<br /> + Canon F. W. Young, Council of Christian Churches, Auckland.<br /> + Dr. Fitt, Professor of Education, Auckland University.<br /> + Mrs. Nicoll.<br /> + Mrs. Watson.</td></tr> +<tr><td class="style1">Auckland, 12th June, 1924.</td><td class="style2">Dr. Milsom, representing the British Medical Association, Auckland Branch.<br /> + Professor Anderson, Professor of Moral and Mental Philosophy, Auckland University.<br /> + Mr. J. Cupit, Juvenile Probation Officer.<br /> + Mr. W. E. A. Gibbs.<br /> + Professor Sperrin-Johnson, Professor of Biology, Auckland University.<br /> + Mr. H. Binstead, Lecturer on Psychology, Training School, Auckland.<br /> + Rev. Jasper Calder.<br /> + Mr. W. S. J. Dales.<br /> + Dr. Wilkie, School Medical Officer, Auckland.</td></tr> +<tr><td class="style1">Auckland, 13th June, 1924.</td><td class="style2">Sister Hannah, representing the National Council of Women.<br /> + Miss M. Girdler, St. Mary's Home, Otahuhu.<br /> + Mr. C. W. Carter.<br /> + Rev. T. K. Jeffreys, Presbyterian Social Service Association.<br /> + Mr. J. W. Poynton, S.M.<br /> + Mr. N. Law, Headmaster, Normal School.<br /> + Dr. Beattie, Medical Superintendent, Auckland Mental Hospital.<br /> + Dr. D. N. Murray, Prison Medical Officer.<br /> + Visit of Inspection to the Myers Special School, Queen Street, Auckland.</td></tr> +<tr><td class="style1">Hamilton, 14th June, 1924.</td><td class="style2">Dr. Douglas.<br /> + Dr. F. S. Pinfold.<br /> + Mr. Phillip Goodwin, Juvenile Probation Officer.</td></tr> +<tr><td class="style1">Waikeria Reformatory, 15th June, 1924.</td><td class="style2">Dr. H. L. Gribben, Superintendent, Waikeria Reformatory, and Medical Superintendent of the Tokanui Mental Hospital.<br /> + Dr. MacPherson, Tokanui Mental Hospital.<br /> + Visit of inspection paid to Waikeria Reformatory and Tokanui Mental Hospital.</td></tr> +<tr><td class="style1">New Plymouth, 25th June, 1924.</td><td class="style2">Miss Tootell, Boarding-out Officer, Wanganui.<br /> + Dr. R. C. Brewster, Gaol Surgeon, New Plymouth.<br /> + Mr. E. T. Holden, Secretary, New Plymouth Hospital Board.<br /> + Visit paid to New Plymouth Prison.</td></tr> +<tr><td class="style1">Otekaike, 2nd July, 1924.</td><td class="style2">Miss Wylie, Head Teacher of Special School.<br /> + Mr. William Meikleham, Manager of Special School.<br /> + Visit paid to Special School for Boys and Farm at Otekaike.</td></tr> +<tr><td class="style1">Dunedin, 3rd July, 1924.</td><td class="style2">Mrs. Joan Murray, representing Society for Protection of Women and Children.<br /> + Dr. E. Irwin, School Medical Officer.<br /> + Mr. J. Lock, Juvenile Probation Officer.<br /> + Dr. A. M. McKillop, Superintendent, Mental Hospital, Seacliff.<br /> + Dr. A. R. Falconer, Medical Superintendent, Dunedin Hospital.<br /> + Mr. G. M. Galloway, representing the Society for Protection of Women and Children.</td></tr> +<tr><td class="style1">Invercargill, 4th July, 1924.</td><td class="style2">Mr. M. Hawkins, Inspector of the Prisons Department and Superintendent of the Borstal Institution.<br /> + Mr. McCarroll, Juvenile Probation Officer, Education Department.<br /> + Mr. Pryde, Secretary of the Hospital Board.<br /> + Mr. McLean, Hon. Secretary of the Prisoners Aid Society.<br /> + Visit of inspection paid to Borstal Institution and Farm.</td></tr> +<tr><td class="style1">Dunedin, 5th July, 1924.</td><td class="style2">Visit of inspection paid to Caversham Industrial School for Girls.</td></tr> +<tr><td class="style1">Dunedin, 7th July, 1924.</td><td class="style2"><table summary="layout"><tr><td style="padding-top: 0em;">Dr. Marshall McDonald<br />Dr. Kenneth Ross</td><td style="padding-top: 0em; font-size: 1.5em;">}</td><td style="padding-top: 0em;"> + Representing the British Medical Association, Dunedin Branch.</td></tr></table> + Miss Ralston, Inspector of Industrial and Special Schools.<br /> + Dr. Stuart Moore.<br /> + Mr. A. M. Paterson.</td></tr> +<tr><td class="style1">Christchurch, 9th July, 1924.</td><td class="style2">Dr. F. V. Bevan-Brown, representing the British Medical Association, Christchurch Branch.<br /> + Dr. C. L. Nedwill, Prison Medical Officer.<br /> + Miss Cardale, representing the National Council of Women.<br /> + Dr. A. C. Thomson, representing the British Medical Association.<br /> + Rev. P. Revell, Secretary, Prison Gate Mission.<br /> + Mrs. Herbert.<br /> + Miss Hunt, Superintendent, Addington Reformatory.<br /> + Mr. J. A. Blank, Attendance Officer, Education Department.<br /> + Miss Baughan, Official Visitor to the Addington Reformatory.</td></tr> +<tr><td class="style1">Christchurch, 10th July, 1924.</td><td class="style2">Dr. Crosbie, Medical Superintendent, Mental Hospital.<br /> + Dr. Levinge.<br /> + Mr. Gumming, Juvenile Probation Officer, Timaru.<br /> + Mr. William Reece, member of the Prisons Board.<br /> + Professor Chilton, Professor of Biology, Canterbury College.<br /> + Mr. C. T. Aschman, Headmaster, Normal School.<br /> + Miss Howlett, representing the National Council of Women and Women's Christian Temperance Union.<br /> + Miss Edwards, Manager of the Receiving Home, Christchurch.<br /> + The Hon. G. W. Russell.<br /> + Visit of inspection paid to Te Oranga Home, Burwood.</td></tr> +<tr><td class="style1">Christchurch, 11th July, 1924.</td><td class="style2">Dr. Phillipps, School Medical Officer.<br /> + Professor Shelley, Professor of Education, Canterbury College.<br /> + Mr. A. Bissett, Juvenile Probation Officer, Christchurch.<br /> + Visit of inspection paid to Paparua Prison, Templeton.</td></tr> +<tr><td class="style1">Wellington, 15th July, 1924. (Forenoon only)</td><td class="style2">Colonel Bray, Secretary, Men's Department, Social Service Work, Salvation Army.<br /> + Canon T. Feilden Taylor, Social Service Department of Church of England.<br /> + Professor Kirk, Professor of Biology, Victoria College.<br /> + Mr. F. S. Shell, Juvenile Probation Officer.</td></tr> +<tr><td class="style1">Wellington, 16th July, 1924. (Forenoon only)</td><td class="style2">Dr. E. Fenwick, representing the British Medical Association, Wellington Branch.<br /> + Mrs. Brigadier Glover, Salvation Army Prison Officer and Probation Officer.<br /> + Miss Jean Begg.<br /> + Mr. R. W. Bligh, White Cross League representative.</td></tr> +<tr><td class="style1">Wellington, 24th July, 1924.</td><td class="style2">Visit of inspection to Point Halswell Reformatory, Wellington.</td></tr> +<tr><td class="style1">Levin, 5th August, 1924.</td><td class="style2">Visit of inspection to Boys' Training Farm, Weraroa.</td></tr> +<tr><td class="style1">Nelson, 22nd August, 1924.</td><td class="style2">Dr. Gray, Superintendent, Mental Hospital, Nelson.<br /> + Visit of inspection to Special School for Girls, Richmond.<br /> + Visit of inspection to Mental Hospital, Stoke.<br /> + Visit of inspection to Mental Hospital, Nelson.</td></tr> +<tr><td class="style1">Wellington, 9th September, 1924. (Forenoon only)</td><td class="style2">Consideration of report.</td></tr> +<tr><td class="style1">12th September, 1924.</td><td class="style2"> "</td></tr> +<tr><td class="style1">15th September, 1924. (Afternoon only)</td><td class="style2"> "</td></tr> +<tr><td class="style1">16th September, 1924. (Afternoon only)</td><td class="style2"> "</td></tr> +<tr><td class="style1">22nd September, 1924. (Afternoon only)</td><td class="style2"> "</td></tr> +<tr><td class="style1">6th October, 1924. (Forenoon only)</td><td class="style2"> "</td></tr> +<tr><td class="style1">13th October, 1924. (Forenoon only)</td><td class="style2"> "</td></tr> +<tr><td class="style1">22nd October, 1924. (Forenoon only)</td><td class="style2"> "</td></tr> +<tr><td class="style1">24th October, 1924.</td><td class="style2"> "</td></tr> +<tr><td class="style1">28th October, 1924. (Forenoon only)</td><td class="style2"> "</td></tr> +<tr><td class="style1">29th October, 1924. (Forenoon only)</td><td class="style2"> "</td></tr> +<tr><td class="style1">5th November, 1924. (Forenoon only)</td><td class="style2"> "</td></tr> +</table> + +<p><a name="Page_5" id="Page_5"></a>It will thus be seen that, apart from time spent in travelling, the +Committee have met on thirty-five days and have heard ninety-two +witnesses in person.</p> + +<p>The Committee would like to express their thanks to the witnesses, many +of whom went to considerable trouble to collect information and prepare +evidence. They are especially grateful to the British Medical +Association for its willing co-operation and assistance; to the large +number of members of the medical profession throughout the Dominion who +responded to the Committee's request for information; to the authorities +overseas for their response to requests for information; and to many +other persons who by means of correspondence and literature have placed +at the Committee's disposal a large amount of information which has been +of material assistance in the investigation; also to the various +Hospital Boards throughout the Dominion who so willingly placed their +Boardrooms at the disposal of the Committee.</p> + +<p>Sir George Newman, the Chief Medical Officer of the Board of Education +and the Ministry of Health, England, very courteously supplied the +Committee with a valuable memorandum on the care of mental defectives in +England and Wales, while the Secretary of State for the United States, +through the good offices of the American Consul-General, Mr. Edwin N. +Gunsaulus, kindly forwarded information supplied by the United States +Public Health Service regarding the legislation and regulations in force +in various States where sterilization for eugenical purposes has been +legalized.</p> + +<p>Information of great value and interest has also been received from Dr. +E. S. Morris, Director of Health, Tasmania; from Dr. Helen MacMurchy, +Department of Health, Ottawa; and from Dr. Eric Clarke, Toronto, +Assistant Medical Director, Canadian National Conference for Mental +Hygiene.</p> + +<p>The Committee further wish to make special mention of the services +rendered by the Secretary, Mr. J. W. Buchanan, whose work has been very +heavy owing to the number of witnesses examined and the extent of ground +covered in a comparatively short time. This would not have been possible +but for the complete arrangements made by Mr. Buchanan, and the ability +and energy which he showed generally in the discharge of his duties left +nothing to be desired.</p> + + +<h3 class="smcap">Section 2.—Two Distinct Questions.</h3> + +<p>Before proceeding to the subject-matter of the Committee's +investigations and the conclusions arrived at it is necessary to point +out as clearly and emphatically as possible that the questions submitted +to the Committee were entirely separate and distinct from each other. It +is true that a certain proportion of mental defectives show their lack +of self-control in regard to sex instincts and functions as in other +respects. This is particularly the case with mentally defective girls, +and constitutes one of the chief difficulties in dealing with them +satisfactorily. Some of this class find their way into prison on account +of sexual offences, but it is very far from correct to suppose that all +feeble-minded persons are sexual offenders, or that all sexual offenders +are mentally defective. On the contrary, among sexual offenders of the +worst type, those convicted of unnatural offences, are occasionally +found to be persons possessing intellectual and artistic powers above +the average. There is something wrong in their mental, moral, and +emotional balance, as will be pointed out in the proper place, but, as a +rule, it is not the "intelligence quotient" which is at fault.</p> + + +<hr style="width: 65%;" /> +<h2>PART II.—PROBLEM OF THE FEEBLE-MINDED.</h2> + +<h3 class="smcap">Section 1.—A Menace to Modern Civilization.</h3> + +<p>The Committee are of opinion that the unrestricted multiplication of +feeble-minded members of the community is a most serious menace to the +future welfare and happiness of the Dominion, and it is of the utmost +importance that some means of meeting the peril should be adopted +without delay. The position is the more serious because, while the +feeble-minded are extraordinarily prolific, there is a growing tendency +among the more intellectual classes for the birth-rate to become +restricted.</p> + +<p>An American writer, Lothrop Stoddart, in his striking book entitled +"Revolt against Civilization," expresses the fear that the very +foundations of civilization are being undermined. He finds reasons for +great pessimism as regards the future in the results of the intelligence +tests taken in the American Army during the war.</p> + +<p>The American War Department made psychological tests of 1,700,000 +officers and men, who were graded as follows:—</p> + +<table summary="Intelligence gradings"> +<tr><td>Grade. </td><td>Percentage. </td><td>Mental Age. </td><td> </td></tr> +<tr><td> A</td><td> 4½</td><td>18-19</td><td>Very superior intelligence.</td></tr> +<tr><td> B</td><td> 9</td><td>16-17</td><td>Superior intelligence.</td></tr> +<tr><td> C1</td><td> 16½</td><td> 15</td><td>Average intelligence. (Rarely capable of finishing high-school course.)</td></tr> +<tr><td> C—</td><td> 25</td><td>13-14</td><td>Low average intelligence.</td></tr> +<tr><td> D</td><td> 15</td><td> 11</td><td>Inferior intelligence.</td></tr> +<tr><td> D—</td><td> 10</td><td> 10</td><td>Very inferior intelligence.</td></tr> +</table> + +<p>Assuming that these 1,700,000 men are a fair sample of the entire +population of 100,000,000 (and Stoddart says there is every reason to +believe that it is a fair sample), this means that the average mental +age of Americans is only about fourteen; that 45,000,000, or nearly +one-half of the whole population, will never develop mental capacity +beyond the stage represented by a normal twelve-year-old child; that +only 13,500,000 will ever show superior intelligence; and that only +4,500,000 <a name="Page_6" id="Page_6"></a>can be considered "talented." "Still more alarming," the +author continues, "is the prospect of the future. The overwhelming +weight of evidence indicates that the A and B elements in America are +barely reproducing themselves, while the other elements are increasing +at rates proportionate to their decreasing intellectual capacity; in +other words, that intelligence is to-day being steadily bred out of the +American population."</p> + +<p>The biologist Davenport calculated that at present rates of reproduction +1,000 Harvard graduates of to-day would have only fifty descendants two +centuries hence, whereas 1,000 Roumanians to-day in Boston, at their +present rate of breeding, would have 100,000 descendants in the same +space of time.</p> + +<p>Mr. Lothrop Stoddart emphatically scouts the view which is occasionally +put forward to the effect that genius is a form of insanity, and that +therefore one ought to be careful about discouraging the marriage even +of epileptics and mentally unbalanced persons for fear a possible +Napoleon or Julius Cæsar or Beethoven should be lost to the world. +"Careful scientific investigation," he says, "has clearly disproved this +notion. For one thing, elaborate statistical studies of eminent persons +have shown them to be less liable to insanity than the general +population. Of course, a considerable number of eminent men can be +listed who unquestionably suffered from various neuropathic traits. But +it was not those traits that made them eminent; on the contrary, these +were handicaps. Somewhere back in their ancestry a taint was introduced +into a sound superior strain, and produced this disharmonic combination +of qualities."</p> + + +<h3 class="smcap">Section 2.—Heredity <i style="font-variant: normal">v.</i> Environment.</h3> + +<p>The Committee feel bound to refer to the great strides made during the +last half-century towards establishing laws and theories of genetics and +heredity. Unfortunately, terms such as the "integrity of the germ plasm" +and "the Mendelian law," while marking great advances in biological +thought and science, have become too much associated in the public mind +with a depressing and fatalistic notion that heredity determines +everything and that environment can play but a very insignificant part +in human evolution, development, and progress—physical, mental, or +moral. Such, of course, is not the case.</p> + +<p>In ultimate origin all evolution and all heredity are the outcome, +summation, and expression of the effects of environmental influences, +acting on the whole organism under certain laws of transmission. The +laws of heredity, though as yet only partially determined, are already +sufficiently ascertained to prove for practical purposes that, in order +to promote integration and further progress in human evolution—not +disintegration and degeneration—two things are essential and +complementary. On the one hand, we must do everything possible in the +direction of improving the nutrition, health, conditions of life, and +habits of the community; and, on the other hand, we must promote and +encourage parenthood on the part of the best and stablest stocks, and do +everything in our power to discourage, or in the extreme cases even to +prevent, proliferation of unfit and degenerate strains.</p> + +<p>For the purpose of the present inquiry we need merely state as a +practical preliminary regarding heredity that it has been proved beyond +question that if two feeble-minded persons marry they will most probably +produce abundant offspring, of whom all may be subnormal, and a large +proportion will become a burden on the State; and that if one such +person is mated with a healthy individual an undue proportion of their +children are likely to prove degenerate or defective, and the +unsoundness will continue to make its appearance in succeeding +generations.</p> + +<p>While local evidence confirmatory of this came before the Committee, +first place will be given to certain classic and exhaustive +investigations and life-histories of degenerate families, going back +many generations, such as no young country could possibly supply. +However, the forcible and far-sighted report of the late Dr. Duncan +Macgregor (originally Professor of Mental Science at Otago University, +and subsequently Inspector-General of Asylums, Hospitals, and Charitable +Aid), quoted in the Appendix, shows clearly that some very degenerate +stocks imported into this country under the active immigration policy of +the "seventies" and "eighties" were already threatening, thirty-five +years ago, to become a serious tax on the country, as well as tending to +lower the high physical, mental, and moral standard established by the +original pioneers and settlers.</p> + +<p>We shall now revert for the moment to the environmental factor. The +first most pressing and immediate practical duty of the Government and +the community is to spare no pains to improve the status and environment +of the family so as to promote the highest attainable standard of +physical, mental, and moral health for the new generation—already in +our midst or bound to arrive in the course of the next few years.</p> + +<p>It is becoming more and more widely recognized that by due attention to +the pre-natal and post-natal care of mother and child an infinity of +good can be done—indeed, a great deal is already under way in this +direction throughout the Dominion. But the Committee are satisfied that +much more ought to be done to ensure for children of the pre-school and +school ages more generally favourable home conditions, and healthier +environment and habits outside the home.</p> + +<p>In the meantime it is obvious that very little can be effected in the +way of bettering the average heredity; but are we taking adequate +measures in the direction of improving the environment of mother and +child? The housing problem is still far from satisfactory; help in the +home can scarcely be procured, and the rearing and care of children +throughout the pre-school and school periods, in a large proportion of +cases, is neither conducive to a high standard of nutrition, growth, and +moral development, nor to the establishment of normal self-control, +especially as regards sexual habits and manifestations. The Committee +cannot ignore the fact that the leading medical and psychological +authorities lay it down as an axiom that the power of self-control is at +its highest when the individual <a name="Page_7" id="Page_7"></a>is physically active, well-nourished, +and in perfect bodily health, and that impaired control always +accompanies impaired nutrition, debility, and disease. It has been said, +with profound wisdom and insight, that ultimately and fundamentally +reproduction should be regarded as essentially "an exuberant phase of +nutrition"; and there is no escaping the wide implication of Schiller's +aphorism that "Love and Hunger rule the World."</p> + +<p>In view of these considerations the Committee feel compelled to refer to +such serious handicaps to all-round health, control, and efficiency as +the prevalence of wrong feeding habits—<i>e.g.</i>, giving children food +between meals and the insufficient provision of fresh fruit and +vegetables in the daily diet and the abuse of sweets. Other prominent +and avoidable handicaps, seriously affecting many children throughout +the Dominion, which ought to receive more serious attention are +insufficiency of sunlight and fresh air in the home and at school, +insufficient daily outing and exercise, lack of adequate provision in +the way of playgrounds and swimming-baths, and last, but not least, the +highly injurious practice of frequenting "picture-shows."</p> + +<p>As the Committee are called on to deal specially with the problem of +increasing manifestations of sexual depravity they cannot pass by the +fact that in the course of the last twenty years the younger members of +the community have been spending a steadily increasing proportion of +their time, during the most impressionable period of life, in what are +liable to prove forcing-houses of sexual precocity and criminal +tendencies. There is every reason for regarding the habit of "going to +the pictures" without adequate restrictions as contributing seriously to +precocious sexuality, and also to weakening the powers of inhibition and +self-control in other directions—powers which are the distinctive +attributes of the higher human being.</p> + +<p>Alongside these considerations, the bodily harm done to the young by +frequently spending their afternoons and evenings in hot, stuffy, +overcrowded halls shrinks into insignificance, though serious enough in +itself.</p> + +<p>The Committee endorses the opinions expressed by Education authorities, +and by practically every organization throughout the Dominion concerned +with the welfare of children, upon the harmful effect of moving-picture +shows as at present conducted. The Committee sympathizes with proposals +for reform along the following lines:—</p> + +<div class="blockquot"><p class="hanging">(1.) Stricter censorship, not only of films, but of picture + posters, handbills, and advertisements.</p> + +<p class="hanging"> (2.) Regulations as to the age of admission for children when + unaccompanied by a responsible adult, and to such pictures as + are not pronounced by the Censor as suitable for children.</p> + +<p class="hanging"> (3.) Proper safeguards for the morals of children and young + persons within picture-theatres, including adequate + supervision of the premises.</p></div> + +<p>The Committee desire it to be clearly understood that in this report +they have not particularly dealt with mental disabilities resulting from +diseases such as syphilis, or toxic influences such as alcohol, drugs, +&c. These questions have already been covered to some extent by the +Report of the Venereal Diseases Committee, and in any case would involve +too wide a field of investigation for the present inquiry.</p> + +<p>An authoritative summary taken from this year's report of the Director +of the Division of School Hygiene is quoted in the Appendix as pointing +out most of the faults and mistakes in environment and upbringing to +which reference has been made, and because it draws special and +much-needed attention to the injurious effects of overwork and excessive +competition and the need for more sleep and rest.</p> + +<p>We would merely add to this very clear, practical statement that +encouragement of excessive competition, inside or outside the school, +for any purpose whatsoever, is costly and damaging to the whole being, +and that, in the opinion of the Committee, nothing needs to be impressed +more strongly on parents and school-teachers than Froebel's injunction, +"Give space and time and rest."</p> + + +<h3 class="smcap">Section 3.—Illustrative Cases of Hereditary Degeneracy.</h3> + +<h4><i>The Juke Family.</i></h4> + +<p>To show the close relationship existing between the criminal and the +psychopath the record of the so-called Juke family in America was +compiled by R. L. Dugdale.</p> + +<p>The descendants of one morbid couple were traced through five +generations. Whilst a small proportion were honest workers, the great +majority were paupers, criminals, and prostitutes.</p> + +<p>Of 540 Jukes practically one-fifth were born out of wedlock, 37 were +known to be syphilitic, 53 had been in poorhouses, 76 had been sentenced +to prison, and of 229 women of marriageable age 128 were prostitutes. +The economic damage inflicted upon the State of New York by the Jukes in +seventy-five years was estimated at more than $1,300,000, to say nothing +of diseases and other evil influences which they helped to spread.</p> + +<p>A more recent investigation shows that 2,820 people have been studied; +2,094 were of Juke blood and 726 of "X" blood married into the Juke +family; of these, 366 were paupers, while 171 were criminals, and 10 +lives have been sacrificed by murder. In school-work 62 did well, 288 +did fairly, while 458 were retarded two or more years. It is known that +166 never attended school; the school data for the rest of the family +were unobtainable. There were 282 intemperate and 277 harlots. The total +cost to the State has been estimated at $2,093,685.</p> + + +<h4><i><a name="Page_8" id="Page_8"></a>The Kallikak Family.</i></h4> + +<p>The history of the Kallikak family has been traced and fully described +in detail by Dr. Goddard, and his study shows the hereditary nature and +sociological bearings of feeble-mindedness.</p> + +<p>Martin Kallikak was a youthful soldier in the Revolutionary War. At a +tavern frequented by the militia he met a feeble-minded girl by whom he +became the father of a feeble-minded son. In 1912 there were 480 known +direct descendants of this temporary union. It is known that 36 of these +were illegitimates; that 33 were sexually immoral; that 24 were +confirmed alcoholics; and that 8 kept houses of ill-fame. The +explanation of so much immorality will be obvious when it is stated that +of the 480 descendants 143 were known to be feeble-minded, and that many +of the others were of questionable mentality.</p> + +<p>A few years after returning from the war this same Martin Kallikak +married a respectable girl of good family. From this union 496 +individuals have been traced in direct descent, and in this branch of +the family there were no illegitimate children, no immoral women, and +only one man who was sexually loose. There were no criminals, no keepers +of houses of ill-fame, and only two confirmed alcoholics. Again the +explanation is clear when it is stated that this branch of the family +did not contain a single feeble-minded individual. It was made up of +doctors, lawyers, judges, educators, traders, and landholders.</p> + + +<h4><i>New Zealand Cases.</i></h4> + +<p>But it is not necessary to go to the records of older countries to find +examples of this kind. Unfortunately, this young Dominion, whose history +as a European settlement is comprised within the lifetime of its oldest +inhabitants, is already reproducing some of the saddest problems of +civilization which perplex the people of the Old World. We started with +every advantage in the shape of a favourable climate and rich natural +resources. The original settlers were, for the most part, men and women +of sturdy determination, enterprising spirit, and strong physique.</p> + +<p>In the "seventies" a vigorous public-works policy was inaugurated, and +great efforts were made to introduce fresh population, the result being +that undoubtedly a great impetus was given to settlement, and the +country was fairly started on the road to prosperity. But, +unfortunately, it is now only too apparent that insufficient care was +taken in the selection of immigrants.</p> + +<p>The following extract from a statement made to the Committee by Sir +Robert Stout, Chief Justice, and President of the Prisons Board, +illustrates this point: "The Prisons Board has sometimes brought before +it several persons of one family who have offended against our laws, and +in the experience I had in 1884 and 1885, when looking after our +Hospitals and Charitable Aid Department in the General Government, I +found that people obtaining charitable aid had done so for three +generations; that is, grandfather, father or mother, and children were +all obtaining aid from the Government because they were unable to +maintain themselves. Some of the cases were traced, and it was found +that the grandfathers, or grandparents, had been originally in +poorhouses in the Homeland, and although they came to New Zealand and +had greater opportunities than they had in their Homeland, yet their +inability to provide for themselves continued."</p> + +<p>How serious the problem has already become will be seen from the +following illustrative cases selected from a large number given in the +evidence:—<br /> </p> + +<p class="centre"><i>Case No. 1.</i><a name="Page_9" id="Page_9"></a></p> +<table cellspacing="0" summary="Case study 1"> +<tr><td colspan="4" class="style3 right" style="border-bottom: 1px solid #aaa"> +Father: Weak-minded.</td> +<td colspan="5" class="style3" style="border-bottom: 1px solid #aaa"> +Mother: Weak-minded.</td></tr> +<tr class="centre"><td>Female, born 1906.</td><td>Female, born 1907.</td><td>Female, born 1908.</td><td>Female, born 1909.</td> +<td>Female, born 1911.</td><td>Male, born 1912.</td><td>Male, born 1913.</td><td>Male, born 1915.</td> +<td>Female, born 1916.</td></tr> +</table> + +<p>All these children except one are feeble-minded, and when committed to +the care of the State were found living under deplorable conditions. +Most of these children will require lifelong control in an institution. +The total cost of maintaining this family will be approximately £9,500. +These children are cousins of another family under State control. There +are four children, two of whom are simple-minded. The mother is +feeble-minded, and the father died in a mental hospital. In this case +the mothers of the children are sisters.<br /> </p> + +<p class="centre"><i>Case No. 2.</i></p> + +<table cellspacing="0" summary="Case study 2"> + +<tr><td colspan="5" class="style3 right" style="border-bottom: 1px solid #aaa"> +Father: Feeble-minded.</td> + +<td colspan="6" class="style3" style="border-bottom: 1px solid #aaa"> +Mother: Feeble-minded and drunkard.</td></tr> + +<tr class="centre"> +<td>Female, illegitimate, born 1902.</td> +<td>Male, born 1904.</td> +<td>Male, born 1906.</td> +<td>Male, born 1907.</td> +<td>Male, born 1910.</td> +<td>Male, born 1912.</td> +<td>Female, born 1914.</td> +<td>Female, born 1916.</td> +<td>Male, born 1918.</td> +<td>Male, born 1920.</td> +<td>Male, born 1923.</td> +</tr> +</table> + +<p>All these children are feeble-minded and have been brought under State +control shortly after birth. Some are now in mental hospitals and some +in special schools. All these children are lifelong custodial cases. The +cost to the State for maintenance is approximately £16,000, towards +which amount the father has contributed but £6.<br /> </p> + +<p class="centre"><i>Case No. 3.</i></p> + +<table cellspacing="0" summary="Case study 3" class="bordered"> +<tr><td colspan="9" class="style3 right" style="border-bottom: 1px solid #aaa"> +Father: Old-age pensioner in Home for Aged People.</td> +<td colspan="8" class="style3" style="border-bottom: 1px solid #aaa"> +Mother: Apparently weak mentally and morally—at present in reformatory home.</td></tr> + +<tr><td colspan="3" class="style3" style="border-left: 1px solid white">1. Female. Prostitute residing with drunkard.</td> +<td colspan="3" class="style3">2. Female. Prostitute and addicted to drink.</td> +<td colspan="3" class="style3">3. Female. Immoral and generally bad character. Inmate of private reformatory.</td> +<td colspan="3" class="style3">4. Female. Indifferent, married criminal, now in prison.</td> +<td colspan="3" class="style3">5. Female. Drunkard and married a drunkard although man of good education.</td> +<td class="style3">6. Female. Well-known prostitute, married member of notorious criminal family, and himself criminal.</td></tr> + +<tr><td>Female, born 1908.<br /><br />Male, born 1915.</td><td>Female, born 1911.</td><td style="border-right: 1px solid #aaa">Male, born 1913.</td> +<td>Male, born 1907.<br /><br />Male, born 1914.</td><td>Male, born 1910.</td><td class="style1">Female, born 1912.<br /><br />Female, born 1917.</td> +<td>Male, born 1911.</td><td> </td><td style="border-right: 1px solid #aaa">Male, born 1912.</td> +<td>Female, born 1908.</td><td>Female, born 1912.</td><td style="border-right: 1px solid #aaa">Female, born 1916.</td> +<td>Female, born 1898.<br /><br />Female, born 1905.</td><td>Female, born 1900.</td><td class="style1">Female, born 1902.<br /><br />Female, born 1908.</td> +<td>Male, born 1910.</td></tr> + +<tr><td colspan="3" class="style3" style="border-left: 1px solid white">All these children are illegitimate. Reputed father a drunkard and man of bad character.</td> +<td colspan="3" class="style3">All these children are illegitimate. In most cases the father is unknown.</td> +<td colspan="3" class="style3">Both illegitimate. Reputed fathers well-known bad characters.</td> +<td colspan="3" class="style3">Mother married a widower with three children. There are three more of marriage +maintained by the State.</td> +<td colspan="3" class="style3">All delicate neurotic types and difficult to manage.</td> +<td class="style3"> </td></tr> + +</table> + +<p>All these children, numbering twenty-one, were committed to the care of +the State, in most cases shortly after birth. Twelve of the children are +illegitimate. The husband of daughter No. 6 is also the father of one +each of the offspring of daughters Nos. 2 and 3. Most of the children +are delicate and poorly developed, and at least six of them are +definitely tubercular. The remainder are either neurotic or erratic in +their conduct and have given a great deal of trouble in their +upbringing. The total cost to the State for the maintenance of these +children may be quoted at £10,000, but of this amount £482 has been +recovered from the various men liable. It is difficult to assess the +State's total commitment. If some of the children have to be maintained +until they reach the age of twenty-one the additional cost will be +£3,000. There is the probability, too, that the offspring of these +children will become charges upon the State.<br /> </p> + +<p class="centre"><i>Case No. 4.</i></p> + +<table cellspacing="0" summary="Case study 4"> + +<tr><td colspan="4" class="style3 right" style="border-bottom: 1px solid #aaa"> +Father: Addicted to drink and degenerate.</td> + +<td colspan="5" class="style3" style="border-bottom: 1px solid #aaa"> +Mother: Drunkard and morally deficient.</td></tr> + +<tr class="centre"> +<td>Female, born 1908.</td> +<td>Male, born 1909. Admitted special school, 1920.</td> +<td>Female, born 1910.</td> +<td>Male, born 1914.</td> +<td>Male, born 1916.</td> +<td>Male, born 1917.</td> + +<td style="border-left: 1px solid #aaa">Male, born 1918.</td> +<td>Male, born 1920.</td> +<td>Male, born 1923.</td></tr> + +<tr><td colspan="6"> All these children are illegitimate + and are feeble-minded, requiring + lifelong control. Three are now + inmates of mental hospitals, and + in time the remainder of the + family at present in special + schools will be sent on to mental + hospitals.</td> + <td style="border-left: 1px solid #aaa" colspan="3"> All probably feeble-minded. + Not yet brought under + State control.</td> +</tr> +</table> + +<p>An officer of the Education Department describes the home as "one of the +dirtiest and most squalid homes I have seen." The cost (including past, +present, and approximate future maintenance) to the State for the upkeep +of this family is estimated at £10,000. Nothing has been paid by the +parents towards the support of these children. In all probability, the +remaining members of the family will be brought under State control at a +probable cost of £4,500.<br /> </p> + +<p class="centre"><i>Case No. 5.</i></p> + +<table cellspacing="0" summary="Case study 5"> +<tr><td colspan="3" class="style3 right" style="border-bottom: 1px solid #aaa"> +Father: Drunken waster; subnormal; frequently in gaol.</td> +<td colspan="4" class="style3" style="border-bottom: 1px solid #aaa"> +Mother: Feeble-minded helpless invalid. Died shortly after children committed to care of State.</td></tr> +<tr class="centre"> +<td>Male, born 1904. Tubercular. Partly self-supporting.</td> +<td>Female, born 1907. Tubercular. Suffers from epileptic seizures. Inmate mental hospital. Lifelong custody.</td> +<td>Male, born 1909. Subnormal. May in time become partly self-supporting under favourable conditions.</td> +<td>Male, born 1911. Mentally deficient. Case for lifelong control.</td> +<td>Male, born 1913. Mentally deficient. Lifelong custodial case.</td> +<td>Female, born 1914. Feeble-minded and badly nourished. Case for permanent segregation.</td> +<td>Male, born 1916. Very backward. May become partly self-supporting under favourable conditions.</td> +</tr> +</table> + +<p>In 1916 the whole of this family was committed to the care of the State, +and at least six of them will be lifelong cases. The cost to the State, +computed up to twenty-one years in each case, is approximately £8,500, +but the additional future cost may easily be estimated at £5,000, making +in all the sum of £13,500. The father was ordered to pay at the rate of +15s. a week, but the amount recovered from him to date is only £156.<br /> </p> + +<p class="centre"><i>Case No. 6.</i></p> + +<table cellspacing="0" summary="Case study 6"> + +<tr><td colspan="3" class="style3 right" style="border-bottom: 1px solid #aaa"> +Father: Subnormal. Was a watersider, so dirty in habits that watersiders complained. A sexual case.</td> + +<td colspan="4" class="style3" style="border-bottom: 1px solid #aaa"> +Mother: Has always been addicted to periodic fits of insanity. Has been in mental hospital on several occasions.</td></tr> + +<tr class="centre"> +<td>Female, born 1904. Subnormal.</td> +<td>Female, born 1909. Subnormal; also delinquent.</td> +<td>Female, born 1915. Subnormal.</td> +<td>Female, born 1916. Subnormal.</td> +<td style="border-left: 1px solid #aaa">Unknown</td> +<td>Unknown</td> +<td>Unknown</td> +</tr> + +<tr class="centre"><td colspan="4">These four children were +committed to the care of +the state in 1917.</td> +<td style="border-left: 1px solid #aaa" colspan="3">Not yet brought under +State control.</td></tr> +</table> + + +<p>The approximate cost to the State of maintaining these four children +will be £5,150, less what is recovered from the father. Up to the +present the amount received from him is £176. Should the other three +children be brought under State control, the additional cost may amount +to approximately £5,000.</p> + +<p>This is a glaring case of persons being allowed to marry who are totally +unfit to marry. A relative stated that the mother's mentality was in a +shocking state at the time of marriage. The father has always been +subnormal. The woman is too insane at times to attend to ordinary +household duties or matters of ordinary personal cleanliness. At the +time the children were committed the home was in a shockingly filthy +condition, and at that time was one of the worst brought under the +notice of the Department in the district. The second girl (age fifteen) +has had her hair cut for the sake of cleanliness by some kindly disposed +well-wisher. The mother allowed the dirt to accumulate to such an extent +that the whole of the girl's head was covered with a scab of dirt. She +had to enter the Hospital to have this removed. This was a most +objectionable case. After the State took charge of these children the +mother and father were still allowed to cohabit, with the result that +three more children have been born. Without doubt, these children will +also be supported by the State. The father is a sexual case, and +foster-parents of the children have objected to the father visiting them +on account of the way he handles them.</p> + + +<h3 class="smcap"><a name="Page_10" id="Page_10"></a><a name="Page_11" id="Page_11"></a>Section 4.—Elements of the Problem.</h3> + +<p>Wallen, in his book "Problems of Subnormality," draws attention to three +basic phases of the problem of the feeble-minded:—</p> + +<div class="blockquot"><p class="hanging">"(1.) The obligation of society to identify and register as + early as possible all feeble-minded children. All students of + social problems will concede that feeble-mindedness is one of + the fundamental causes of our numerous social ills. It is a + prolific source of poverty, destitution, all kinds of crimes + against property and person, social immorality, illegitimacy, + and of prolific and degenerate progeny.</p> + +<p class="hanging"> "There are few problems in present-day constructive social + economics which are more important than the development of a + State-wide and a nation-wide policy for the compulsory + official identification and registration of feeble-minded + children, particularly all those who come from homes where the + conditions are not such as to guarantee continuous supervision + and support.</p> + +<p class="hanging"> "(2.) The proper educational care and training of + feeble-minded children. The adequate discharge of this + obligation involves segregating the feeble-minded in special + classes as soon as they can be indubitably diagnosed and + providing for them the type of training which will maximally + develop those powers and aptitudes which they possess and + which will maximally equip them for earning their livelihood.</p> + +<p class="hanging"> "(3.) Provision for continuous oversight and supervision over + the feeble-minded."</p></div> + +<p>It is clear that if we wish to reduce the number of mentally defective +and socially inadequate individuals we must not only consider measures +for preventing as far as possible the transmission of hereditary defect, +but must also provide for the youth of the country an environment and +training calculated to encourage the development of its best powers. +There is no doubt that unfavourable home conditions and unsuitable +educational methods conspire to keep many children from realizing their +full capabilities. This is especially true of the backward and +feeble-minded. It is, moreover, wasteful and ineffective to force on +children of poor mental receptivity and potentialities an educational +curriculum devised for those of normal mentality, since the subnormal +impede the general progress in an ordinary class, and in it they soon +form a discouraged minority which learns to accept failure +unquestioningly. Untrained to perform the simple work which is within +their power and in the achievement of which they might earn self-respect +and happiness, they feel themselves to be aliens, and may cease to +regard the laws of society in which they have no sense of membership. In +such cases the community which might have benefited from their work had +their potentialities been properly developed is burdened by their +maintenance, and, further, if they are not law-abiding, has also the +expense of segregating them in reformatories and gaols. Hence it is +clearly the duty of the State to adapt the educational curriculum to the +requirements of various groups of children.</p> + +<p>The child who has been handicapped by illness and lack of opportunity, +the child who is inherently dull and backward, must be distinguished +from the child with nervous instability or definite mental defect. +Wherever possible, the training suitable for various improvable types of +children should be arranged in connection with the ordinary public +schools. But the curriculum must be modified to suit the need of the +individual and should be directed with the object of making him a useful +member of society. By this means these pupils are not deprived of that +association with their normal fellows which is of such value as a +preparation for their after-life in the community.</p> + +<p>For children whose homes are unsuitable or too remote from centres, who +require more continuous supervision, or who tend to become delinquent, +special residential schools will be necessary. These schools would also +be used for those whose capabilities cannot be assessed without extended +expert observation for a considerable period.</p> + +<p>The special school is to be regarded as a training-centre for such +feeble-minded children as are expected as a result of the training +received there to be fitted to take a place in the community and to +perform useful work under adequate supervision. There is a danger of +filling the special schools with children whose poor mental endowment +renders them incapable of receiving benefit at all commensurate with the +energy and expense devoted to them. Such children are subjects for +custodial institutions.</p> + +<p>Institutional care is necessary for mentally defective persons whose +helplessness or anti-social traits would render them either the victims +of the unscrupulous or a menace to society. Such individuals should be +segregated in farm and industrial colonies, so that not only is the +community freed from the responsibility of their presence, but they +themselves are afforded opportunity of leading much happier and more +useful lives, and of becoming, to some extent, self-supporting.</p> + +<p>All feeble-minded children within the community, whether in special +classes, or on parole from an institution for the feeble-minded, or over +school age, should be carefully supervised.</p> + +<p>It is clear that the problem of making provision for the feeble-minded +and mentally abnormal in the community is first to be encountered in the +schools, though there must be considered also a much smaller number of +such low mental capacity that they have never sought admission there.</p> + +<p>In deciding the place of the feeble-minded in the community factors +other than the degree of mental defect have to be considered. Many +feeble-minded individuals are capable of performing useful work, and +provided they have no anti-social traits and can receive adequate care +outside their permanent inclusion in an institution is undesirable, not +only from consideration of their own well-being, but also from a social +and economic standpoint. Many feeble-minded individuals are so dependent +upon routine that having once been trained in the regular performance of +simple duties they find difficulty in breaking their methodical +programme. In this way their lack of initiative is really protective, as +it tends to keep them steadfastly at their labours.</p> + +<p><a name="Page_12" id="Page_12"></a>In the case of all feeble-minded persons living outside institutions, +whether with relatives or otherwise, the State should, in the interest +of both such feeble-minded individuals and of society, have the ultimate +right of supervision.</p> + +<p>The magnitude of the task to be undertaken cannot be estimated unless we +have some indication of how numerous are those for whom special measures +must be adopted. The information given below must not be too literally +interpreted, but will serve to throw some light upon existing conditions +in New Zealand.</p> + + +<h3 class="smcap">Section 5.—Estimates as to Numbers of Mental Defectives.</h3> + +<p>In the absence of a complete system of notification, which the Committee +consider is urgently necessary, any estimate as to the number of +feeble-minded to be dealt with must be largely a matter of conjecture.</p> + +<p>From the annual report of the Education Department, however, interesting +information is available showing the ages of the pupils in the several +classes of the primary schools. The following table is considered worthy +of reprinting in this report, for from the figures it supplies some idea +may be formed of the number of backward and feeble-minded children +attending primary schools. Children of extremely low-grade mentality do +not attend school as a rule, while feeble-minded children higher in the +scale, discouraged by the unsuitable course of instruction and lack of +sympathetic treatment, tend to leave school early. Hence the number of +feeble-minded children in any community must be considerably larger than +the school records indicate.</p> + +<p>The following table shows the ages of pupils in the several classes of +the primary schools. The numbers between the heavy horizontal lines +represent those that, beginning school under six years of age spend an +average of two years in the preparatory classes and one year in each of +the standards. The numbers above the upper heavy lines have progressed +at a greater rate than that indicated, and those below the lower lines +have either begun school later or have progressed more slowly.</p> + +<p>The most arresting feature in the table (<a href="#Page_13">p. 13</a>) +is the large number of +children in classes lower than should be expected at their age. Thus the +preparatory classes had 12,693 pupils over the age of eight years. This +number is certainly a considerable reduction on the total for the +previous year, but it still represents no less than 18 per cent. of the +total roll of those classes. Particular attention is being directed to +the problem of retardation, and in some of the larger centres special +classes for retardates have been established.</p> + +<p>It will also be seen that the actual number of children retarded three +years or more, including the preparatory classes and up to Standard +III—beyond which the higher grades of the feeble-minded do not progress +as a rule—is 4,917 out of a total of 212,709 children attending school, +or a trifle over 2 per cent. In some countries three years' retardation +is regarded as <i>primâ facie</i> evidence of mental deficiency. Probably New +Zealand has much the same proportion of mental defectives as other +countries. This is stated by Goddard to be between 2 and 3 per cent. of +the population.</p> + +<p>A recent survey made by the Education Department of the children +attending the primary schools in a typical area disclosed the fact that +out of a total school population of 16,499 no fewer than 950 pupils, +constituting 5.7 per cent. of the total school enrolment, are retarded +two years or more. Some of these may be classed as dull normal; some may +be suffering from remediable physical defects; others may be merely the +victims of unfavourable circumstances, while others again may be what +Burt calls "late bloomers"—<i>i.e.</i>, cases of slow development. Many of +them, however, will ultimately prove to be mental defectives. Deficiency +sometimes does not reveal itself definitely until the pre-adolescent +period or early adolescence.</p> + +<p>Of the total number on the school registers 266, or 1.6 per cent., are +retarded three years or more. It is interesting to note from information +supplied by Mr. N. R. McKenzie, Inspector of Schools, that this is +exactly the percentage of defectives discovered in the schools of a +section of the city of Toronto as the result of a psychological survey. +It also corresponds with the number in the Vancouver city schools, where +nineteen special classes are operating with a school population of +19,000—<i>i.e.</i>, one class per 1,000 pupils.</p> + +<p>For the purpose of this report a preliminary survey from information +supplied by social workers, school-teachers, police, Hospital Boards, +&c., has been made by the Education Department of what may be regarded +as the obviously feeble-minded and epileptic cases known to exist +outside institutions in the Dominion.</p> + +<p>The following figures show the number of such cases reported, but these +figures are incomplete—the actual number must be greater:—</p> + +<table summary="School population"> +<tr><td> </td><td colspan="4" class="centre">At 24th June, 1924.</td></tr> +<tr class="centre"><td> </td><td colspan="2">Feeble-minded. </td><td colspan="2">Epileptic. </td></tr> +<tr class="centre"><td>Age.</td><td>Male.</td><td>Female.</td><td>Male.</td><td>Female.</td></tr> + +<tr class="centre"><td>Under sixteen years </td><td>524</td><td>285</td><td>41</td><td>43</td></tr> +<tr class="centre"><td>Over sixteen years </td><td>305</td><td>203</td><td>35</td><td>31</td></tr> +<tr class="centre"><td> </td><td style="border-top: 1px solid #aaa">829</td><td style="border-top: 1px solid #aaa">488</td><td style="border-top: 1px solid #aaa">76</td><td style="border-top: 1px solid #aaa">74</td></tr> +</table> + +<table summary="School population continued."> +<tr><td colspan="2"><i>Recapitulation.</i></td></tr> +<tr><td>Males</td><td class="centre">905</td></tr> +<tr><td>Females</td><td class="centre">562</td></tr> +<tr><td> </td><td style="border-top: 1px solid #aaa">1,467</td></tr> +</table> + + +<p class="centre"><i><a name="Page_13" id="Page_13"></a>Table showing Ages of Pupils in the several Classes of the Primary +Schools.</i></p> + +<table style="border-collapse: collapse; text-align: right;" border="1" summary="Children per class by age"> +<tr class="centre"><td rowspan="2">Ages.</td><td colspan="2">Class P.</td><td colspan="2">Standard I.</td><td colspan="2">Standard II.</td><td colspan="2">Standard III.</td><td colspan="2">Standard IV.</td><td colspan="2">Standard V.</td><td colspan="2">Standard VI.</td><td colspan="2">Standard VII.</td><td colspan="2">Totals.</td></tr> +<tr><td>Boys.</td><td>Girls.</td><td>Boys.</td><td>Girls.</td><td>Boys.</td><td>Girls.</td><td>Boys.</td><td>Girls.</td><td>Boys.</td><td>Girls.</td><td>Boys.</td><td>Girls.</td><td>Boys.</td><td>Girls.</td><td>Boys.</td><td>Girls.</td><td>Boys.</td><td>Girls.</td></tr> +<tr><td>5 and under 6 </td><td>7,923</td><td>7,334</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>7,923</td><td>7,334</td></tr> +<tr><td class="centre">6 " 7</td><td>10,776</td><td>10,356</td><td>73</td><td>72</td><td>3</td><td>2</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>10,852</td><td>10,430</td></tr> +<tr><td class="centre">7 " 8</td><td style="border-bottom: 2px solid #aaa">10,324</td><td style="border-bottom: 2px solid #aaa">9,291</td><td>2,021</td><td>2,047</td><td>111</td><td>141</td><td>3</td><td>1</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>12,459</td><td>11,480</td></tr> +<tr><td class="centre">8 " 9</td><td>4,970</td><td>4,183</td><td class="b-thick">5,696</td><td class="b-thick">5,413</td><td>1,729</td><td>1,884</td><td>113</td><td>135</td><td>3</td><td>2</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>..</td><td>12,511</td><td>11,617</td></tr> +<tr><td class="centre">9 " 10</td><td>1,400</td><td>1,118</td><td>4,443</td><td>3,732</td><td class="b-thick">5,011</td><td class="b-thick">5,152</td><td>1,447</td><td>1,531</td><td>102</td><td>66</td><td>..</td><td>4</td><td>1</td><td>..</td><td>..</td><td>..</td><td>12,404</td><td>11,603</td></tr> +<tr><td class="centre">10 " 11</td><td>393</td><td>277</td><td>1,657</td><td>1,162</td><td>4,210</td><td>3,624</td><td class="b-thick">4,570</td><td class="b-thick">4,749</td><td>1,311</td><td>1,439</td><td>82</td><td>108</td><td>6</td><td>4</td><td>..</td><td>..</td><td>12,229</td><td>11,363</td></tr> +<tr><td class="centre">11 " 12</td><td>112</td><td>107</td><td>487</td><td>383</td><td>1,814</td><td>1,461</td><td>4,202</td><td>3,827</td><td class="b-thick">4,166</td><td class="b-thick">4,214</td><td>1,123</td><td>1,202</td><td>93</td><td>95</td><td>..</td><td>1</td><td>11,997</td><td>11,290</td></tr> +<tr><td class="centre">12 " 13</td><td>54</td><td>30</td><td>146</td><td>91</td><td>628</td><td>425</td><td>2,268</td><td>1,860</td><td>3,890</td><td>3,515</td><td class="b-thick">3,540</td><td class="b-thick">3,664</td><td>1,020</td><td>1,064</td><td>3</td><td>3</td><td>11,549</td><td>10,652</td></tr> +<tr><td class="centre">13 " 14</td><td>18</td><td>13</td><td>51</td><td>24</td><td>201</td><td>125</td><td>935</td><td>669</td><td>2,129</td><td>1,764</td><td>3,766</td><td>3,271</td><td class="b-thick">3,255</td><td class="b-thick">3,277</td><td style="border-bottom: 2px solid #aaa">20</td><td style="border-bottom: 2px solid #aaa">42</td><td>10,375</td><td>9,185</td></tr> +<tr><td class="centre">14 " 15</td><td>7</td><td>5</td><td>10</td><td>9</td><td>58</td><td>42</td><td>235</td><td>139</td><td>790</td><td>500</td><td>1,848</td><td>1,499</td><td>3,101</td><td>2,883</td><td>34</td><td>47</td><td>6,083</td><td>5,124</td></tr> +<tr><td class="centre">15 " 16</td><td>2</td><td>1</td><td>2</td><td>6</td><td>12</td><td>6</td><td>36</td><td>26</td><td>148</td><td>81</td><td>532</td><td>349</td><td>1,454</td><td>1,010</td><td>23</td><td>37</td><td>2,209</td><td>1,516</td></tr> +<tr><td class="centre">16 " 17</td><td>1</td><td>..</td><td>1</td><td>2</td><td>..</td><td>2</td><td>8</td><td>6</td><td>11</td><td>13</td><td>61</td><td>30</td><td>194</td><td>114</td><td>3</td><td>15</td><td>279</td><td>182</td></tr> +<tr><td class="centre">Over 17</td><td>..</td><td>..</td><td>..</td><td>1</td><td>..</td><td>..</td><td>1</td><td>..</td><td>..</td><td>3</td><td>8</td><td>8</td><td>25</td><td>13</td><td>1</td><td>3</td><td>35</td><td>28</td></tr> +<tr><td>Totals (1923)</td><td>35,980</td><td>32,715</td><td>14,587</td><td>12,942</td><td>13,777</td><td>12,864</td><td>13,818</td><td>12,943</td><td>12,550</td><td>11,597</td><td>10,960</td><td>10,135</td><td>9,149</td><td>8,460</td><td>84</td><td>148</td><td>110,905</td><td>101,804</td></tr> +</table> + +<h3 class="smcap"><a name="Page_14" id="Page_14"></a>Section 6.—Study of Feeble-minded and Delinquent Children.</h3> + +<h4><i>Methods employed in other Countries.</i></h4> + +<p>In many parts of America and in some European countries the problem of +the mentally backward and feeble-minded child receives close attention. +The juvenile delinquent is also carefully studied. For children who fail +to make good in school, or who are guilty of frequent misdemeanours, a +system of intelligence testing and psychological analysis is carried +out. A study is also made of family history and environmental +influences. Children who are "maladjusted to their environment" are kept +under survey with a view to finding what is the difficulty and how it +can be overcome. To quote from the "Mental Hygiene Bulletin," published +by the National Committee for Mental Hygiene for the United States of +America: "Children showing definite problems are selected for more +intensive study and treatment. The grossly mentally handicapped child, +who is likely to become a social problem if not properly dealt with in +childhood; the psychopathic and mentally maladjusted child, who later in +life may develop mental disease; the child manifesting conduct disorders +which may be the beginning of a delinquent or criminal career; the +retarded child; the epileptic; the child with speech-defect or with some +physical disability; the child with gross personality difficulties; the +exceptionally brilliant child—all present problems that demand +attention during the child's school life. Such children are given a +thorough physical examination, a careful psychiatric study, and an +individual psychological examination, including a variety of +psychological tests, not only to determine the child's intelligence +rating, but, in so far as possible, his special abilities and +disabilities. A social study is made of the child's home, school, and +other environments to determine what factors may have unfavourably +influenced the development of the child, and what forces may be utilized +in securing the child's adjustments. The results of all these studies +are given to the school authorities with recommendations relative to the +needed adjustments."</p> + +<p>In New Zealand there is need of increased facilities for the study of +the individual child, and the services of psychological experts should +be available in order to group children according to their mental +equipment and special requirements. Only those fully qualified to +estimate accurately all the evidence available are fitted to decide the +destiny of children.</p> + +<p>Herein lies the danger of relying exclusively upon the use of mental +tests.</p> + +<p><i>Mental tests</i> are of definite value in enabling the observer to arrive +at a conclusion regarding the general mental development of the subject, +or to investigate some particular psychological function. A too +exclusive dependence upon the result of the application of these tests, +especially by a layman, would invariably lead to error. A comprehensive +survey is necessary, taking into consideration such factors as family +history, environment, physical condition, behaviour, temperament, &c. +The observation, possibly for a considerable period of time, of an +expert psychiatrist or psychologist may be necessary in order to arrive +at an accurate estimate of the mental ability of the subject.</p> + +<p>In this regard we quote from Tredgold, "Mental Deficiency": "There are, +however, very many exceptions, particularly when we are dealing with the +milder grades of deficiency, so that if serial tests are depended upon +for the diagnosis of these cases they may be, and often are, very +fallacious. I may say here that although it would, of course, be +extremely valuable if we could devise tests which would accurately +measure mental capacity, particularly that capacity and those qualities +which are needed for social adaptation and maintenance, we have not yet +succeeded in doing so. The mental factors which may be involved in this +capacity for social adaptation, and which render the individual in need +of care, supervision, or control, are many and varied, and there is even +some danger that too much reliance upon serial tests may distract from +the adequate investigation of these qualities and defects and lead to +totally erroneous conclusions."</p> + +<p>There is no doubt, however, that in the hands of competent observers +properly applied tests afford information of great value in assessing +mental and moral capacity, but the observer must be competent.</p> + + +<h3 class="smcap">Section 7.—Method of dealing With Mental Defectives in New +Zealand.</h3> + +<h4><i>Present Legal Provision for Notification and Education of Feeble-minded +Children, and for Care of Custodial Feeble-minded Adults and Children.</i></h4> + +<p>The Education Act, 1914, contains provision (see section 127) for the +establishment of special schools for the education and training of +afflicted children (deaf, blind, feeble-minded, and epileptic) between +the ages of six and twenty-one years, with provision in the case of +inmates of special schools for extension of the period of detention +where it is considered necessary in the public interest. For the +purposes of this Act,—</p> + +<p>"'Feeble-minded child' means a child who, not being an idiot or imbecile +or otherwise a proper person to be sent to an institution under the +control of the Mental Hospitals Department, and not being merely +backward, is by reason of mental or physical defect incapable of +receiving proper benefit from instruction in an ordinary school, but is +not incapable by reason of such defect of receiving benefit from +instruction in a special school."</p> + +<p>"'Epileptic child' means an epileptic child who is unfit by reason of +severe or frequent epilepsy to attend an ordinary school, but is not +idiot or imbecile or otherwise a proper person to be sent to an +institution under the control of the Mental Hospitals Department."</p> + +<p>Section 127: "(2.) It shall be the duty of the parent of any ... +feeble-minded or epileptic child to provide efficient and suitable +education for such child."</p> + +<p>"(3.) If the parent of such child fails to provide such education for +such child, or is deemed by the Minister to be unable to provide such +education, the Minister may direct that such child be sent to such +special school or other institution for the education of feeble-minded +or epileptic children as he thinks fit."</p> + +<p><a name="Page_15" id="Page_15"></a>Section 129: "Every parent, teacher of a school (either public or +private), constable, or officer of a charitable or kindred institution +who is aware of the place of residence (either temporary or permanent) +of a blind, deaf, feeble-minded, or epileptic child, and the householder +in whose house any such child resides, shall send notification of the +fact to the Minister, giving name, age, and address of the child; and if +any such person neglects or fails to comply with this provision, such +person shall on conviction thereof be liable to a fine not exceeding one +pound, or in the case of a second or subsequent offence, whether +relating to the same or another child, not exceeding five pounds."</p> + +<p>Section 56: "Every public school shall be organized and conducted in +accordance with regulations (a copy of which shall be conspicuously put +up in the school): Provided that the Minister may, on the application of +the Board, sanction the establishment of special classes for backward +children—that is, children who, through physical infirmity, absence +from school, or otherwise, are below the average standard of education +reached by other children of the same age."</p> + +<p>The Mental Defectives Act, 1911, divides mentally defective persons into +six classes, as under:—</p> + +<p>"'Mentally defective person' means a person who, owing to his mental +condition requires oversight, care, or control for his own good or in +the public interest, and who, according to the nature of his mental +defect, and to the degree of care, oversight, or control deemed to be +necessary, is included in one of the following classes:—</p> + +<div class="blockquot"><p class="hanging">"<i>Class I:</i> Persons of unsound mind—that is, persons who, + owing to disorder of the mind, are incapable of managing + themselves or their affairs.</p> + +<p class="hanging">"<i>Class II:</i> Persons mentally infirm—that is, persons who, + through mental infirmity arising from age or decay of their + faculties, are incapable of managing themselves or their + affairs.</p> + +<p class="hanging"> "<i>Class III:</i> Idiots—that is, persons so deficient in mind + from birth or from an early age that they are unable to guard + themselves against common physical dangers, and therefore + require oversight, care, or control required to be exercised + in the case of young children.</p> + +<p class="hanging">"<i>Class IV:</i> Imbeciles—that is, persons who, though capable + of guarding themselves against common physical dangers, are + incapable, or if of school age will presumably, when older, be + incapable, of earning their own living by reason of mental + deficiency existing from birth or from an early age.</p> + +<p class="hanging">"<i>Class V:</i> Feeble-minded—that is, persons who may be capable + of earning a living under favourable circumstances, but are + incapable from mental deficiency existing from birth or from + an early age of competing on equal terms with their normal + fellows, or of managing themselves and their affairs with + ordinary prudence.</p> + +<p class="hanging">"<i>Class VI:</i> Epileptics—that is, persons suffering from + epilepsy."</p></div> + +<p>This is similar to the classification in the English Mental Deficiency +Act, which also includes the following definition:—</p> + +<div class="blockquot"><p class="hanging">"'Moral imbeciles'—that is, persons who from an early age + display permanent mental defect, coupled with strong criminal + or vicious propensities, on which punishment has little or no + deterrent effect."</p></div> + +<p>In the opinion of the Committee it is very important that a similar +definition should be included in any amendment of the New Zealand Act.</p> + +<p>A Magistrate may order the committal to an institution of any person +coming within these definitions if he is satisfied that such person is +mentally defective and two medical men give a certificate to that +effect. Persons coming under the description in Classes I, II, III, or +IV are committed to the mental hospitals, but there seems to be +considerable reluctance both on the part of medical practitioners to +certify and of Magistrates to commit to a mental hospital epileptics and +those described as "feeble-minded." Evidence was given before the +Committee to the effect that there would not be the same disinclination +to send these classes of patients to a special institution such as a +farm colony or an industrial colony.</p> + +<p>Apart from the residential special schools, special classes have been +established in connection with public schools in each of the large +centres of population throughout the Dominion with promising results.</p> + +<p>The Committee visited the special classes in one of the centres, and +were impressed with the sympathetic attitude of the teachers towards +their scholars and the happy appearance of the children, who seemed to +be keenly interested and busy over their appointed tasks.</p> + +<p>There is as yet no special provision in New Zealand for the education of +epileptic children. Fortunately, the number of these is apparently +small, but, as in many cases it is undesirable for them to attend the +ordinary classes of the elementary schools, the question of arranging +for their tuition otherwise requires earnest consideration.</p> + +<p>Following on legislative authority contained in the Education Act +already referred to, provision for feeble-minded children, within the +meaning of the Act, was made by establishing the special school at +Otekaike, near Oamaru, with accommodation for 195 boys, and some years +later a similar institution was opened at Richmond, near Nelson, with +provision for about eighty girls.</p> + +<p>These institutions contain two separate divisions, providing for—(1) +The training of children of school age, and (2) the instruction of young +persons over school age in handicraft and farm-work.</p> + +<p>Both institutions have modern and well-equipped day schools with trained +women teachers, and at Otekaike the industrial division is provided with +workshops and instructors in trades and handicrafts.</p> + +<p>The children are housed in modern and well-appointed cottage homes, each +with accommodation for thirty-five, and are supervised by selected women +attendants.</p> + +<p><a name="Page_16" id="Page_16"></a>The Committee visited and inspected both Otekaike and Richmond, and were +very favourably impressed with the healthy environment and careful +management of these institutions, and with the humane and sympathetic +methods adopted for the purpose of making the best of imperfect human +material.</p> + +<p>At both places physical exercises, musical drill, and organized games +form an important part of the training, and the teachers deserve +commendation for the efficiency of the pupils in these respects and +their general appearance of physical fitness.</p> + +<p>Moral training and training in habits of personal cleanliness and prompt +obedience form an important part of the curriculum, and the effects are +noticeable in the quick movements and alert attitude of the inmates. The +girls at Richmond receive training in domestic work, needlework, +knitting, darning, &c., according to their ability.</p> + +<p>The children are taught various kinds of handiwork, and by grouping them +according to mental capacity they are given a school course modified to +suit the individual. In the industrial division at Otekaike, baskets, +sea-grass furniture, and all kinds of wickerware and coir mats are well +made, and are readily sold. Bootmaking and repairing for the institution +are also carried out by certain of the inmates under a practical man. +Attached to Otekaike there is an area of land where farming, gardening, +and fruitgrowing absorb most of the labour of the older inmates.</p> + +<p>At Richmond the area of land available for cultivation is limited, but +even so it occurred to the Committee that something more might possibly +be done in the direction of providing congenial and profitable work for +the older girls, as, for instance, the growing of flowers for sale in +the Wellington markets.</p> + +<p>At Otekaike, after training, the best types of the older inmates are +placed out, usually with farmers in the district, and for the most part +are leading useful lives under the supervision of the local Juvenile +Probation Officers of the Education Department.</p> + +<p>The matter of placing out girls from the school at Richmond is obviously +one of much greater difficulty.</p> + +<p>At both Otekaike and Richmond there is a growing group of custodial +cases, due to the fact that in many instances the parents or guardians +are either unable to provide proper protective measures for the children +if released, or are unsuitable in other ways to have the control of +them. On the other hand, there is reluctance on the part of medical +practitioners to certify such cases for a mental hospital. It is very +desirable, of course, that the special schools should be used as +trying-out places for children whose mental equipment is questionable, +but where after a reasonable trial it is evident that merely custodial +care is required there should be some simple method of passing them on +to farm colonies or suitable custodial homes.</p> + +<p>As a matter of fact, the school at Richmond has its full complement of +pupils, and as many cases have now to be refused admission it is +urgently necessary that other provision should be made, especially for +the older girls needing custodial care.</p> + +<p>Mention should also be made of a visit paid by the Committee to the +industrial school at Caversham, which deals with girls and young women +who have failed to make good when placed out under supervision in the +community. There is a small clothing-factory attached to the +institution, which provides useful employment for certain of the +better-type girls. It is stated that, even under present conditions, +which are not altogether satisfactory, the majority of the Caversham +girls benefit from the training they receive to such an extent that they +can be trusted to earn their living in the community under supervision.</p> + +<p>The Committee, however, are of opinion that the buildings and site are +most unsuitable for such an institution. Little level space is available +for recreation purposes, the property is overlooked at the back, and the +location and general plan of the buildings are such that the utmost +vigilance has to be exercised. For the inmates belonging to the +reformatory section it is considered that such an institution should be +situated in the country with sufficient suitable land to permit of +gardening and farming on a small scale. This would afford healthful +occupation for the inmates and contribute towards their support. Such an +institution should be so situated as to be readily accessible from all +parts of the Dominion.</p> + +<p>In the matter of the admission of young offenders over sixteen years of +age to the Caversham Industrial School, and also to the Boys' +Training-farm at Weraroa, the Committee found that in these cases the +Courts have no authority to commit direct, but must first sentence the +young person to imprisonment and then recommend transfer to an +industrial school. Such a system is not only cumbersome, but is +fundamentally wrong, and should be remedied as soon as possible. The +Courts should have discretionary powers to commit any young offender +under eighteen years of age direct to an industrial school.</p> + +<p>At Caversham there is a small proportion of the inmates who should be +transferred to a Borstal institution. This refers to the so-called +"over-sexed" girl, and the girl with strong anti-social proclivities, +who should be confined to an institution where there is provision for +segregation and treatment of refractory cases. In many instances these +young women should be kept under control for a considerable period. Many +are hopelessly immoral, and in the interests of society should not be +allowed their liberty.</p> + +<p>That section of the Caversham institution comprising children committed +to the care of the State on account of destitution or unsuitable +conditions in their homes would be better provided for in a separate +receiving home. This would be in accord with the practice obtaining in +all the other centres.</p> + +<p>The Education Department deals with all children committed to the care +of the State for causes varying from destitution to delinquency. The +procedure is for the police to charge the children and for the +Magistrate to commit them to the nearest receiving home, where they are +kept under observation, trained in proper habits, and so forth, and as +soon as possible, if they exhibit no anti-social traits, <a name="Page_17" id="Page_17"></a>placed out in +selected foster-homes. The Department holds the view, shared by leading +authorities, that home life, however humble, provided the foster-parents +are suitable people, is better than institution life for the majority of +the children who are cast on the State for sustenance and protection. +The supervision of these cases, and the selection of employment for them +when they become old enough, are carried out by the nurses, Managers of +receiving homes, and Juvenile Probation Officers of the Education +Department. Several of these officers gave valuable evidence in the +course of this inquiry. These officials not only look after the welfare +of the children brought under State control, but also carry out a great +deal of preventive work in the way of advising parents and supervising +children, who by their timely and kindly intervention are saved from +coming within the scope of the law.</p> + + +<h3 class="smcap">Section 8.—Children's Courts.</h3> + +<p>Several witnesses before the Committee pointed out the need for the +establishment of special Courts for children and juveniles.</p> + +<p>The Committee recommend that such provision be made, and also that +clinics be established providing for the physical and psychological +examination of all children coming under the jurisdiction of these +Courts. The fuller knowledge thus acquired would be extremely valuable +to the authorities dealing with the children.</p> + +<p>Many countries have recognized this need and have established properly +constituted Courts for dealing with children and juveniles as apart and +distinct from Police Courts.</p> + +<p>In this connection it is surprising to find that New Zealand is lagging +behind in that in the laws relating to the punishment of crime hardly +any distinction in procedure is made between the child and the adult. It +is true, of course, that a practice has grown up whereby children are +dealt with in the Police Courts at a time apart from the hearing of +adult cases, but the procedure of the Criminal Court has been +retained—<i>i.e.</i>, the young delinquent is charged with an offence, is +required to plead, and if found guilty is liable to conviction. In the +majority of such cases the charges are for minor offences and are dealt +with summarily, but a child charged with an indictable offence and +remanded to the Supreme Court for trial or sentence may in the interim +be detained in prison.</p> + +<p>By arrangement between the Departments concerned most of the cases of +children and juveniles are investigated by the Juvenile Probation +Officer of the Education Department prior to the hearing, but these +officers have no legal standing in any Court, and are not even empowered +to bring a destitute child before a Magistrate for committal to the care +of the State. This function must be carried out by a police constable.</p> + +<p>The Children's Court, as it is constituted in other countries, is a +Court of equity, and its principal function is to consider all children +brought before it as cases requiring protection and care. It is the +business of the Court, by means of careful investigation in each case of +conduct, school history, family history, and mental condition, to +ascertain, if possible, the reason for misconduct, and either to +eliminate or modify the causes, or to remove the child from the +environment that has contributed to its present condition.</p> + +<p>The presiding Magistrates are usually selected on account of their +experience with children and knowledge of child psychology. In some of +the Courts in America women are selected for these positions.</p> + +<p>It is common knowledge that lack of mental balance, retardation, and +physical defect are responsible for much juvenile delinquency, and it is +therefore essential that if the children appearing before the Courts are +to be dealt with in a scientific manner there should be provision on the +lines recommended above.</p> + + +<h3 class="smcap">Section 9.—Policy for the Future.</h3> + +<p>It seems to the Committee that the Dominion has now come to the parting +of the ways in this matter, and unless the multiplication of the +feeble-minded is to be allowed to go on in an ever-increasing ratio, +with consequences dreadful to contemplate, the problem must be dealt +with on broader lines, and in a more comprehensive fashion.</p> + +<p>In the first place, a comprehensive system of notification is essential +so that a register as complete as possible may be made of the cases to +be dealt with.</p> + +<p>The English Commission for Inquiring into the Care and Control of the +Feeble-minded, whose report appeared as far back as 1908, laid down the +basic principles of a sound policy in dealing with this question. Their +first principle was that persons who cannot take a part in the struggle +for life owing to mental defect should be afforded by the State such +protection as may be suited to their needs. Their next principle was +that the mental condition of these persons, and neither their poverty +nor their crime, is the real ground of their claim for help from the +State. Their third principle was that if the mentally defective are to +be properly considered and protected as such it is necessary to +ascertain who they are and where they are.</p> + +<p>This, of course, is the object of the system of registration to which we +have referred.</p> + +<p>Lastly, the English Commission held that the protection of the mentally +defective person, whatever form it takes, should be continued as long as +it is necessary for his good.</p> + +<p>These principles appear to us to be quite sound, and we have no +hesitation in adopting them.</p> + + +<h4><i>Proposed Eugenic Board.</i></h4> + +<p>In regard to the method of compiling the register, some excellent +suggestions were made by Dr. Theodore Grant Gray, Medical Superintendent +of the Nelson Mental Hospital. He proposed, first, that a Government +Department or sub-department should be created to deal with all +feeble-minded and mentally defective persons living outside +institutions. It would deal not only with the feeble-<a name="Page_18" id="Page_18"></a>minded, but it +would act the part of a Government "after-care association," in that it +would keep in touch with all persons discharged from mental hospitals. +One of its duties would be to keep a register of all feeble-minded, +epileptic, and mentally defective persons living outside institutional +care. Dr. Gray further suggests that the register should be compiled in +the following manner:—</p> + +<div class="blockquot"><p class="hanging">(1.) It would be a statutory duty of all School Medical + Officers to report to the Department the names of all + feeble-minded or epileptic children in their districts.</p> + +<p class="hanging"> (2.) It would be the duty of the District Education Board to + report any child of school age who was not attending school + because of feeble-mindedness or epilepsy.</p> + +<p class="hanging"> (3.) It would be the duty of the Superintendent, owner, or + licensee of every hospital, private hospital, industrial + school, or reformatory prison to notify the Department upon + the admission of any person suffering from feeble-mindedness + or epilepsy.</p> + +<p class="hanging"> (4.) It would be the duty of the Superintendent of every + mental hospital to notify the name of every person discharged + from a mental hospital.</p> + +<p class="hanging"> (5.) It would be the duty of every Judge or Magistrate in all + cases brought before him in which there appears to be mental + enfeeblement or epilepsy to call to his assistance an + alienist, and, if the report is confirmatory, to order such + person's name to be placed upon the register.</p></div> + +<p>N.B.—In the case of sections 1, 2, and 3 the Department would apply to +a Magistrate for an order to register the person concerned. In section 4 +the process would be automatic.</p> + +<hr /> + +<p>The Committee consider the machinery suggested for the purpose of +compilation of the register very suitable, subject to such modifications +as may be found necessary in practice, but have come to the conclusion +that it would be preferable for many reasons to keep cases of this kind, +as far as possible, free from Courts, a large part of whose work +consists in trying persons charged with criminal offences, and to follow +the plan which seems to be working very well in several American +States—namely, to set up a Board of experts to deal with these cases.</p> + +<p>The Board, which might be called the Eugenic Board, should be a central +Board associated with a special Department or sub-department, of which +the head should be a man of sufficient personality, energy, and +organizing-power to grapple effectively with this question—first, by +taking the necessary steps to compile a reasonably exhaustive register, +and afterwards, by co-ordination with cognate Departments or by +independent departmental action, to build up the necessary machinery to +provide for the care, segregation, supervision, or treatment of the +class with which his Department is required to deal.</p> + +<p>The compilation of the register is a departmental matter, but +legislative authority will be necessary, to provide for compulsory +notification and to prescribe the means. A well qualified departmental +officer should at once be detailed to take this matter in hand and +formulate from the evidence given to the Committee and from other +sources of information the method and means of obtaining complete +registration.</p> + +<p>The first step towards the formation of the Board should be the early +selection and appointment of a thoroughly trained and experienced +psychiatrist. Irrespective of the necessity for the employment of such a +man as the scientific member of the proposed Board, the Committee are of +opinion that the Departments of Health, Mental Hospitals, Prisons, and +the Special Schools Branch of the Education Department are at present +suffering from the lack of expert advice in this direction, and that it +is high time the Government had in its service at least one trained +psychological expert, with recourse to the services of other men with +similar training in the four centres.</p> + +<p>The Eugenic Board should be vested with power to examine all cases +notified and, after due investigation, to place on the register—</p> + +<div class="blockquot"><p class="hanging">(1.) Such persons as in its judgment come within the + definition in the Mental Deficiency Act of feeble-minded;</p> + +<p class="hanging"> (2.) Persons afflicted with epilepsy associated with + automatism or other conditions rendering them especially + liable to dangerous, immoral, or otherwise anti-social + manifestations, and in the case of juvenile epileptics the + mere frequency of fits rendering them unsuitable for + attendance at ordinary schools;</p> + +<p class="hanging"> (3.) Moral imbeciles as defined in the English Mental + Deficiency Act; and</p> + +<p class="hanging"> (4.) Persons discharged from mental hospitals.</p></div> + +<p>It should be the function of the Board to order or recommend to the +Minister the segregation, supervision, or treatment of the different +classes. Cases receiving adequate care in their homes would not, of +course, be interfered with.</p> + +<p>The Eugenic Board, of course, should have power to remove any name from +the register if it is of opinion that there is no longer any need for +registration. There should be the right of appeal to a Judge of the +Supreme Court against the decision of the Board to place a person on the +register, and there should also be power to apply to a Judge for the +removal of the name from the register in cases where the Board declines +to do so. These provisions should, it is considered, effectively +safeguard the liberty of the subject.</p> + +<p>The machinery necessary to deal adequately with this vital +question—vital in its influence on the purity of our race—must be +somewhat extensive, but use should be made as far as possible of +existing governmental and private agencies and organizations.</p> + +<p>The work requires organization, and the first essential is, therefore, +the appointment of an organizing head. Unless such an appointment is +soon made the matter will drift. The heads of the existing Departments +of State under whom such an organization might be placed have already +more business to handle than they can comfortably overtake. Some one +must be selected to specialize on this work and this work alone.</p> + +<p><a name="Page_19" id="Page_19"></a>The question naturally arises as to the Department of State to which the +proposed sub-department for the care of the feeble-minded might best be +attached. In the judgment of the Committee the education of +feeble-minded children should be continued by the Education Department, +which has evolved a very successful system and is administering it well. +After everything possible has been done in the matter of education a +large proportion, as they grow up, will be quite unable to hold their +own in the world, and for their own protection and safety, and in the +interests of society, must be cared for in some institution, where they +may be kept usefully occupied in gardening or farming, or in some +handicraft which will serve to keep them in health and help to recoup +the State some part of the cost of their maintenance. It is, of course, +most essential that they should not be allowed to reproduce their kind, +thus further enfeebling and deteriorating the national stock, adding to +the burden of the community and to the sum of human misery and +degradation. "To produce but not to reproduce" sums up the best scheme +of life for these unfortunates.</p> + +<p>Looking at all the circumstances of the case, it appears to the +Committee that it would be better if the compilation of the register, +the provision of the farm and industrial colonies, and the after-care of +adult feeble-minded patients coming under Classes V and VI and "moral +imbeciles" were entrusted to a special branch of the Mental Hospitals +Department. It is essential that the feeble-minded shall be kept +separate from the insane, while the feeble-minded themselves, of course, +require careful classification.</p> + +<p>It is very important that marriages with registered persons should be +made illegal, and, as a corollary to this, that it should be made an +indictable offence for any person knowingly to have carnal knowledge of +a registered person. It should also be provided that any parent or +guardian who facilitates or negligently allows any registered person to +have carnal intercourse with another person shall be guilty of an +indictable offence.</p> + + +<h3 class="smcap">Section 10.—The Question of Sterilization.</h3> + +<p>A question which has given the Committee much anxious thought is as to +whether sterilization should be adopted as a method of preventing the +propagation of the feeble-minded. That it would be an effective method +as regards the persons operated on goes without saying. The operation of +vasectomy in the case of males is a very simple one, which may be +performed with the aid of a local anæsthetic, and may be said for all +practical purposes to be unattended by any risk to the patient. In the +case of women a similar operation on the Fallopian tubes, which is known +as salpingectomy, is an abdominal operation and cannot be said to be +entirely free from danger, although it is not regarded as very serious. +Except for the prevention of fertility, the operation does not interfere +with the sexual powers of the patient and has little or no effect on +sexual desires. It has been stated that a process of sterilization by +means of X-rays can be applied to either sex. The only evidence +available, however, shows that this method is still in the experimental +stage, and the Committee, for this reason, cannot recommend it, +especially as there is a danger that it might damage the cells producing +the internal secretions which influence the secondary sexual +characteristics and so injuriously affect the general health and +mentality.</p> + +<p>Several States in America have passed laws providing for the +sterilization of persons in State institutions who are—(1) Insane, (2) +feeble-minded, (3) criminalistic.</p> + +<p>In some of the States an appeal was made to the Supreme Court, and, the +law being pronounced unconstitutional, no attempt was made to enforce +it. In other States the law has been allowed to become a dead-letter. Up +to the 1st January, 1921, the latest date dealt with by the most +recently published work on the subject, there have been 124 State +institutions legally authorized to perform operations for sterilization, +of which thirty-one have made more or less use of their authority, while +ninety-three have not. The total number of operations performed up to +the date mentioned was 3,233, divided into classes as follows: +Feeble-minded, 403; insane, 2,700; criminalistic, 130. Of this total of +3,233 operations the State of California contributed no less than 2,538, +and in this State a single institution (the State Hospital for the +Insane at Patton) is responsible for no fewer than 1,009 cases. A Bill +introduced in 1924 into the Senate to legalize sterilization of mental +defectives, &c., was rejected.</p> + +<p>Dr. H. H. Laughlin, of the Psychological Laboratory of the Municipal +Court of Chicago, has devoted several years to the study of this +question, and has recently published the result of his researches in a +book entitled "Eugenical Sterilization in the United States." He +publishes the texts of all the laws past and present, gives his idea of +a model sterilization law, together with the necessary forms for putting +it into effect. He also deals with the physiological and mental effects +of sexual sterilization. A reviewer of his book, writing in the <i>Journal +of Heredity</i> of October, 1923, states forcibly the case for the +opponents of sterilization. He expresses the opinion that "The release +of sterilized individuals with feeble inhibitions or anti-social +tendencies is the equivalent to the creation of so-many new and virulent +foci of venereal diseases and promiscuity."</p> + +<p>Furthermore, the Central Association for Mental Welfare of Great +Britain, which was formed in 1913 to act as a co-ordinating and +representative body on all questions affecting mental defectives and +their relations to the community, not long ago referred the question to +their standing Medical Committee, who gave the considered opinion that +"sterilization at the present time is not a practical proposition."</p> + +<p>The Committee of the Central Association being in complete agreement +with this view, the Association decided not to advocate the policy of +sterilization, because they consider that it would have only a limited +influence in preventing the increase of mental deficiency, that it would +be attended with certain harmful results in other directions, and +because its adoption is impracticable. The Association's statement on +this subject goes on to say: "It is very important to remember that +<a name="Page_20" id="Page_20"></a>although propagation by defectives is one of the causes of mental +deficiency, nevertheless this is by no means the only social menace +attaching to their presence in the community. If left unguided and +unprotected, their lack of stability and control may lead them to commit +serious crime, such as theft, arson, assault, and even murder. Their +inability to maintain economic independence results in vagrancy and +destitution. Their helplessness in the face of obstacles frequently +brings about their complete collapse at the first rebuff which they have +to meet. The interest of the community can only be adequately protected +by the segregation of a considerable proportion of these persons in +suitable institutions. A sterilized defective would not be any less +liable to these happenings than would one who was unsterilized. A +defective woman, from the fact of her being sterilized and incapable of +bearing children, would be more prone to illicit intercourse, to adopt a +life of prostitution, and to spread venereal disease. It follows that +segregation would still be needed in the case of a very large proportion +of defectives, but, if they are segregated, sterilization is +unnecessary. On the other hand, there can be very little doubt that any +general adoption of sterilization would, in actual practice, lead to the +non-segregation of a large number of defectives who should be under care +and thus to an increase of the foul evils mentioned."</p> + +<p>Having thus stated the arguments against sterilization the Committee +must now present the other side of the question.</p> + +<p>In the first place, it is evident that, as far as the United States is +concerned, the extension of sterilization of the mentally defective has +received a grave set-back by reason of the declaration of the Supreme +Court of the United States that the laws in certain States permitting +sterilization are unconstitutional. This ruling, of course, does not +apply to New Zealand.</p> + +<p>Further, opponents of sterilization ask to be shown its good results; +but obviously the results cannot emerge in one generation or in a +comparatively short space of time, but only in the ultimate lessening of +the proportion of mental defectives in the community by diminishing the +hereditary supply.</p> + +<p>There is no doubt also that much confusion exists in the minds of the +public as to the meaning of sterilization and desexualization or +castration. The process of sterilization, as has been shown, involves +only a simple and safe operation and has the sole effect of preventing +reproduction. Sterilization, therefore, should not be loaded with the +objections which apply to the far-reaching effects of castration. The +former, unlike the latter, is not prone to produce harmful effects upon +the mind or morals of the sterilized individual.</p> + +<p>The assertion that "sterilization at the present time is not a practical +proposition" is difficult to understand. It is certainly practicable, +and is as likely to be favoured as opposed by public opinion, especially +that section of the public that understands the difference between +simple sterilization and desexualization. As regards the suggestion that +sterilization may lead to new foci of venereal disease, it must be borne +in mind that the unsterilized feeble-minded are already prone to sexual +promiscuity, and there is no evidence that sterilization would increase +this tendency. The opponents of sterilization offer as an alternative +only permanent segregation to prevent the transmission of mental defect. +It is evident, however, that the cost of the segregation of all mental +defectives capable of reproducing other mental defectives would be +exceedingly heavy. The Committee advocates powers of segregation and of +sterilization, these powers to be placed in the hands of the Eugenic +Board, under proper safeguards and the right of appeal.</p> + +<p>Sterilization in suitable cases is not a high price to pay for liberty. +There are in our mental hospitals to-day men and women who suffer from +recurrent insanity, who are admitted to the mental hospitals from time +to time and discharged when they are better, and in the intervals +between their admission cohabit with their wives or husbands, as the +case may be, and bring more defective children into the world. If +discretionary power were given to the Board as suggested it should, and +no doubt would, be exercised cautiously and tentatively.</p> + +<p>Sterilization gives the patient liberty to do useful work in the +community, is less drastic than segregation for life, and on the whole a +much slighter interference with the rights of the individual, which are +surely subordinate in such cases to the rights of the State.</p> + +<p>There are, of course, numbers of mental defectives who can never be +allowed their liberty, and in the case of these the question of +sterilization need not be considered. There are many cases of mentally +defective girls, liberated from institutions in New Zealand for the +purpose of engaging in domestic service or other work, returning +afterwards the mothers of illegitimate children, probably also mentally +defective. Unless such are to be maintained for years as wards of the +State in institutions, should they ever again be allowed their liberty +unless they undergo the operation of sterilization?</p> + +<p>This is the question: Can the propagation of mental defect by mental +defectives and the debasing of the race thereby be greatly checked if +not completely prevented? The answer is assuredly, Yes, by segregation +and by sterilization.</p> + +<p>The Committee recommends that both methods be placed in the hands of the +Eugenic Board, with powers to discriminate as to which method is the +more suitable for each individual case. The two methods are +complementary, not antagonistic, and suitable safeguards for the liberty +of the subject are provided.</p> + +<p>The Committee recommends that the Eugenic Board should be given the +power in suitable cases to make sterilization a condition of release +from any of the institutions under the charge of the Department of +Mental Hospitals or removal of their names from the register on +probation, but that in no case should the operation be performed without +the consent of parents or guardians of the persons concerned.</p> + +<p>The Committee consider that the persons so operated upon and liberated +should be released on probation and kept under supervision for a +reasonable period, and that they should be returned to <a name="Page_21" id="Page_21"></a>institutional +care if found to be leading an immoral life, or unable to support +themselves, or for any other reason which the Eugenic Board may consider +sufficient.</p> + +<p>If the recommendation as to sterilization being authorized under the +conditions specified is adopted, the Committee think it would be +advisable to introduce some provision as in the American Acts, making it +unlawful to perform operations whose object is the prevention of +reproduction in cases not authorized by the Board unless the same shall +be a medical necessity.</p> + + +<h3 class="smcap">Section 11.—Segregation.</h3> + +<p>It will be neither possible nor desirable to segregate all mental +defectives. Feeble-minded children who are receiving adequate care and +training in their own homes will, of course, be left there. When they +reach the age of adolescence the question of their disposal should be +considered by the Board. In many cases the inmates of special schools, +after they have received some training, would do well if returned to +their homes or boarded out in selected foster-homes under supervision.</p> + +<p>The real difficulty arises, especially in the case of girls, when the +age of adolescence is reached.</p> + +<p>In the opinion of the Committee it is of the utmost importance that +mental defectives should be prevented from reproducing. No person who +has been placed on the register should be allowed to marry until the +Eugenic Board has given its consent by removing the name from the +register.</p> + +<p>It is altogether wrong to suppose that there is any unkindness in taking +the feeble-minded, who are unable to battle for themselves, under the +care of the State and preventing them from bringing forth another +generation of defectives. The real unkindness consists in allowing such +unfortunates to be brought into the world.</p> + +<p>In school, and still more in the after-struggle for existence, the +feeble-minded find themselves the butts of their fellows, and the +"inferiority complex" thus developed tends to make them sink lower in +the scale both in intellect and morals.</p> + +<p>"On the other hand, it is the general experience of those who have had +many years' practical experience with defectives that the majority are +far happier in suitable institutions engaged in congenial occupations, +and having the companionship of their mental equals, than when they are +exposed to the difficulties of an outside world to which they are +incapable of adapting themselves. In many cases, indeed, such freedom +amounts to the infliction of positive cruelty."</p> + +<p>This statement is taken from the memorandum of the Central Association +for Mental Welfare of Great Britain, to which reference has already been +made, and this Committee can, from their own observation, endorse the +views thus expressed.</p> + +<p>It seems desirable, however, to point out the fallacy of a popular idea +that the world could easily stamp out defectives and degenerates by +merely adopting a vigorous policy of segregation and sterilization. Even +if it were possible by these means to prevent all manifest mental +defectives from reproducing, it cannot be expected that this class will +be thereby eliminated from the population, since mental defectives may +be the offspring of apparently normal stocks, or may be descended from +stock in which only minor manifestations of impaired nervous vitality, +such as instability, eccentricity, &c., have hitherto been evident, and +in a large proportion of cases they are no doubt the progeny of persons +belonging to the higher grade of distinctly degenerate stock—persons +who have not themselves necessarily shown any marked traits of +instability or degeneracy, and to whom therefore sterilization or +segregation would be inapplicable.</p> + + +<h3 class="smcap">Section 12.—The Question of Expense.</h3> + +<p>It will probably be objected that the plan for cutting off as far as +possible further additions to the mental defectives of the Dominion will +involve increased expenditure. This is, unfortunately, the case; but +will it not be a much more costly process to allow the present +unrestricted multiplication of these defectives to continue in an +ever-increasing ratio? If they are allowed to multiply, their +unfortunate offspring will have to be provided for in one way or +another—some by means of charitable aid, some in our prisons, some in +our mental hospitals. Take the case of the defective couple, case No. 4, +<a href="#Page_9">page 9</a>, themselves in receipt of charitable aid, who have already +produced eleven children, all of whom are being provided for by the +State, while, as the couple are still living together and the woman is +still of child-bearing age, it is quite possible that the total may yet +be increased. This family, it is estimated, will cost the State at least +£16,000. Will any one seriously contend that it would not have been +sound economy if this couple had been taken in the first instance, +placed in separate farm colonies where they would have lived fairly +useful lives, and been prevented from casting such an excessive burden +on the State? We might take each of the cases quoted in an earlier part +of this report, and many others which we have not quoted, and ask the +same question in regard to each. There is no doubt whatever that from +the purely financial point of view it is very much to the interest of +the community that this problem should be taken boldly in hand at once +while the evil is within fairly manageable proportions, instead of +allowing it to grow into an intolerable burden.</p> + +<p>Consider the humanitarian aspect. Surely it is a kindly act to give the +protective care of the State to those unfortunate persons who are unable +to hold their own in the struggle for existence, and who, if left to +their own devices, will fall miserably by the way and in many cases +become a menace to society.</p> + +<p>Lastly, there is the national question to be considered. Surely it is +important that our stock should be kept as sound and virile as possible, +and that where a process of deterioration has been detected every +attempt should be made to stop it as soon as possible and by every means +in our power.</p> + + +<h3 class="smcap"><a name="Page_22" id="Page_22"></a>Section 13.—Immigration.</h3> + +<p>The Committee feel very strongly that any attempt to check the +multiplication of mental defectives in the Dominion will to a large +extent be labour thrown away if the greatest care is not at the same +time taken to prevent the introduction of feeble-minded and other +undesirable persons from overseas. The distance of New Zealand from +Europe and the cost of the long passage have on the whole had a +selective influence on the character of the immigrants and tended to +keep up the standard of quality. As already mentioned, however, serious +mistakes were made in the "seventies" of last century. Very striking +testimony to this effect is contained in the report of the late Dr. +Macgregor, Inspector-General of Hospitals and Charitable Institutions, +presented in 1888, an extract from which appears in the Appendix of this +report. In the brief space of fifteen years the dire consequences of the +mistakes made in previous immigration without due regard to its quality +had already become apparent, and in the most impressive terms Dr. +Macgregor, who was an exceedingly able and far-sighted public servant, +pointed out that the evil done by the introduction of an undesirable +class of immigrant is never finished.</p> + +<p>"The impaired health, low morality, and insanity descend to the +offspring, and are a continued drain upon this community."</p> + +<p>The benefit of a well-regulated stream of immigration into this country +is not open to question. A substantial addition to our population is now +more than ever needed if this country is to progress and its resources +are to be developed sufficiently to enable it to bear with ease the +heavy burden imposed on the community by the Great War. The point which +it is desired to emphasize is that constant vigilance is necessary to +keep up the standard of quality of the new-comers in view of the very +natural desire to send off to a new land those who are physically or +mentally unable to maintain themselves in the land of their birth. Such +vigilance, it need hardly be pointed out, is especially necessary at the +present time when the volume of immigration is greatly increased owing +to the condition of affairs in the Mother-country.</p> + +<p>As a matter of fact, there seems no doubt that immediately after the +conclusion of the war the system of control and medical inspection was +not so strict as it should have been, especially in the case of the +Imperial Government's overseas settlement scheme for ex-service men and +women. The New Zealand Government, however, sent Home an officer from +the Immigration Department to rectify matters and to provide for a more +thorough examination of assisted immigrants.</p> + +<p>Under the system at present in force a special roster of medical +referees has been compiled, and no person is accepted as an assisted +immigrant without a certificate of physical and mental fitness from one +of these doctors. The medical examiner, in the instructions, is +particularly requested "To satisfy himself that the applicant is in +every way a fit subject to pass a thorough medical examination, as +applicants are liable to rejection both at the port of embarkation and +at the port of arrival." Finally, the doctor is required to sign the +following statement: "Having read and made myself conversant with the +instructions contained in Form KA supplied me, I certify that I have +this day examined the above-named, and am of the opinion that <span class="gap"> </span> + is in <span class="gap"> </span> health and of sound +constitution. <span class="gap"> </span> is not suffering from any mental or bodily defect +which in my opinion would unfit <span class="gap"> </span> for earning <span class="gap"> </span> own living as a +<span class="gap"> </span>."</p> + +<p>The form provides for a very complete examination, but as regards +certain conditions, especially previous mental diseases, the examiner is +necessarily dependent on the statements of the applicant.</p> + +<p>The Committee were informed that New Zealand has now the reputation with +the Imperial authorities of being the hardest and most exacting of all +Dominions regarding the health and physical fitness of immigrants.</p> + +<p>The Committee think that, in addition to the precautions already taken, +inquiry should be made, as far as may be possible, into the family and +personal history of assisted immigrants, particularly as to whether they +disclose any cases of insanity, epilepsy or feeble-mindedness, crime, or +dependence on charitable aid.</p> + +<p>The Committee are further of opinion that the time has now arrived when +closer supervision should be exercised over those persons who come as +ordinary passengers with the intention of remaining in the Dominion.</p> + +<p>The Immigration Restriction Act, 1908, provides that "When any passenger +arriving on board any ship is either lunatic, idiotic, deaf, dumb, +blind, or infirm, and is likely to become a charge upon the public," the +owner, master, or charterer of the ship shall be required to enter into +a bond in the sum of £100 for every such passenger, the person entering +into the bond and his sureties being bound to pay to the Minister all +expenses incurred within the space of five years for the maintenance of +such passenger.</p> + +<p>Under the Act the following are made "prohibited immigrants":—</p> + +<div class="blockquot"><p class="hanging">"(<i>b.</i>) Any idiot or insane person."</p> + +<p class="hanging"> "(<i>c.</i>) Any person suffering from a contagious disease which + is loathsome or dangerous."</p> + +<p class="hanging"> "(<i>d.</i>) Any person the date of whose arrival in New Zealand is + earlier than two years after the termination of any offence + which, if committed in New Zealand, would be punishable by + death, or imprisonment for two years or upwards, not being a + mere political offence, and no pardon having been granted."</p></div> + +<p>By Order in Council tuberculosis is gazetted as a contagious disease +which is dangerous within the meaning of the Act, and syphilis and +leprosy are contagious and loathsome diseases within the meaning of the +Act.</p> + +<p>To any one who has seen a medical inspection of passengers arriving in +an overseas vessel it is obvious that any degree of feeble-mindedness +short of manifest imbecility or dementia would be liable to be admitted, +and a good many cases of tuberculosis escape detection. Other countries +are now <a name="Page_23" id="Page_23"></a>alive to the importance of greater care being taken to guard +against the admission of these who are likely to lower the mental and +physical standard of the race, and in the opinion of the Committee +stricter precautions should be taken in New Zealand. The smallness of +this country makes it all the more important that it should be occupied +and developed by a selected population, while its attractiveness as a +field of settlement and the limited amount of land available place it in +a position of independence in which it is able to insist on the +maintenance of a high standard of fitness on the part of those desiring +to share in its advantages.</p> + + +<h3 class="smcap">Section 14.-summary of Findings and Recommendations.</h3> + +<p>The Committee find—</p> + +<div class="blockquot"><p class="hanging">(1.) That the unchecked multiplication of the feeble-minded + and epileptic is leading to a continually growing addition to + the sum of human misery, an ever-increasing burden on the + State, and the serious deterioration of the race.</p> + +<p class="hanging"> (2.) That it would be sound economy, as well as in the best + interests of humanity, to deal with the problem at once, even + though it involve a substantial expenditure.</p></div> + +<p>The Committee therefore recommend:</p> + +<div class="blockquot"><p class="hanging">(1.) That to the definitions in the New Zealand Mental + Defectives Act, 1911, there should be added a further + definition—namely, that of "moral imbecile" contained in the + English Act.</p> + +<p class="hanging"> (2.) That a special branch of the Mental Hospitals Department + be established to deal with all classes of mental defectives + who are not inmates of mental hospitals, and to act as an + "after-care" Department to look after patients discharged from + mental hospitals.</p> + +<p class="hanging"> (3.) That a Eugenic Board be appointed, to include a skilled + psychiatrist, another member of the medical profession, and to + be presided over by a Magistrate as Chairman.</p> + +<p class="hanging"> (4.) That the duty of the Department shall be to keep a + complete register of persons coming under the following + definitions in cases where the Eugenic Board has decided that + the patients in their own interests or in the interests of + society should be placed on the register:—</p> + +<div style="margin-left: 5%;"><p class="hanging"> (<i>a.</i>) Mental defectives who are not + inmates of mental hospitals who in the judgment of the Eugenic + Board come within the definition of "feeble-minded" in section + 2, Class V, of the Mental Defectives Act, 1911.</p> + +<p class="hanging"> (<i>b.</i>) Persons afflicted with epilepsy associated with + automatism or other conditions rendering them especially + liable to dangerous, immoral, or otherwise anti-social + manifestations, and in the case of juvenile epileptics the + mere frequency of fits rendering them unsuitable for + attendance at ordinary schools.</p> + +<p class="hanging"> (<i>c.</i>) Moral imbeciles as defined in the English Mental + Deficiency Act, 1913.</p> + +<p class="hanging"> (<i>d.</i>) Persons discharged from mental hospitals.</p></div> + +<p class="hanging">(5.) That the care of backward and feeble-minded children, so long as +these remain in an educable stage, shall be the duty, as at present, of +the Education Department.</p> + +<p class="hanging">(6.) That the Education Department obtain the services of psychological +experts with a view to creating a comprehensive system providing +increased facilities for the study of the individual child in school, +for the classification of children according to their mental capacities, +and for the adaptation of the curriculum to the needs of special +children. This may necessitate the establishment of an increased number +of special classes, an extension of the residential special schools, and +also provision for social readjustment of the children when required.</p> + +<p class="hanging">(7.) That fuller provision be made in connection with our Universities +and training colleges for the education of teachers in child psychology +and its practical application, and for their training for service in +special classes and special schools.</p> + +<p class="hanging">(8.) That full use be made of residential special schools for those +cases who fail to benefit by attendance at special classes, but who are +considered capable of training in manual work or handicrafts. The lower +grades of the feeble-minded who require merely custodial care should, as +a general rule, be excluded from special schools, but where there is any +doubt as to a child's degree of mentality or aptitude for manual +training admission to a special school for a probationary period should +be arranged.</p> + +<p class="hanging">(9.) That the Education Department shall report to the Eugenic Board +those inmates of special schools found incapable of receiving benefit +from further residence in such schools, and the Eugenic Board shall be +empowered to place on the register such as they consider should be so +dealt with.</p> + +<p class="hanging">(10.) In regard to those on the register, the Eugenic Board shall have +the power to order the removal of feeble-minded persons and moral +imbeciles to a farm or industrial colony to be provided for the care and +training of such persons.</p> + +<p class="hanging">(11.) That any person alleged to be feeble-minded, or the parents or +guardians of such person, shall have the right of appeal to a Judge of +the Supreme Court against the placing of his or her name upon the +register, and the parents or guardians of any person on the register +shall have the right to apply to a Judge of the Supreme Court for the +removal of the name of such person from the register, or for his or her +release from any institution established under the Act.</p> + +<p class="hanging"><a name="Page_24" id="Page_24"></a>(12.) The Committee recommend the establishment of farm or industrial +colonies where feeble-minded or delinquent persons who are custodial +cases may be usefully and, as far as possible, profitably employed, and +where they may receive the care and protection required by their +condition.</p> + +<p class="hanging">(13.) In regard to sterilization, the Committee find that the operation +of vasectomy in men can be carried out under local anæsthesia, and is +free from risk. The analogous operation of salpingectomy in women is an +abdominal operation, but the risk is not considered serious. These +operations are effective in preventing procreation, but do not otherwise +interfere with the sexual powers of the patient. In the case of persons +suffering from recurrent insanity or idiopathic epilepsy, high-grade +morons, and others who in the interests of themselves and of society +ought not to be allowed to reproduce, but who do not for other reasons +require custodial care, it is desirable that the operation of +sterilization should be considered by the Eugenic Board.</p> + +<p class="hanging">(14.) The Committee recommends that the Eugenic Board should be given +the power in suitable cases to make sterilization a condition of release +from any of the institutions under the charge of the Department of +Mental Hospitals, or removal of their names from the register on +probation, but that in no case should the operation be performed without +the consent of parents or guardians of the persons concerned.</p> + +<p class="hanging">(15.) The Committee consider that the persons so operated upon and +liberated should be released on probation and kept under supervision for +a reasonable period, and that they should be returned to institutional +care if found to be leading an immoral life, or unable to support +themselves, or for any other reason which the Eugenic Board may consider +sufficient.</p> + +<p class="hanging">(16.) The Committee consider that marriage with any registered person +should be made illegal, and that it should be an indictable offence for +any person to have carnal knowledge of any registered person. It should +also be provided that any parent or guardian who facilitates or +negligently allows any registered person to have carnal knowledge of +another person shall be guilty of an indictable offence.</p> + +<p class="hanging">(17.) In view of the fact that feeble-minded persons and others likely +to become a burden on the community have in the past been introduced +from overseas, the Committee recommend that, in addition to the +precautions already taken in regard to assisted immigrants, inquiry +should be made into the family history, especially as to whether it +discloses any cases of insanity, epilepsy, or feeble-mindedness, and +that applicants unable to produce satisfactory evidence on this point +should be excluded. The Committee are further of the opinion that closer +supervision should be exercised over persons who come as ordinary +passengers with the intention of remaining in the Dominion.</p></div> + + + +<hr style="width: 65%;" /> +<h2>PART III.—SEXUAL OFFENDERS.</h2> + +<h3 class="smcap">Section 1.—Scope and Origin of the Inquiry.</h3> + +<p>The second section of the order of reference requires the Committee "To +inquire and report as to the necessity for the care and treatment of +mental degenerates and persons charged with sexual offences, and to +recommend forms of treatment for the various types of cases."</p> + +<p>The Committee's finding and recommendation in regard to the "care and +treatment of mental degenerates" who have not been charged with criminal +offences are embodied in the first part of this report.</p> + +<p>The origin of the inquiry, in so far as it concerns the care and +treatment of mental degenerates and sexual offenders who appear before +the Courts, is to be found in the resolution of the Prisons Board first +appearing in their annual report for the year 1920 and repeated in their +reports for 1921 and 1922.</p> + +<p>The resolution is as follows:—</p> + +<p>"Whereas an increasing number of sexual offences has been the subject of +frequent and serious judicial comment, especially in cases where young +children were the victims, or the very serious nature of the charge +connoted a perversion dangerous to the moral well-being of society; and, +as the experience of the Board in dealing with prisoners of this class +accords, as far as it goes, with the now generally accepted opinion +that, with certain exceptions, persons committing unnatural offences +labour under physical disease or disability, or mental deficiency or +disorder, or both, which accounts for the sexual perversion and the +morbid character of the offence charged: It is resolved by the Prisons +Board strongly to recommend to the Government an amendment of the Crimes +Act under which such offenders could be dealt with scientifically—</p> + +<div class="blockquot"><p class="hanging">"(1.) Before sentence is pronounced, by furnishing expert + medical or surgical reports or evidence:</p> + +<p class="hanging"> "(2.) By sanctioning an indeterminate sentence:</p> + +<p class="hanging"> "(3.) By segregating persons so sentenced and subjecting them, + under proper safeguards, to any medical or surgical treatment + which may be deemed necessary or expedient either for their + own good or in the public interest."</p></div> + +<p>The repeated occurrence of gross offences of the character described by +the Prisons Board, both before and since the Committee commenced its +sittings, has focussed public attention more strongly <a name="Page_25" id="Page_25"></a>upon the +necessity for immediate action in regard to the more adequate treatment +of this class of degenerate than upon the much larger and relatively +more important class of mental defective covered by the first section of +the order of reference.</p> + +<p>The bulk of the evidence heard by the Committee and practically the +whole of the information obtained from various sources bore more +particularly upon the question of the care and prevention of the +propagation of the mentally defective part of the population coming +under the general designation of "feeble-minded." While, however, the +evidence obtained regarding the prevalence of sex offences and the care +and treatment of the offenders was not great in volume, it was eminently +practical in character. Apart from this, the flagrant cases reported in +the daily Press during the past few months in connection with the +Supreme Court Sessions in the various centres offer sufficient proof of +the necessity for some drastic amendment of the law on the lines +suggested by the Prisons Board.</p> + + +<h3 class="smcap">Section 2.—Seriousness of the Evil.</h3> + +<p>That the order for an inquiry into this question was by no means +premature was made apparent to the Committee by the presentation at its +first sitting of a return furnished by the Prisons Department, which +appears in the Appendix to this report, page 30, showing the number of +sexual offenders of the various classes who were actually serving +sentences on the 10th May, 1924. The total number of the sexual +offenders in the prisons of the Dominion on that date was 185. This +number represented 17.273 per cent. of all the prisoners then in +custody. Unfortunately, this percentage has since been increased by +recent commitments of cases of the most serious types.</p> + +<p>A return compiled by the Government Statistician (Mr. Malcolm Fraser) +shows that during the five years, 1919-1923, there were 331 persons +sentenced in the Supreme Court for sexual offences as follows: Rape, 5; +attempted rape, 19; indecent assault on a female, 150; indecent assault +on a male, 50; unlawful carnal knowledge, 49; attempted unlawful carnal +knowledge, 18; incest, 17; unnatural offence, 23: total, 331.</p> + + +<h3 class="smcap">Section 3.—Types of Offences.</h3> + +<p>It is obvious that included under the heading of sexual offences are +cases which vary so greatly in their gravity and in their very nature as +to have little in common. There is a great gulf between the lad +convicted of unlawful carnal knowledge with a girl who is under the +legal age of consent, but who in some instances may even be the actual +instigator of the offence, and the miscreant who tampers with little +girls of tender years, or sets himself deliberately to corrupt boys. It +was this class which the Prisons Board had in mind when it passed the +resolution quoted, and no doubt it is the class which the Committee's +order of reference is intended to cover.</p> + +<p>This class of offence is held in so much detestation by normal persons +possessing ordinary healthy natural instincts that they find it +impossible to consider the question from a judicial and coldly +scientific point of view. It is evident, however, that this must be done +if we are to entertain any hope of finding and applying an effective +remedy to this cancer in the social organism. The evidence given before +the Committee leads them to the belief that the evil is much more +prevalent than is generally supposed—that the cases which come before +the Court constitute only a percentage of those which actually occur.</p> + +<p>The ignorance of the general public in regard to these matters +occasionally leads to an unjust attitude of mind towards some of the +offenders brought before the Courts. Take the case of an old man charged +with "exhibitionism." To the normal mind this seems a particularly +disgusting proceeding, and the offender's age is regarded as an +aggravation. The explanation is that the higher nerve-cells of the old +man are degenerating, that he may be thus unable effectively to control +his morbid sexual impulses, particularly if stimulated by an enlarged +prostate. Such a person is a subject for pity rather than punishment; he +must be restrained from annoying others by his offensive behaviour, but +it is really a case for medical treatment.</p> + +<p>Another class to be considered is the confirmed homosexualist. There are +well-known examples of men eminent in the arts and literature given to +this unnatural practice, and of the offenders who come before the Courts +only a small proportion can be described as feeble-minded. The practice +is not confined to the male sex, although for reasons which will be +apparent it is only males who come before the Courts charged with this +specific offence. Many parents are unaware that girls as well as boys +may contract bad habits and fall into sexual abnormalities, but it is a +fact which they ought to know in order that the danger may be guarded +against.</p> + +<p>Mr. Hawkins, Inspector of Prisons, whose experience extending over forty +years in charge of prisoners in New Zealand makes his opinion of great +weight, says there are two types of sexual offenders to be found in our +prisons: First, there are those who yielded to sudden temptation, +assaulted women or young female children, sometimes under circumstances +exhibiting extreme brutality. In the majority of these cases, he says, +the offenders are curable under a proper system of treatment, and it is +seldom that they again offend. He goes on to say: "The real sexual +pervert, however, who is continually tampering with young children is +different, as is also the case when young boys are the victims. The +worst pervert of all is the one who flagrantly offers himself for the +purposes of sodomy. Strange as it may seem, there are quite a number of +such degenerates in our prisons to-day; middle-aged and elderly men +being the chief offenders of this class. In my opinion segregation for +life is the only course, and my years of experience among such a class +have convinced me of this, their case being absolutely hopeless when +this stage has been reached, and no cure is possible in such cases."</p> + +<p><a name="Page_26" id="Page_26"></a>This pessimistic view, unfortunately, is fully confirmed by the records +of cases examined by the Committee. Long terms of imprisonment, though +combined with the lash, have proved quite ineffective as a deterrent, +even to the individual concerned. In some cases the offender within a +short time after his release has been detected in the same practices and +rearrested. Still less does such a punishment act as a deterrent to +other addicts, if for no other reason than that each individual +cherishes the conviction that he will not be found out.</p> + +<p>Records of a number of illustrative cases are set out in the Appendix, +<a href="#Page_31">pages 31-33</a>.</p> + + +<h3 class="smcap">Section 4.—Suggested Remedies.</h3> + +<p>As regards the infliction of corporal punishment which is often +advocated, Dr. Murray, Medical Officer to the Mount Eden Prison at +Auckland, who has had a good deal of experience with sexual offenders, +said he had seen a good many flogged, and he did not think it had any +effect as a deterrent. He added, "Nothing will deter men once they have +taken on that line. I think you will find in some cases where a person +has been addicted to those practices before marriage he will drift again +into the same course after a certain number of years. It seems a +perversion they have no control over, and after a certain number of +years it masters them."</p> + +<p>The general opinion of those who have been in touch with this problem +for many years is well expressed in the following extract from a very +valuable report furnished to the Committee by Dr. F.S. Hay, +Inspector-General of Mental Hospitals, on the different questions coming +within the scope of the inquiry:—</p> + +<p>"As a member of the Prisons Board I have had the matter of the sexual +offender brought under my notice and have come to some very definite +conclusions.</p> + +<p>"I think that he should be brought to trial in the ordinary way, with +perhaps suppression of publication of names of the offender and victim. +If found guilty, he should be given an indeterminate sentence, and be +removed to a farm reformatory prison, where he would be brought under +skilled medical and lay observation, and his case studied in respect +to—<i>Mentality</i>, when if afterwards it is decided that he is mentally +defective or deficient in terms of the Act he can be transferred to the +proper institution; <i>physical condition</i>, when if there is any disorder +it can be remedied. If the disorder is causative (<i>e.g.</i>, prostatic in +the elderly) and surgical or medical interference is necessary, it will +be carried out and its results carefully watched and reported on.</p> + +<p>"At present the sentences vary from, say, a year to ten years or more, +the seriousness of the case being one determining factor; but often +similar cases have years of difference in their sentences, and at the +end of the sentence they once more enter the world, and a fair +proportion repeat the offence. The people in the reformatory prisons +can, with experience of a case lasting over some years, foretell the +failure fairly accurately.</p> + +<p>"The degree of sexual perversion being measured by the amount of +interference with children, which accounts for the measure of the +sentence, means no essential difference in the intent or in the +likelihood of repetition, and therefore scientifically the sentences +should be equal. I suggest that they should be made equal by being made +indeterminate.</p> + +<p>"Those of whom the Medical Officer cannot report favourably would +continue on. They could be given a right of revision. Those of whom he +can report very favourably could be released on probation, and so on. +The essential feature is that no hurried diagnosis is made before trial, +but diagnosis and prognosis are arrived at after months and maybe years +of close observation and by a staff gaining experience daily."</p> + + +<h4><i>Sterilization and Desexualization.</i></h4> + +<p>The increase of sexual offences during recent years and the disgust felt +by all normally disposed people when contemplating cases of sexual +perversion and assault upon young children have created a strong public +opinion in favour of dealing with these offences as radically as +circumstances will permit.</p> + +<p>Demands are constantly made that the offenders should undergo "a +surgical operation," which is intended to imply either castration or +simple sterilization.</p> + +<p>The British Medical Association, at their annual Conference held in +Auckland in April, 1924, resolved that the following motion be adopted +by the Council: "That this Conference can make no recommendation for +surgical desexualization in the treatment of the adult sex pervert. The +only safeguard for young children in this matter is the permanent +segregation of the offender, either in prisons or in farm colonies. The +Conference emphasizes the importance of the sterilization of the chronic +mentally or morally unfit that a future generation may benefit thereby."</p> + +<p>The Committee therefore considers it necessary to set out as clearly as +may be possible the result of such operations and its deductions from +the evidence taken and authorities consulted as to the probability of +the achievement of the result desired.</p> + +<p>To consider in the first place the operation of simple sterilization +(vasectomy or salpingectomy). It is quite clear that this operation, +when properly carried out, prevents procreation by the individual +operated upon. Although the knowledge of the loss of this power may +modify the views of life held by the individual the operation <i>per se</i> +does not affect his physical or mental health. This would be +anticipated, as the production of the internal secretion of the sexual +glands in either sex (ovaries or testes) continues.</p> + +<p>Sexual desire and capacity for coitus are not usually appreciably +impaired by this operation, and it clearly could not be expected to +restrain the sexual offender from the pursuit of his perverted modes of +gratification. As, however, it appears that in a proportion of cases of +sexual perversion the tendency is an hereditary one, these operations +would, as in the case of the feeble-minded, tend to restrict the number +of individuals in the community afflicted in this manner. The Committee +would therefore recommend that simple sterilization be considered by the +Eugenic Board in relation to sexual perverts.</p> + +<h4><i><a name="Page_27" id="Page_27"></a>Castration (Desexualization).</i></h4> + +<p>The operation of desexualization implies the removal of the sexual +glands (ovaries or testes), and involves other considerations than the +operation of simple sterilization.</p> + +<p>The loss of the internal secretion of these glands may produce physical +and mental changes in the individual. These effects vary greatly in +degree according to the age at which the operation is performed.</p> + +<p>The earlier it is done the more decided the result. If performed <i>before +puberty</i> the secondary sexual characteristics fail to develop. The voice +does not change in the male; the development of hair is more sparse; the +general physical development is less masculine; and mentally the +individual is less aggressive. Most pertinent of all as bearing upon the +question under review, sexual desire and capacity do not develop, either +at all, or at any rate, not to the same degree as in a normal +individual. This result, however, is not constant, and depends +principally upon the age at which the operation is performed.</p> + +<p><i>After puberty</i> the operation is very much less effective. The secondary +sexual characteristics have been already established and persist. It +occasionally occurs that certain mental effects are produced. In women +these resemble, generally speaking, those occurring at the climacteric. +In both sexes, however, mental disturbances may occasionally arise.</p> + +<p>The immediate effect upon sexual desire and capacity is slight. It would +appear, however, from the small amount of evidence available on this +point that the tendency is to a gradual diminution of sexual desire, +possibly even to disappearance after some years.</p> + +<p>As it is generally after puberty that sexual perversion becomes +manifest, it is clear that much cannot be expected from this operation.</p> + +<p>The problematic result and the extent of the mutilation restrain the +Committee from any suggestion that such an operation should be made +compulsory.</p> + +<p>The Committee feel that the information at present available in regard +to sterilization or desexualization of sexual offenders is quite +inadequate to permit of a sound and final judgment as to the value of +the procedure. They recommend, therefore, that the whole question be +remitted for careful investigation to the Eugenic Board which it is +proposed should be set up.</p> + + +<h3 class="smcap">Section 5.—Scientific Treatment and Segregation with Indeterminate +Sentence.</h3> + +<p>After very careful consideration the Committee have come to the +conclusion that it is most desirable, in continuation of the system of +prison reform which has been inaugurated with so much success in this +country, that every person charged with a serious sexual offence should +be carefully examined by a medical man and skilled psychiatrist before +his trial, and evidence given to the Court of any physical or mental +defect having a bearing on the case.</p> + +<p>In the judgment of the Committee, the best way of dealing with persons +guilty of sexual crimes is by means of the indeterminate sentence. Each +case should be examined by a psychiatrist as well as by the Prison +Medical Officer, and the length of the period of detention should be +determined by the Prisons Board after looking into the nature of the +offence and considering the report of the psychologist and evidence as +to the conduct of the prisoner while under detention. In cases of the +worst type the indeterminate sentence would doubtless resolve itself +into detention for life.</p> + +<p>At all costs the women and children of the community must be protected +against this class of offender. The evidence of Mr. Hawkins as to this +class is emphatic and very much to the point:—</p> + +<p>"Personally I have never yet seen a complete cure in the case of a real +sexual pervert. Years of imprisonment, to my own personal knowledge, +have failed to do any good whatever. Treat them kindly, give them useful +work, and make their lives as pleasant as possible, but never let them +loose on society again. Even if this were done, the trouble with such +individuals is by no means ended, as if it is intended to prevent them +following their beastly tendencies constant unremitting supervision will +be necessary. The average citizen has not the slightest conception of +the utter depths of depravity to which a confirmed male sexual pervert +will descend. Instances of such depravity have occurred to my knowledge. +Many of the men referred to are not fit to live, but it must be +remembered that in many instances the evil tendencies have been +inherited, while in others environment has played a prominent part."</p> + +<p>The information placed before the Committee, which is summarized in the +foregoing paragraphs, leads to the conclusion that the requirements of +the position are fairly well covered by the terms of the Prisons Board's +resolution.</p> + + +<h3 class="smcap">Section 6.—Summary of Recommendations.</h3> + +<p>The Committee recommend,—</p> + +<div class="blockquot"><p class="hanging">(1.) That the Crimes Act be amended to provide for the passing + of an indeterminate sentence upon persons convicted of sexual + offences. The Courts to be given full discretion as to whether + the sentence shall be definite or indeterminate.</p> + +<p class="hanging"> (2.) That the Prisons Board be vested with the same power of + recommendation for the release on probation or final discharge + of prisoners under an indeterminate sentence as they have now + in regard to all other prisoners.</p> + +<p class="hanging"> (3.) That a psychiatrist be appointed to advise the Prisons + Department as to the classification and treatment, and that he + be available to the Courts for the examination, before + sentence, of sexual offenders, or of offenders who are thought + to be irresponsible on account of mental defect.</p> + +<p class="hanging"> <a name="Page_28" id="Page_28"></a>(4.) That the Prisons Board be advised by the Eugenic Board in + regard to the release on probation or final discharge of all + sexual offenders or feeble-minded offenders coming under its + jurisdiction.</p> + +<p class="hanging"> (5.) The Committee feel that the information at present + available in regard to sterilization or desexualization of + sexual offenders is quite inadequate to permit of a sound and + final judgment as to the value of the procedure. They + recommend, therefore, that the whole question be remitted for + careful investigation to the Eugenic Board which it is + proposed should be set up.</p></div> + + +<h4 class="smcap">Concluding Remarks.</h4> + +<p>It goes without saying that the work of the Committee in pursuing their +investigations has been of a very painful and depressing character. We +need not refer to the depth of human degradation and the revolting +pathological details which had to be explored in dealing with the second +order of reference, beyond saying that the witnesses who faced the +unpleasant task of giving evidence deserve the thanks of the public for +discharging what they evidently felt to be a public duty. In the inquiry +into the problem of the feeble-minded the most saddening experience of +the Committee was the sight of so many children deprived of their full +share of the light of reason, often maimed and stunted in body as well +as in intellect. The sight was made sadder still by the reflection that +unless prompt and effective action is taken the multiplication of these +degenerates will increase and the race will steadily deteriorate.</p> + +<p>Professor William MacDougall, the noted psychologist of Harvard +University, speaking at Toronto recently in reference to the disregard +of eugenic methods in America in maintaining and improving the national +stock, said: "As I watch the American people speeding daily with +invincible optimism down the path that leads to destruction I seem to be +watching one of the greatest tragedies of history."</p> + +<p>New Zealand is a young country already exhibiting some of the weaknesses +of much older nations, but it is now at the stage where, if its people +are wise, they may escape the worst evils of the Old World. It has +rightly been decided that this should be not only a "white man's +country," but as completely British as possible. We ought to make every +effort to keep the stock sturdy and strong, as well as racially pure. +The pioneers were for the most part an ideal stock for a new offshoot of +the Mother-country. The Great War revealed that from their loins have +sprung some of the finest men the world has ever seen, not only in +physical strength, but in character and spirit. It also revealed that an +inferior strain had crept in and that New Zealand was already getting +its share of weaklings. Surely our aim should be to prevent, as far as +possible, the multiplication of the latter type, and to increase the +elements of the mental, moral, and physical strength of the nation. In +these beautiful and richly dowered islands we have a noble heritage—to +be in keeping and to ensure the full development of their resources and +enjoyment of their blessings the inhabitants should be of the highest +type obtainable by human effort.</p> + +<p>This is the lesson which has been impressed upon the minds of the +Committee during their investigations, and they have been sustained in +their saddening experience by the hope that this lesson will be taken to +heart by both the Parliament and the people of the Dominion.</p> + +<div class="blockquot"> +<p><span class="smcap">W. H. Triggs</span>, Chairman.<br /> +<span class="smcap">D. McGavin.</span><br /> +<span class="smcap">F. Truby King.</span><br /> +<span class="smcap">J. S. Elliott.</span><br /> +<span class="smcap">Ada G. Paterson.</span><br /> +<span class="smcap">Chas. E. Matthews.</span><br /> +<span class="smcap">J. Beck.</span><br /> +<br /> +<span class="smcap">J. W. Buchanan</span>, Secretary. +</p></div> + + +<hr style="width: 65%;" /> +<h2><a name="Page_29" id="Page_29"></a>APPENDIX.</h2> + +<h3>PAST MISTAKES IN IMMIGRATION.</h3> + +<h4 class="smcap">Extract from Report on Hospitals and Charitable Institutions of the +Colony, 1888, by the late Dr. Macgregor, Inspector-General.</h4> + +<p>Many causes have conspired in our history as a colony to intensify the +good-nature of our people—at any rate, so far as extravagance in +vicarious charity is concerned. Our sensitiveness to suffering has been +greatly stimulated by the comparative absence from our towns of those +sights of misery and squalor that deaden the feelings by familiarity; +and the lavish life we have led since 1870 has made us free-handed to +the poor and impatient of the trouble required to find out whether our +charity was wisely or mischievously given.</p> + +<p>During our years of plenty, when borrowed money was being largely spent, +and the prices of wool, &c., were high, I was in charge of the Dunedin +Asylum, and remember with what forebodings I regarded the quality of the +immigrants that were being poured into the country after the despatch of +instructions in October, 1873, to the Agent-General "To grant free +passages, and also, if necessary, advance expenses to port of +embarkation and outfit."</p> + +<p>Twenty thousand immigrants were, if possible, to be sent out in six +months. With wonderful rapidity the results became apparent. From all +parts came reports of the evil quality of the immigrants. The +Immigration Minister, writing to the Agent-General in June, 1874, says: +"I have already called your attention to the fact that the shipment by +the ... included a number of girls out of the Cork Workhouse, and I took +the opportunity of remarking on the very undesirable character of such +immigration. A perusal of the report of the Immigration Officer at +Dunedin will, I think, convince you how very disastrous it is likely to +prove to the cause of immigration if such modes of selection as those +adopted by Mrs. —— (who was paid per emigrant) are under any +circumstances permitted. The result in the colony of the landing and +distribution of such women as these complained of, and of such +immigrants as the "young men" whom Mr. Allen states he has ascertained +to be professed thieves, and one of them a ticket-of-leave man, is +naturally a feeling of indignation and dismay.</p> + +<p>No doubt this was an extreme case, but, nevertheless, it is plain that, +what with the great influx of a low class of navvies during the height +of our public works, and the vicious and degenerate people, of whom so +many were introduced at this time, the average of our population in +point of quality was considerably deteriorated. My experience as Medical +Officer of our largest asylum for so many years has convinced me that +the ultimate cost of this degraded class of people to this country is +enormous. For instance, here is an account of two families and their +asylum history:—</p> + +<table style="border-collapse: collapse;" cellpadding="5" border="1" summary="Asylum history of two families"> +<tr class="centre"><td>Number.</td><td>Name</td><td>Cost per Head.<br />Rate £1 per Week.</td><td>Total Cost</td></tr> + +<tr><td rowspan="3" class="right"> +I<br />II<br />III<br />IV<br />V<br /><br /><br /><br /> +I<br />II<br />III<br />IV<br />V<br />VI<br /></td> + +<td rowspan="3"><i>Family of B.</i><br />A.B. (brothers)<br />C.B.<br />D.B.<br />E.B.<br />F.B.<br /><br /> +<br /><i>Family of C.</i><br />A.C., wife<br />B.C., husband of A.C.<br />D.C., daughter of A.C. and B.C.<br /> +E.C. "<br />F.C., illegitimate daughter of E.C.<br />G.C., husband of F.C., but no blood relation.<br /> </td> + +<td class="right">£ s. d.<br /><br /> + 80 2 0<br /> +274 4 0<br /> +230 2 0<br /> + 8 2 0<br /> + 8 2 0</td> +<td class="right">£ s. d.<br /><br /><br /><br /><br /><br /> +600 12 0</td></tr> + +<tr><td class="right">£ s. d.<br /><br /> + 472 2 0<br /> + 418 0 0<br /> + 834 2 0<br /> +1,318 2 0<br /> + 169 8 0<br /> + 5 2 0</td> + +<td class="right">£ s. d.<br /><br /><br /><br /><br /><br /><br /> +3,216 16 0</td></tr> + +<tr><td> </td><td>£3,817 8 0</td></tr> + +</table> + +<p>Such people and their offspring are at this moment a fruitful source of +those idle and useless persons who bring discredit on the cause of that +portion of our people who cannot find employment. They fill our gaols, +our hospitals, and our asylums, and, like a swarm of low parasitical +organisms, they have, to an extent that is almost incredible, absorbed +the outdoor relief that was meant for the self-supporting and struggling +poor. I am sure that by far the largest proportion of the aid that has +been so abundantly distributed by the various charitable agencies, +especially in our large towns, has been spent in supporting a great many +idle and vicious persons whose example has had the most pernicious +effect in pauperizing the people. It should never be forgotten that the +evil caused by the introduction of this class is never finished. The +impaired health, low morality, and insanity descend to the offspring, +and are a continual drain upon the community.</p> + + + +<hr style="width: 65%;" /> +<h2><a name="Page_30" id="Page_30"></a>THE HEALTH OF SCHOOL-CHILDREN.</h2> + +<h3 class="smcap">Extract from the Report of the Director of the Division of School +Hygiene, 1924.</h3> + + +<p>The fundamental necessities of healthy growth are simple, and it is +doubtful if there is any country in the world to-day where they are more +universally procurable. Fresh air, sunlight, food of the right type and +amount, adequate sleep and rest, wholesome exercise, are available for +all but that small section of the people already mentioned. Sir +Frederick Mott, in an address recently published in the <i>British Medical +Journal</i>, quotes Voltaire: "Regime in diet is better than medicine. Eat +moderately what you know by experience you can digest, for that which +you can digest only is good for the body. What is the medicine that +makes you digest? Exercise. What will repair your energy? Sleep."</p> + +<p>To this text he adds the benefits of sunlight and pure air.</p> + +<p>Reports from School Medical Officers continue to record that tea, white +bread, and meat play the chief part in the dietary of many homes. Fresh +fruit and vegetables, even in rural areas, are not eaten sufficiently.</p> + +<p>Frequent eating between meals takes away appetite and retards digestion. +Many children bring to school substantial "play-lunches" to be consumed +at the mid-morning interval. Others consume large quantities of sweets. +Healthy hunger they rarely know. A noteworthy fact is that in New +Zealand the consumption of sugar per head per annum is 117 lb., as +against rather more than half that quantity in Britain and much less in +other countries. Apart from its directly deleterious influence on the +teeth, the alteration of food values in the dietary necessitated by the +inclusion of so much sugar results in digestive troubles and disturbed +nutrition. In this country, with its many sources of supply, eggs, milk, +cheese, butter, fresh fruit, and vegetables should be available in +sufficient abundance and at low-enough prices to displace to a greater +extent the meat that is such a prominent article of diet in many +households.</p> + +<p>The value of rest, both physical and mental, for children is not +adequately recognized. In the country many children work early and late +at farm-work, as milking, &c., and in the city children earn money as +newsboys, message-boys, &c. Where the family exchequer needs to be +augmented in this way excuse must be made, but in many comfortable homes +children do not rest sufficiently. Mr. Cyril Burt, psychologist for the +London City Council, was recently reported as deploring the tendency in +modern education to attach undue value to the dramatic and theatrical. +Children who possess talent are made to drag it prematurely into the +light of publicity. They are over-trained and over-stimulated. Nearly +all children are taught to regard frequent amusement as essential to +happiness. To leave them to develop their own resources and allow them +to find interest in simple and natural things would be to extend widely +their chance of future happiness.</p> + +<p>It is the wrongly fed, insufficiently rested child that most readily +develops physical deformity. The fatigued nervous system is expressed in +general bodily slackness. There is deficient muscular and ligamentous +tone. The typical faulty posture is thus acquired, with drooping head, +flat chest, wing shoulders, prominent abdomen. Vitality is depressed and +the bodily mechanism out of gear. The grosser bony deformities so often +found in older lands associated with rickets are rarely seen in New +Zealand, but less evident manifestations of faulty diet and regime are +frequent. It is fortunate that in this country we cannot altogether +escape, however we seek our pleasures in stuffy rooms or dark, +ill-ventilated places of entertainment, those powerful and beneficial +agents for promoting healthy growth—sunlight and fresh air. For the +prevention of defect it is essential that the classroom should offer +hygienic conditions—<i>e.g.</i>, good lighting and ventilation, suitable +furniture, &c. Another contributory factor in poor physical development +is the use of incorrect clothing and footwear. It is a common thing to +find from six to eight layers of tight garments constricting the chest +even in a child whose legs are scantily protected from cold. Shoes which +are too tight or too short, or which have heels so high as to prevent +correct body-balance, are very harmful. Clothing should offer adequate +protection, but should not prevent the most absolute freedom of +movement.</p> + + + +<hr style="width: 65%;" /> +<h2>SEXUAL OFFENDERS IN NEW ZEALAND.</h2> + +<p>The Prisons Department has furnished the following return of sexual +offenders serving sentences in New Zealand prisons in 1924: The total +number of sexual offenders, 192; the total number of sexual offenders +born in New Zealand, 126; the total number of sexual offenders born out +of New Zealand, 66; the total number of persons in the prisons serving +sentences exceeding three months, 980; the total number of +New-Zealand-born prisoners, 673; proportion of sexual +offenders—New-Zealand-born to total number of New-Zealand-born +criminals, 18.722; total number of prisoners born outside New Zealand, +307; proportion of sexual offenders born outside New Zealand to +prisoners born outside New Zealand, 21.498.</p> + +<h4><a name="Page_31" id="Page_31"></a>TABLE SHOWING THE NUMBER OF SEXUAL OFFENDERS SENTENCED UNDER THE +RESPECTIVE HEADINGS IN NEW ZEALAND PRISONS AS ON 31ST AUGUST, 1924.</h4> + +<table summary="Sentenced sexual offenders" border="1" style="border-collapse: collapse;"> +<tr class="centre"> +<td>Carnal Knowledge and Attempted Carnal Knowledge.</td> +<td>Indecent Assault.</td> +<td>Indecent Act.</td> +<td>Indecent Exposure.</td> +<td>Incest and Attempted Incest.</td> +<td>Sodomy and Attempted Sodomy.</td> +<td>Rape and Attempted Rape.</td> +<td>Manslaughter.</td> +<td> TOTAL </td></tr> + +<tr class="centre"> +<td>30 </td> +<td>106 </td> +<td>3 </td> +<td>9 </td> +<td>18 </td> +<td>23 </td> +<td>19 </td> +<td> 1<a name="FNanchor_A_1" id="FNanchor_A_1"></a><a href="#Footnote_A_1" class="fnanchor">[A]</a></td> +<td>209<a name="FNanchor_B_2" id="FNanchor_B_2"></a><a href="#Footnote_B_2" class="fnanchor">[B]</a></td></tr> +</table> + + +<div class="footnote"><p><a name="Footnote_A_1" id="Footnote_A_1"></a><a href="#FNanchor_A_1"><span class="label">[A]</span></a> Victim an old lady, aged 71, who died as the result of a +struggle, in which prisoner committed rape upon her.</p></div> + +<div class="footnote"><p><a name="Footnote_B_2" id="Footnote_B_2"></a><a href="#FNanchor_B_2"><span class="label">[B]</span></a> Number includes 17 prisoners who appear under more than one +of the above headings, therefore the actual number of individual +offenders total 192.</p></div> + +<p>Number of sentenced prisoners (exceeding three months) in custody on the +31st August, 1924, was 980, therefore sexual offenders (192 individuals) +represent 19.592 per cent. of the sentenced prison population serving +periods exceeding three months.</p> + + +<h4>CARNAL KNOWLEDGE AND ATTEMPTED CARNAL KNOWLEDGE.</h4> + +<table class="centre bordered" summary="Table showing ages of offender and victim"> +<tr><td class="style2" style="border-bottom: 1px solid #aaa">Age of Offender.</td><td class="style1" style="border-bottom: 1px solid #aaa">Age of victim.</td><td class="style2" style="border-bottom: 1px solid #aaa">Age of Offender.</td><td class="style1" style="border-bottom: 1px solid #aaa">Age of victim.</td><td class="style2" style="border-bottom: 1px solid #aaa">Age of Offender.</td><td class="style2" style="border-bottom: 1px solid #aaa">Age of victim.</td></tr> +<tr><td class="style2">28 </td><td class="style1"> 13 </td><td class="style2"> 43 </td><td class="style1">Several young <br />children</td><td class="style2"> 34 </td><td class="style2"> 14</td></tr> +<tr><td class="style2">18 </td><td class="style1"> 7 </td><td class="style2"> 22 </td><td class="style1"> 15</td><td class="style2">23 </td><td class="style2"> 15 </td></tr> +<tr><td class="style2">18 </td><td class="style1"> 7 </td><td class="style2"> 52 </td><td class="style1"> 14 </td><td class="style2"> 30 </td><td class="style2"> 9</td></tr> +<tr><td class="style2">34 </td><td class="style1"> 15<sup>5</sup>/<sub>6</sub></td><td class="style2"> 23 </td><td class="style1"> 14 </td><td class="style2"> 35 </td><td class="style2"> 15</td></tr> +<tr><td class="style2">72 </td><td class="style1"> 13½</td><td class="style2"> 25 </td><td class="style1"> 9 </td><td class="style2"> 27 </td><td class="style2"> 12</td></tr> +<tr><td class="style2">21 </td><td class="style1"> 8 </td><td class="style2"> 44 </td><td class="style1"> 6 </td><td class="style2"> 28 </td><td class="style2"> 9</td></tr> +<tr><td class="style2">29 </td><td class="style1">15<sup>7</sup>/<sub>10</sub></td><td class="style2"> 37 </td><td class="style1"> 15 </td><td class="style2"> 37 </td><td class="style2"> 14</td></tr> +<tr><td class="style2">29 </td><td class="style1"> 13 </td><td class="style2"> 29 </td><td class="style1"> 15 </td><td class="style2"> 35 </td><td class="style2"> 3</td></tr> +<tr><td class="style2">40 </td><td class="style1"> 14½</td><td class="style2"> 44 </td><td class="style1"> 13 </td><td class="style2"> 17 </td><td class="style2"> 12</td></tr> +<tr><td class="style2">27 </td><td class="style1"> 8 </td><td class="style2"> 31 </td><td class="style1"> 15 </td><td class="style2"> 43 </td><td class="style2"> 15</td></tr> +</table> + + +<h3>SOME ILLUSTRATIVE HISTORIES.</h3> + +<h4 class="smcap">Case No. 1.</h4> + +<table class="centre" summary="Case history #1"> +<tr><td>Number of Successive Convictions.</td><td>Age of Offender when offence committed.</td><td>Offence.</td><td>Sentence.</td><td>Sentenced (Date).</td><td>Released (Date).</td><td>Period at Large before arrest on Further Charge.</td></tr> +<tr><td>A. 1</td><td>19</td><td>Indecent assault on a male</td><td>4 years' hard labour</td><td>21/12/06</td><td>21/12/09</td><td>2½ months.</td></tr> +<tr><td> 2</td><td>23</td><td>Idle and disorderly</td><td>12 months' hard labour</td><td>4/ 3/10</td><td>29/12/10</td><td>2 years 2 months</td></tr> +<tr><td> 3</td><td>26</td><td>Indecent assault on a male</td><td>10 years' hard labour and 10 years' reformative detention</td><td>17/ 3/13</td><td>16/12/21</td><td>2½ years</td></tr> +<tr><td> 4</td><td>37</td><td>Indecent assault on males (three charges)</td><td>10 years' hard labour</td><td>25/ 6/24</td><td>Still in prison.</td><td> </td></tr> +</table> + +<p><span class="smcap">Note.</span>—Offender was born at Auckland and is the third eldest of +a family of eight. He was evidently dull at school, as he passed the +Third Standard only at the age of 13. At the age of 16 he was charged +with the offence of vagrancy, convicted and discharged. The victims in +all his offences were children varying in age from 6 to 13 years.</p> + + +<h4 class="smcap"><a name="Page_32" id="Page_32"></a>Case No. 2.</h4> + +<table class="centre" summary="Case history #2"> +<tr><td>Number of Successive Convictions.</td><td>Age of Offender when offence committed.</td><td>Offence.</td><td>Sentence.</td><td>Sentenced (Date).</td><td>Released (Date).</td><td>Period at Large before arrest on Further Charge.</td></tr> +<tr><td>B. 1</td><td>23</td><td>Theft (four charges)</td><td>1 month</td><td>29/10/00</td><td>28/10/00</td><td>1 year.</td></tr> +<tr><td> 2</td><td>24</td><td>Rogue and vagabond; vagrancy</td><td>3 months' hard labour</td><td> 5/11/01</td><td> 4/ 2/02</td><td>1 year 9 months</td></tr> +<tr><td> 3</td><td>37</td><td>Rape</td><td>Hard labour for life</td><td> 1/ 2/04</td><td>3/12/23</td><td> </td></tr> +</table> + + +<p><span class="smcap">Note.</span>—Offender is a native of New Zealand. The most serious of +his offences (No. 3) was committed on a girl 8½ years of age. After +serving six years of his term of life imprisonment the prisoner showed +signs of being mentally unsound, and in March, 1910, he was transferred +to a mental hospital. He remained a patient in a mental hospital until +March, 1915, when he escaped. It was afterwards ascertained that he was +aware of the fact that he was about to be returned to prison as being no +longer an insane person—hence his escape. After his escape he married, +and subsequently served two years with the Expeditionary Force. He was +returned to New Zealand as medically unfit and was arrested at Auckland +and returned to prison in August, 1917. Two members of his family—a +sister and a brother—have been convicted of theft and "conducting a +house of ill fame."</p> + +<p>This man was released on probation, on the certificate of an expert in +mental diseases, after serving the full life term of twenty years, but +soon after release gave clear indications of return to former criminal +perversions, and his rearrest was ordered.</p> + + +<h4 class="smcap">Case No. 3.</h4> + +<table class="centre" summary="Case history #3"> +<tr><td>Number of Successive Convictions.</td><td>Age of Offender when offence committed.</td><td>Offence.</td><td>Sentence.</td><td>Sentenced (Date).</td><td>Released (Date).</td><td>Period at Large before arrest on Further Charge.</td></tr> +<tr><td>C. 1</td><td>25</td><td>Obscene exposure</td><td>3 months' hard labour</td><td>19/ 6/06</td><td>18/ 9/06</td><td>8 months.</td></tr> +<tr><td> 2</td><td>26</td><td>"</td><td>6 months' hard labour</td><td>15/ 5/07</td><td>22/10/07</td><td>1 day.</td></tr> +<tr><td> 3</td><td>26</td><td>"</td><td>12 months' hard labour</td><td>23/10/07</td><td>15/ 8/08</td><td>3 months.</td></tr> +<tr><td> 4</td><td>27</td><td>Wilful damage</td><td>14 days' hard labour</td><td rowspan="2"> 6/11/08</td><td rowspan="2">28/ 8/09</td><td rowspan="2">10 months</td></tr> +<tr><td> 5</td><td>27</td><td>Obscene exposure</td><td>12 months' hard labour</td> </tr> +<tr><td> 6</td><td>30</td><td>Assault</td><td>2 months' hard labour</td><td>13/ 6/10</td><td> 5/ 9/10</td><td>4 months.</td></tr> +<tr><td> 7</td><td>31</td><td>Obscene exposure</td><td>3 months' hard labour</td><td>6/ 1/11</td><td> 5/ 4/11</td><td>6 days.</td></tr> +<tr><td> 8</td><td>31</td><td>Rogue and vagabond</td><td>1 month's hard labour</td><td>11/ 4/11</td><td>10/ 5/11</td><td>1 day.</td></tr> +<tr><td> 9</td><td>31</td><td>"</td><td>12 months' hard labour</td><td>11/ 5/11</td><td> 2/ 3/12</td><td>1 month.</td></tr> +<tr><td> 10</td><td>32</td><td>Obscene language</td><td>2 months' hard labour</td><td> 2/ 4/12</td><td> 1/ 6/12</td><td>8 months</td></tr> +<tr><td> 11</td><td>33</td><td>Indecent assault on a female</td><td>6 years' hard labour and 4 years' reformative detention</td><td> 5/ 2/13</td><td>23/ 9/19</td><td>2 years 1 month</td></tr> +<tr><td> 12</td><td>40</td><td>Indecent assault on males (three charges)</td><td>7 years' hard labour</td><td>31/10/21</td><td>Still in prison.</td><td> </td></tr> +</table> + + +<p><span class="smcap">Note.</span>—C. is a single man, aged 40 years, and a native of New +Zealand. He is a cabinetmaker by trade and said to be an excellent +tradesman. He appears to have been in trouble since he was 25 years of +age, and has constantly been in prison, the majority of his offences +being of a sexual nature. He is described as a highly dangerous criminal +and a menace to society.<br /></p> + + +<h4 class="smcap">Case No. 4.</h4> + +<table class="centre" summary="Case history #4"> +<tr><td>Number of Successive Convictions.</td><td>Age of Offender when offence committed.</td><td>Offence.</td><td>Sentence.</td><td>Sentenced (Date).</td><td>Released (Date).</td><td>Period at Large before arrest on Further Charge.</td></tr> +<tr><td>D. 1</td><td>15</td><td>Theft</td><td>6 months' probation</td><td>30/ 7/01</td><td>——</td><td> </td></tr> +<tr><td> 2</td><td>26</td><td rowspan="2">Carnal Knowledge<br />(1.) Indecent assault on a male<br />(2.) Indecent assault on a male</td><td rowspan="2">20 years' hard labour<br />(1.) 2 years' reformative detention; declared habitual criminal<br />(2.) 3 years' reformative detention</td><td> 1/ 2/12</td><td>20/ 2/22</td><td>2 years 6 months.</td></tr> +<tr><td> 3</td><td>38</td> <td>28/ 7/24</td><td>Still in prison.</td><td> </td></tr> +</table> + + +<p><span class="smcap">Note.</span>—D. is a native of New Zealand, aged 38 years and +married. His second offence, a very serious one, was committed on a +female child of 9 years, the child being subjected to great violence and +raped. He was released from prison on license on 20th February, 1922, +when he married a respectable woman who knew nothing of his past +history. She states that he was a good husband. There is one child of +the marriage, a female of 11 months. He is addicted to drink, and is +said to have been under the influence of liquor when he committed his +last offence. He is not a fit subject to be at liberty, as it was the +merest accident that his last offence did not become as serious as that +he committed in 1912. Offender has two brothers, both criminals.</p> + + +<h4 class="smcap"><a name="Page_33" id="Page_33"></a>Case No. 5.</h4> + +<table class="centre" summary="Case history #5"> +<tr><td>Number of Successive Convictions.</td><td>Age of Offender when offence committed.</td><td>Offence.</td><td>Sentence.</td><td>Sentenced (Date).</td><td>Released (Date).</td><td>Period at Large before arrest on Further Charge.</td></tr> +<tr><td>E. 1</td><td>14</td><td>Breaking, entering, and theft</td><td>Committed to Burnham</td><td>26/11/00</td><td>——</td><td> </td></tr> +<tr><td> 2</td><td>15</td><td>Absconding</td><td>Returned to Burnham</td><td>15/ 5/07</td><td>——</td><td> </td></tr> +<tr><td> 3</td><td>15</td><td>Breaking, entering, and theft</td><td>12 months' hard labour</td><td>18/ 4/01</td><td>15/ 2/02</td><td>2 years 3 months.</td></tr> +<tr><td> 4</td><td>19</td><td>Drunk</td><td>Fined 5s. and costs</td><td>23/ 5/04</td><td>——</td><td> </td></tr> +<tr><td> 5</td><td>19</td><td>"</td><td>Fined 5s. and costs</td><td>3/11/04</td><td> 3/11/04</td><td>3 months.</td></tr> +<tr><td> 6</td><td>20</td><td>Sodomy</td><td>Life</td><td>15/ 2/05</td><td>21/ 6/21</td><td>2 years 4 months.</td></tr> +<tr><td> 7</td><td>38</td><td>(1.) Indecent assault on a male<br />(2.) Common assault </td><td>(1.) 10 years' hard labour<br />(2.) 1 year's hard labour</td><td>30/10/23<br />"</td><td>Still in prison.</td><td> </td></tr> +</table> + +<p><span class="smcap">Note.</span>—E. is a native of New Zealand, aged 39 years and +married, with one child. He is reported to suffer from injuries to the +head caused by a fall from a tree when eleven years of age, and to be +subject to uncontrollable fits of temper and loss of mental balance +since that age. Offender was educated in Auckland, and passed the Third +Standard only at the age of 13. He was committed to Burnham at the age +of 10 for two years, from which institution he absconded on several +occasions. According to his own statement, during his term at Burnham +the practice of sodomy was fairly common, and the boys often talked +about it, but in his opinion did not regard it as a serious offence. He +states they were flogged for it, but did not think much of that either, +because they were flogged for many other things which he knew were not +serious. He says he also met boys from another industrial school who +were sent to Burnham, who also did and talked about the same practice. +Altogether, therefore, he knew he was doing wrong, but he will not admit +that he regarded it in any way as a serious offence. In 1903 he went to +sea, and states that his chief companion was a member of the Salvation +Army, also a seaman. He affirms that during all the time he was at sea +he never heard the offence referred to. The men talked of women but +never of sodomy. From 1903 to 1905 he apparently lived a reasonably good +life. In 1905 he was convicted of sodomy and sentenced to life +imprisonment. He was released on license on the 20th June, 1921, and +followed the occupation of gardener around Auckland. He married in June, +1923, and is at present serving a long sentence. Offender alleges having +made arrangements to be sterilized, but states doctor refused to perform +operation. Drink appears to have had some effect upon his life.</p> + + +<h4 class="smcap">Case No. 6.</h4> + +<table class="centre" summary="Case history #6"> +<tr><td>Number of Successive Convictions.</td><td>Age of Offender when offence committed.</td><td>Offence.</td><td>Sentence.</td><td>Sentenced (Date).</td><td>Released (Date).</td><td>Period at Large before arrest on Further Charge.</td></tr> +<tr><td>F. 1</td><td>12</td><td>Theft</td><td>To come up when called upon</td><td> 8/10/92</td><td>——</td><td> </td></tr> +<tr><td> 2</td><td>12</td><td>"</td><td>Sent to Burnham</td><td> 5/12/92</td><td>——</td><td> </td></tr> +<tr><td> 3</td><td>20</td><td>"</td><td>7 days' hard labour</td><td>28/ 4/00</td><td>——</td><td> </td></tr> +<tr><td> 4</td><td>20</td><td>"</td><td>To come up when called upon</td><td>24/10/00</td><td>——</td><td> </td></tr> +<tr><td> 5</td><td>21</td><td>Breaking, entering, and theft</td><td>12 months' hard labour</td><td>26/ 2/01</td><td>21/12/01</td><td>3 months.</td></tr> +<tr><td> 6</td><td>22</td><td>Vagrancy</td><td>3 months' hard labour</td><td>3/11/04</td><td>21/ 6/02</td><td>1 year 8 months.</td></tr> +<tr><td> 7</td><td>24</td><td>Indecent assault</td><td>5 years' hard labour</td><td>3/11/04</td><td>23/12/07</td><td>9 months.</td></tr> +<tr><td> 8</td><td>25</td><td>Escaping from custody</td><td>4 months' hard labour, cumulative with above</td><td>17/ 5/05</td><td>"</td><td> </td></tr> +<tr><td> 9</td><td>28</td><td>Indecent assault</td><td>7 years' hard labour</td><td> 8/ 9/08</td><td> 8/12/13</td><td>3 years 5 months.</td></tr> +<tr><td> 10</td><td>37</td><td>"</td><td>7 years' hard labour</td><td>14/ 5/17</td><td>20/11/22</td><td>6 months.</td></tr> +<tr><td> 11</td><td>43</td><td>Indecent assault on a female (two charges)</td><td>3 years' hard labour on each charge, cumulative, and declared habitual criminal</td><td> 8/ 5/23</td><td>Still in prison.</td><td> </td></tr> +</table> + +<p><span class="smcap">Note.</span>—F. is a native of New Zealand, born in Napier, February, +1880, and is a labourer by occupation. He was convicted of theft at +Napier when a boy and sent to the Burnham Industrial School, from which +place he escaped on several occasions. He was discharged from the school +on the 30th April, 1898, and since then has continued his criminal +career, his further offences being of a sexual nature. He is given to +tampering with little girls, and has on four occasions committed +indecent assault of a more or less serious nature. He is undoubtedly a +menace to society and not fit to be at large. Offender is a temperate +man, and when out of gaol appears to have wandered about the country +doing an odd day's work here and there. His parents are dead.</p> + +<hr style="width: 65%;" /> +<p class="centre"><i>Approximate Cost of Paper.</i>—Preparation, not given; printing (575 +copies), £42</p> + +<hr /> + +<p class="centre">By Authority: <span class="smcap">W. A. G. Skinner</span>, Government Printer, +Wellington.—1925.</p> + +<p><i>Price 1s.</i></p> + + + + + + + + +<pre> + + + + + +End of the Project Gutenberg EBook of Mental Defectives and Sexual Offenders, by +W. H. Triggs, Donald McGavin, Frederick Truby King, J. Sands Elliot, Ada G. Patterson, C.E. Matthews and J. 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You may copy it, give it away or +re-use it under the terms of the Project Gutenberg License included +with this eBook or online at www.gutenberg.org + + +Title: Mental Defectives and Sexual Offenders + Report of the Committee of Inquiry Appointed by the Hon. + Sir Maui Pomare, K.B.E., C.M.G., Minister of Health + +Author: W. H. Triggs, Donald McGavin, Frederick Truby King, J. Sands Elliot, Ada G. Patterson, C.E. Matthews and J. Beck + +Release Date: July 29, 2006 [EBook #18932] + +Language: English + +Character set encoding: ASCII + +*** START OF THIS PROJECT GUTENBERG EBOOK MENTAL DEFECTIVES AND SEXUAL OFFENDERS *** + + + + +Produced by Jonathan Ah Kit, Cori Samuel and the Online +Distributed Proofreading Team at http://www.pgdp.net + + + + + + 1925. + NEW ZEALAND. + + MENTAL DEFECTIVES AND SEXUAL OFFENDERS. + + REPORT OF THE COMMITTEE OF INQUIRY APPOINTED BY + THE HON. SIR MAUI POMARE, + K.B.E., C.M.G., MINISTER OF HEALTH. + + * * * * * + +_Laid on the Table of the House of Representatives by Leave._ + + * * * * * + +CONSTITUTION OF THE COMMITTEE. + + HON. W. H. TRIGGS, M.L.C., Chairman. + + SIR DONALD MCGAVIN, Kt., C.M.G., D.S.O., M.D. (Lond.), F.R.C.S. + (Eng.), Director-General of Medical Services, Defence Department. + + SIR FREDERICK TRUBY KING, Kt., C.M.G., M.B., B.Sc. (Public + Health) (Edin.), Director Division of Child Welfare, Department of + Health. + + J. SANDS ELLIOTT, Esq., M.D., Bac. Surg. (Edin.), Chairman of + the Council of the N.Z. Branch of the British Medical Association. + + MISS ADA G. PATERSON, M.B., Ch.B. (N.Z.), L.M. (Dublin), + Director Division of School Hygiene, Department of Health. + + C. E. MATTHEWS, Esq., Under-Secretary for Justice and + Controller-General of Prisons, &c. + + J. BECK, Esq., Officer in Charge Special Schools Branch, + Education Department. + + Secretary: J. W. BUCHANAN, Esq. + + * * * * * + + +CONTENTS. + + + PART I.--INTRODUCTORY AND HISTORICAL. PAGE + + Section 1.--=Origin and Scope of Inquiry=: Mental Deficiency, + Increase of; North Canterbury Hospital Board and others suggest + Inquiry; Committee, Personnel; Nature of Inquiry; Places + visited and inspected; Sittings, Date and Place of; Witnesses + examined, and Work done; Appreciation of Services rendered; + Value of Memoranda supplied by Sir George Newman, Secretary of + State for the United States, Dr. E. S. Morris (Tasmania), Dr. + Helen MacMurchy (Ottawa), and Dr. Eric Clarke (Toronto); + Secretarial Services 2 + + Section 2.--=Two Distinct Questions=: Mental Defectives and Sexual + Perverts, Comments on 5 + + + PART II.--PROBLEM OF THE FEEBLE-MINDED. + + Section 1.--=A Menace to Modern Civilization=: Feeble-minded, + Danger of Unrestricted Multiplication; Lothrop Stoddart's + Views; American Army, Psychological Test of; Results and + Deductions 5 + + Section 2.--=Heredity= _v._ =Environment=: Genetics and + Heredity; Heredity and Environment, Aspects reviewed; + Degenerate Families, Life-histories; Dr. Macgregor, Deductions + from his Report; Degenerate Stocks imported, Effect of; + Environmental Factor, Importance of; Pre-natal and Post-natal + Care, Value of; Housing Problem; Relationship of Impaired + Nutrition, Debility, and Disease to Impaired Control; Dietetics + and Child Welfare; Picture-shows, Effect on Children, and + Recommendations; Venereal Disease Committees' Report as to + Effect of Syphilis, &c.; Director Division of School Hygiene, + Attention drawn to Report; Excessive Competition, Effect on + School-children 6 + + Section 3.--=Illustrative Cases of Hereditary Degeneracy=: Juke + Family; Kallikak Family; New Zealand Cases cited; Sir Robert + Stout's Comments 7 + + Section 4.--=Elements of the Problem=: Basic Phases, + Registration, Educational Care and Training of Feeble-minded + Children, Oversight and Supervision; Educational Curriculum for + various Groups; Residential Schools; Farm and Industrial + Colonies for Segregation 11 + + Section 5.--=Estimates as to Numbers of Mental Defectives=: + Education Department Returns; Retardation, Problem of; + Feeble-minded and Epileptic Cases, Return showing 12 + + Section 6.--=Study of Feeble-minded and Delinquent Children=: + Methods employed in other Countries; United States of America; + New Zealand; Need of Psychological Experts; Tredgold, Quotation + from 14 + + Section 7.--=Method of dealing with Mental Defectives in New + Zealand--Present Legal Provision for Notification and Education + of Feeble-minded Children and for Care of Custodial + Feeble-minded Adults and Children=: Education Act, 1914; + Provision of; "Feeble-minded," Definition of; Mental Defectives + Act, 1911; English Mental Deficiency Act; Public Schools, + Special Classes; Epileptic Children, Education of; Otekaike and + Richmond Special Schools; Nature of Institutions and Training, + with Suggestions; Caversham Industrial School; Weraroa Boys' + Training-farm; Committal, Nature of; Value of Home Life in + Comparison with Institutional 14 + + Section 8.--=Children's Courts=: Committee's Recommendations; + Clinics for Physical and Psychological Examination 17 + + Section 9.--=Policy for the Future=: Notification; English + Commission, 1908, Basic Principles laid down; Register of + Feeble-minded; Eugenics Board; Dr. Gray's Suggestions; + Psychiatrists, Suggested Appointment; Eugenic Board, Proposed + Duties and Powers; Departments to control Feeble-minded; + Marriage and Carnal Knowledge with Feeble-minded; Parents' and + Guardians' Responsibilities 17 + + Section 10.--=The Question of Sterilization=: Operations, + Nature of; X-rays, Use of; American Laws; Dr. H. Laughlin, + Chicago, Views; Central Association for Mental Welfare of Great + Britain, Opinion on Sterilization; Evidence in support of + Sterilization; Committee's Opinion and Recommendation; Eugenic + Board's Powers 19 + + Section 11.--=Segregation= 21 + + Section 12.--=The Question of Expense=: Cost to State for Want + of Supervision, Case cited; Humanitarian and National Aspects 21 + + Section 13.--=Immigration=: Introduction of Feeble-minded and + Undesirables from Overseas; Medical Inspection of Intending + Immigrants; System in Force; Committee's Suggestions; Ordinary + Passengers from Overseas, Medical Supervision of; "Prohibited + Immigrants," Definition of 22 + + Section 14.--=Summary of Findings and Recommendations= 23 + + + PART III.--SEXUAL OFFENDERS. + + Section 1.--=Scope and Origin of the Inquiry=: Prisons Board, + Resolution passed; Medical and Surgical Reports; Indeterminate + Sentence; Segregation 24 + + Section 2.--=Seriousness of the Evil=: Sexual Offenders, Numbers + serving Sentence; Government Statistician's Return of Persons + sentenced 25 + + Section 3.--=Types of Offences=: Sexual Offences; Various + Classes, with Comments on; Types found in Prisons; Inspector of + Prisons' Opinion; Sexual Perverts, Cure of 25 + + Section 4.--=Suggested Remedies=: Corporal Punishment; + Inspector-General of Mental Hospitals' Recommendations; + =Sterilization and Desexualization=; Castration; Sterilization; + British Medical Association, N.Z., Motion passed; Vasectomy and + Castration; Committee's Recommendation 26 + + Section 5.--=Scientific Treatment and Segregation with + Indeterminate Sentence=: Medical Examination; Indeterminate + Sentence; Women and Children, Protection of; Mr. Hawkins's + Evidence on Control of Sexual Perverts 27 + + Section 6.--=Summary of Recommendations=: Crimes Act; Prisons + Board, Powers of; Psychiatrist, Appointment and Duties; Eugenic + Board, Power to advise Prisons Board; Sterilization; + =Concluding Remarks= 27 + + + APPENDIX.--=Past Mistakes in Immigration=: Extract from Report + on Hospitals and Charitable Institutions of the Colony, 1888, + by the late Dr. Macgregor, Inspector-General. =The Health of + School Children=: Extract from the Report of the Director of + the Division of School Hygiene, 1924. =Return showing Sexual + Offenders= serving Sentence in New Zealand Prisons, 1924. + =Table showing the Number of Sexual Offenders sentenced under + respective Headings in New Zealand Prisons. Some Illustrative + Histories= 29 + + + * * * * * + +The Hon. the Minister of Health, Wellington. + +SIR,-- + +The Committee of Inquiry into Mental Defectives and Sexual Offenders +appointed by you to inquire into and report upon the necessity for +special care and treatment of mental defectives and sexual offenders in +New Zealand have the honour to submit herewith their report. + + + + +PART I.--INTRODUCTORY AND HISTORICAL. + + +SECTION 1.--ORIGIN AND SCOPE OF INQUIRY. + +For a considerable time there has been a growing feeling of anxiety +among the public owing to the number of mental defectives becoming a +charge upon the State, and also the alarming increase in their numbers +through the uncontrolled fecundity of this class. Furthermore, owing to +the frequency of sexual offences, many of a most revolting character, +there was a strong demand that some action should be taken to prevent +further acts of this nature; it being suggested that the law should be +altered to make it possible for surgical operations to be performed upon +these offenders. + +The North Canterbury Hospital Board considered the need for action in +this matter so great that they set up a Committee to go into the +question and take evidence, which was done, and various recommendations +were made to the Government. + +A perusal of departmental files reveals that many persons and social +bodies have urged upon the Government the desirability of setting up a +Committee or Commission of Inquiry to go into this subject. + +The Minister of Health duly considered the representations made, and +appointed the following Committee to inquire into the question:-- + + The Hon. W. H. Triggs, M.L.C. (Chairman). + Sir Donald McGavin, Kt., C.M.G., D.S.O., M.D. (Lond.), F.R.C.S. (Eng.). + Sir F. Truby King, Kt., C.M.G., M.B., B.Sc. (Public Health) (Edin.). + J. Sands Elliott, Esq., M.D., Bac. Surg. (Edin.), Chairman of the + Council of the British Medical Association (New Zealand Branch). + Miss Ada G. Paterson, M.B., Ch.B. (N.Z.), L.M. (Dublin). + C. E. Matthews, Esq., Under-Secretary for Justice and Controller-General + of Prisons, &c. + J. Beck, Esq., Officer in Charge, Special Schools Branch, Education + Department. + +The function and duty laid upon the Committee was as follows:-- + + (1.) To inquire and report as to the necessity for special + care and treatment of the feeble-minded and subnormal, and to + propose the general means by which such care and treatment, if + any, should be provided. + + (2.) To inquire and report as to the necessity for the + treatment of mental degenerates and persons charged with + sexual offences, and to recommend forms of treatment for the + various types of cases. + +The Minister of Health expressed his desire that the Committee should +hear such evidence and representations on the above-mentioned matters as +might be necessary fully to inform the Committee on the questions +referred to it, and further suggested to the Committee that the various +organizations and persons likely to be interested should be notified +that the Committee would, at a certain place and date, hear any evidence +they might desire to tender. + +The following places were visited and inspected by the Committee: The +Myers Special School, Auckland; the Waikeria Prison Reformatory; the +Tokanui Mental Hospital, Waikeria; the New Plymouth Prison; the Boys' +Training-farm, Weraroa; the Point Halswell Reformatory for Women, +Wellington; the Special School for Girls, Richmond, Nelson; the Mental +Hospital, Nelson; the Mental Hospital, Stoke, Nelson; the Te Oranga +Home, Burwood, Christchurch; the Paparua Prison, Templeton; the Special +School for Boys, Otekaike; the Caversham Industrial Home for Girls, +Dunedin; the Borstal Institution, Invercargill. + +Sittings were held at various centres in New Zealand, and a large number +of witnesses were examined, as shown in the following table:-- + + -------------------------+------------------------------------------ + Places and Dates of | + Sittings. | Witnesses examined or Work done. + -------------------------+------------------------------------------ + Wellington, 23rd May, |Preliminary meeting. + 1924. (Forenoon only) | + Wellington, 30th May, |Dr. Clark, School Medical Officer, Napier. + 1924. (Forenoon only) |Mr. J. Caughley, M.A., Director of Education. + |Professor J. Tennant, Professor of Education, + | Victoria College. + Wellington, 2nd June, |Mr. N. R. McKenzie, Inspector of Schools, + 1924. (Forenoon only) | Education Department. + |Miss N. Valentine, Education Department. + |Miss Barlow, Education Department. + |Dr. Elizabeth Gunn, School Medical Officer, + | Wanganui. + Wellington, 4th June, |Mrs. McHugh, Health Patrol, Wellington. + 1924. (Afternoon only) |Father McGrath, representing His Grace the + | Archbishop of the Roman Catholic Church. + |Mr. T. P. Mills, Superintendent, Presbyterian + | Orphanage and Probation Officer. + |Dr. Jeffreys, Medical Superintendent, Porirua + | Mental Hospital. + Auckland, 11th June, |Dr. Hilda Northcroft } Representing the + 1924. |Dr. Kenneth MacKenzie } British Medical + |Dr. E. Roberton } Association, + | } Auckland Branch. + |Dr. Mildred Staley. + |Dr. J. R. Macredy, School Medical Officer, + | Auckland. + |Canon F. W. Young, Council of Christian + | Churches, Auckland. + |Dr. Fitt, Professor of Education, Auckland + | University. + |Mrs. Nicoll. + |Mrs. Watson. + Auckland, 12th June, |Dr. Milsom, representing the British Medical + 1924. | Association, Auckland Branch. + |Professor Anderson, Professor of Moral and + | Mental Philosophy, Auckland University. + |Mr. J. Cupit, Juvenile Probation Officer. + |Mr. W. E. A. Gibbs. + |Professor Sperrin-Johnson, Professor of + | Biology, Auckland University. + |Mr. H. Binstead, Lecturer on Psychology, + | Training School, Auckland. + |Rev. Jasper Calder. + |Mr. W. S. J. Dales. + |Dr. Wilkie, School Medical Officer, Auckland. + Auckland, 13th June, |Sister Hannah, representing the National + 1924. | Council of Women. + |Miss M. Girdler, St. Mary's Home, Otahuhu. + |Mr. C. W. Carter. + |Rev. T. K. Jeffreys, Presbyterian Social + | Service Association. + |Mr. J. W. Poynton, S.M. + |Mr. N. Law, Headmaster, Normal School. + |Dr. Beattie, Medical Superintendent, + | Auckland Mental Hospital. + |Dr. D. N. Murray, Prison Medical Officer. + |Visit of Inspection to the Myers Special + | School, Queen Street, Auckland. + Hamilton, 14th June, |Dr. Douglas. + 1924. |Dr. F. S. Pinfold. + |Mr. Phillip Goodwin, Juvenile Probation + | Officer. + Waikeria Reformatory, |Dr. H. L. Gribben, Superintendent, Waikeria + 15th June, 1924. | Reformatory, and Medical Superintendent of + | the Tokanui Mental Hospital. + |Dr. MacPherson, Tokanui Mental Hospital. + |Visit of inspection paid to Waikeria + | Reformatory and Tokanui Mental Hospital. + New Plymouth, |Miss Tootell, Boarding-out Officer, Wanganui. + 25th June, 1924. |Dr. R. C. Brewster, Gaol Surgeon, New + | Plymouth. + |Mr. E. T. Holden, Secretary, New Plymouth + | Hospital Board. + |Visit paid to New Plymouth Prison. + Otekaike, 2nd July, |Miss Wylie, Head Teacher of Special School. + 1924. |Mr. William Meikleham, Manager of Special + | School. + |Visit paid to Special School for Boys and + | Farm at Otekaike. + Dunedin, 3rd July, |Mrs. Joan Murray, representing Society for + 1924. | Protection of Women and Children. + |Dr. E. Irwin, School Medical Officer. + |Mr. J. Lock, Juvenile Probation Officer. + |Dr. A. M. McKillop, Superintendent, Mental + | Hospital, Seacliff. + |Dr. A. R. Falconer, Medical Superintendent, + | Dunedin Hospital. + |Mr. G. M. Galloway, representing the Society + | for Protection of Women and Children. + Invercargill, 4th July, |Mr. M. Hawkins, Inspector of the Prisons + 1924. | Department and Superintendent of the + | Borstal Institution. + |Mr. McCarroll, Juvenile Probation Officer, + | Education Department. + |Mr. Pryde, Secretary of the Hospital Board. + |Mr. McLean, Hon. Secretary of the Prisoners + | Aid Society. + |Visit of inspection paid to Borstal + | Institution and Farm. + Dunedin, 5th July, 1924. |Visit of inspection paid to Caversham + | Industrial School for Girls. + Dunedin, 7th July, 1924. |Dr. Marshall McDonald } Representing the + |Dr. Kenneth Ross } British Medical + | } Association, + | } Dunedin Branch. + |Miss Ralston, Inspector of Industrial and + | Special Schools. + |Dr. Stuart Moore. + |Mr. A. M. Paterson. + Christchurch, 9th July, |Dr. F. V. Bevan-Brown, representing the + 1924. | British Medical Association, Christchurch + | Branch. + |Dr. C. L. Nedwill, Prison Medical Officer. + |Miss Cardale, representing the National + | Council of Women. + |Dr. A. C. Thomson, representing the British + | Medical Association. + |Rev. P. Revell, Secretary, Prison Gate + | Mission. + |Mrs. Herbert. + |Miss Hunt, Superintendent, Addington + | Reformatory. + |Mr. J. A. Blank, Attendance Officer, + | Education Department. + |Miss Baughan, Official Visitor to the + | Addington Reformatory. + Christchurch, 10th July, |Dr. Crosbie, Medical Superintendent, + 1924. | Mental Hospital. + |Dr. Levinge. + |Mr. Gumming, Juvenile Probation Officer, + | Timaru. + |Mr. William Reece, member of the Prisons + | Board. + |Professor Chilton, Professor of Biology, + | Canterbury College. + |Mr. C. T. Aschman, Headmaster, Normal School. + |Miss Howlett, representing the National + | Council of Women and Women's Christian + | Temperance Union. + |Miss Edwards, Manager of the Receiving Home, + | Christchurch. + |The Hon. G. W. Russell. + |Visit of inspection paid to Te Oranga Home, + | Burwood. + Christchurch, 11th July, |Dr. Phillipps, School Medical Officer. + 1924. |Professor Shelley, Professor of Education, + | Canterbury College. + |Mr. A. Bissett, Juvenile Probation Officer, + | Christchurch. + |Visit of inspection paid to Paparua Prison, + | Templeton. + Wellington, 15th July, |Colonel Bray, Secretary, Men's Department, + 1924. (Forenoon only) | Social Service Work, Salvation Army. + |Canon T. Feilden Taylor, Social Service + | Department of Church of England. + |Professor Kirk, Professor of Biology, + | Victoria College. + |Mr. F. S. Shell, Juvenile Probation Officer. + Wellington, 16th July, |Dr. E. Fenwick, representing the British + 1924. (Forenoon only) | Medical Association, Wellington Branch. + |Mrs. Brigadier Glover, Salvation Army Prison + | Officer and Probation Officer. + |Miss Jean Begg. + |Mr. R. W. Bligh, White Cross League + | representative. + Wellington, 24th July, |Visit of inspection to Point Halswell + 1924. | Reformatory, Wellington. + Levin, 5th August, 1924. |Visit of inspection to Boys' Training Farm, + | Weraroa. + Nelson, 22nd August, |Dr. Gray, Superintendent, Mental Hospital, + 1924. | Nelson. + |Visit of inspection to Special School for + | Girls, Richmond. + |Visit of inspection to Mental Hospital, + | Stoke. + |Visit of inspection to Mental Hospital, + | Nelson. + Wellington, 9th |Consideration of report. + September, 1924. | + (Forenoon only) | + 12th September, 1924. | " + 15th September, 1924. | " + (Afternoon only) | + 16th September, 1924. | " + (Afternoon only) | + 22nd September, 1924. | " + (Afternoon only) | + 6th October, 1924. | " + (Forenoon only) | + 13th October, 1924. | " + (Forenoon only) | + 22nd October, 1924. | " + (Forenoon only) | + 24th October, 1924. | " + 28th October, 1924. | " + (Forenoon only) | + 29th October, 1924. | " + (Forenoon only) | + 5th November, 1924. | " + (Forenoon only) | + +It will thus be seen that, apart from time spent in travelling, the +Committee have met on thirty-five days and have heard ninety-two +witnesses in person. + +The Committee would like to express their thanks to the witnesses, many +of whom went to considerable trouble to collect information and prepare +evidence. They are especially grateful to the British Medical +Association for its willing co-operation and assistance; to the large +number of members of the medical profession throughout the Dominion who +responded to the Committee's request for information; to the authorities +overseas for their response to requests for information; and to many +other persons who by means of correspondence and literature have placed +at the Committee's disposal a large amount of information which has been +of material assistance in the investigation; also to the various +Hospital Boards throughout the Dominion who so willingly placed their +Boardrooms at the disposal of the Committee. + +Sir George Newman, the Chief Medical Officer of the Board of Education +and the Ministry of Health, England, very courteously supplied the +Committee with a valuable memorandum on the care of mental defectives in +England and Wales, while the Secretary of State for the United States, +through the good offices of the American Consul-General, Mr. Edwin N. +Gunsaulus, kindly forwarded information supplied by the United States +Public Health Service regarding the legislation and regulations in force +in various States where sterilization for eugenical purposes has been +legalized. + +Information of great value and interest has also been received from Dr. +E. S. Morris, Director of Health, Tasmania; from Dr. Helen MacMurchy, +Department of Health, Ottawa; and from Dr. Eric Clarke, Toronto, +Assistant Medical Director, Canadian National Conference for Mental +Hygiene. + +The Committee further wish to make special mention of the services +rendered by the Secretary, Mr. J. W. Buchanan, whose work has been very +heavy owing to the number of witnesses examined and the extent of ground +covered in a comparatively short time. This would not have been possible +but for the complete arrangements made by Mr. Buchanan, and the ability +and energy which he showed generally in the discharge of his duties left +nothing to be desired. + + +SECTION 2.--TWO DISTINCT QUESTIONS. + +Before proceeding to the subject-matter of the Committee's +investigations and the conclusions arrived at it is necessary to point +out as clearly and emphatically as possible that the questions submitted +to the Committee were entirely separate and distinct from each other. It +is true that a certain proportion of mental defectives show their lack +of self-control in regard to sex instincts and functions as in other +respects. This is particularly the case with mentally defective girls, +and constitutes one of the chief difficulties in dealing with them +satisfactorily. Some of this class find their way into prison on account +of sexual offences, but it is very far from correct to suppose that all +feeble-minded persons are sexual offenders, or that all sexual offenders +are mentally defective. On the contrary, among sexual offenders of the +worst type, those convicted of unnatural offences, are occasionally +found to be persons possessing intellectual and artistic powers above +the average. There is something wrong in their mental, moral, and +emotional balance, as will be pointed out in the proper place, but, as a +rule, it is not the "intelligence quotient" which is at fault. + + + + +PART II.--PROBLEM OF THE FEEBLE-MINDED. + + +SECTION 1.--A MENACE TO MODERN CIVILIZATION. + +The Committee are of opinion that the unrestricted multiplication of +feeble-minded members of the community is a most serious menace to the +future welfare and happiness of the Dominion, and it is of the utmost +importance that some means of meeting the peril should be adopted +without delay. The position is the more serious because, while the +feeble-minded are extraordinarily prolific, there is a growing tendency +among the more intellectual classes for the birth-rate to become +restricted. + +An American writer, Lothrop Stoddart, in his striking book entitled +"Revolt against Civilization," expresses the fear that the very +foundations of civilization are being undermined. He finds reasons for +great pessimism as regards the future in the results of the intelligence +tests taken in the American Army during the war. + +The American War Department made psychological tests of 1,700,000 +officers and men, who were graded as follows:-- + + Grade. Percentage. Mental Age. + + A 41/2 18-19 Very superior intelligence. + B 9 16-17 Superior intelligence. + C1 161/2 15 Average intelligence. (Rarely capable + of finishing high-school course.) + C-- 25 13-14 Low average intelligence. + D 15 11 Inferior intelligence. + D-- 10 10 Very inferior intelligence. + +Assuming that these 1,700,000 men are a fair sample of the entire +population of 100,000,000 (and Stoddart says there is every reason to +believe that it is a fair sample), this means that the average mental +age of Americans is only about fourteen; that 45,000,000, or nearly +one-half of the whole population, will never develop mental capacity +beyond the stage represented by a normal twelve-year-old child; that +only 13,500,000 will ever show superior intelligence; and that only +4,500,000 can be considered "talented." "Still more alarming," the +author continues, "is the prospect of the future. The overwhelming +weight of evidence indicates that the A and B elements in America are +barely reproducing themselves, while the other elements are increasing +at rates proportionate to their decreasing intellectual capacity; in +other words, that intelligence is to-day being steadily bred out of the +American population." + +The biologist Davenport calculated that at present rates of reproduction +1,000 Harvard graduates of to-day would have only fifty descendants two +centuries hence, whereas 1,000 Roumanians to-day in Boston, at their +present rate of breeding, would have 100,000 descendants in the same +space of time. + +Mr. Lothrop Stoddart emphatically scouts the view which is occasionally +put forward to the effect that genius is a form of insanity, and that +therefore one ought to be careful about discouraging the marriage even +of epileptics and mentally unbalanced persons for fear a possible +Napoleon or Julius Caesar or Beethoven should be lost to the world. +"Careful scientific investigation," he says, "has clearly disproved this +notion. For one thing, elaborate statistical studies of eminent persons +have shown them to be less liable to insanity than the general +population. Of course, a considerable number of eminent men can be +listed who unquestionably suffered from various neuropathic traits. But +it was not those traits that made them eminent; on the contrary, these +were handicaps. Somewhere back in their ancestry a taint was introduced +into a sound superior strain, and produced this disharmonic combination +of qualities." + + +SECTION 2.--HEREDITY _V._ ENVIRONMENT. + +The Committee feel bound to refer to the great strides made during the +last half-century towards establishing laws and theories of genetics and +heredity. Unfortunately, terms such as the "integrity of the germ plasm" +and "the Mendelian law," while marking great advances in biological +thought and science, have become too much associated in the public mind +with a depressing and fatalistic notion that heredity determines +everything and that environment can play but a very insignificant part +in human evolution, development, and progress--physical, mental, or +moral. Such, of course, is not the case. + +In ultimate origin all evolution and all heredity are the outcome, +summation, and expression of the effects of environmental influences, +acting on the whole organism under certain laws of transmission. The +laws of heredity, though as yet only partially determined, are already +sufficiently ascertained to prove for practical purposes that, in order +to promote integration and further progress in human evolution--not +disintegration and degeneration--two things are essential and +complementary. On the one hand, we must do everything possible in the +direction of improving the nutrition, health, conditions of life, and +habits of the community; and, on the other hand, we must promote and +encourage parenthood on the part of the best and stablest stocks, and do +everything in our power to discourage, or in the extreme cases even to +prevent, proliferation of unfit and degenerate strains. + +For the purpose of the present inquiry we need merely state as a +practical preliminary regarding heredity that it has been proved beyond +question that if two feeble-minded persons marry they will most probably +produce abundant offspring, of whom all may be subnormal, and a large +proportion will become a burden on the State; and that if one such +person is mated with a healthy individual an undue proportion of their +children are likely to prove degenerate or defective, and the +unsoundness will continue to make its appearance in succeeding +generations. + +While local evidence confirmatory of this came before the Committee, +first place will be given to certain classic and exhaustive +investigations and life-histories of degenerate families, going back +many generations, such as no young country could possibly supply. +However, the forcible and far-sighted report of the late Dr. Duncan +Macgregor (originally Professor of Mental Science at Otago University, +and subsequently Inspector-General of Asylums, Hospitals, and Charitable +Aid), quoted in the Appendix, shows clearly that some very degenerate +stocks imported into this country under the active immigration policy of +the "seventies" and "eighties" were already threatening, thirty-five +years ago, to become a serious tax on the country, as well as tending to +lower the high physical, mental, and moral standard established by the +original pioneers and settlers. + +We shall now revert for the moment to the environmental factor. The +first most pressing and immediate practical duty of the Government and +the community is to spare no pains to improve the status and environment +of the family so as to promote the highest attainable standard of +physical, mental, and moral health for the new generation--already in +our midst or bound to arrive in the course of the next few years. + +It is becoming more and more widely recognized that by due attention to +the pre-natal and post-natal care of mother and child an infinity of +good can be done--indeed, a great deal is already under way in this +direction throughout the Dominion. But the Committee are satisfied that +much more ought to be done to ensure for children of the pre-school and +school ages more generally favourable home conditions, and healthier +environment and habits outside the home. + +In the meantime it is obvious that very little can be effected in the +way of bettering the average heredity; but are we taking adequate +measures in the direction of improving the environment of mother and +child? The housing problem is still far from satisfactory; help in the +home can scarcely be procured, and the rearing and care of children +throughout the pre-school and school periods, in a large proportion of +cases, is neither conducive to a high standard of nutrition, growth, and +moral development, nor to the establishment of normal self-control, +especially as regards sexual habits and manifestations. The Committee +cannot ignore the fact that the leading medical and psychological +authorities lay it down as an axiom that the power of self-control is at +its highest when the individual is physically active, well-nourished, +and in perfect bodily health, and that impaired control always +accompanies impaired nutrition, debility, and disease. It has been said, +with profound wisdom and insight, that ultimately and fundamentally +reproduction should be regarded as essentially "an exuberant phase of +nutrition"; and there is no escaping the wide implication of Schiller's +aphorism that "Love and Hunger rule the World." + +In view of these considerations the Committee feel compelled to refer to +such serious handicaps to all-round health, control, and efficiency as +the prevalence of wrong feeding habits--_e.g._, giving children food +between meals and the insufficient provision of fresh fruit and +vegetables in the daily diet and the abuse of sweets. Other prominent +and avoidable handicaps, seriously affecting many children throughout +the Dominion, which ought to receive more serious attention are +insufficiency of sunlight and fresh air in the home and at school, +insufficient daily outing and exercise, lack of adequate provision in +the way of playgrounds and swimming-baths, and last, but not least, the +highly injurious practice of frequenting "picture-shows." + +As the Committee are called on to deal specially with the problem of +increasing manifestations of sexual depravity they cannot pass by the +fact that in the course of the last twenty years the younger members of +the community have been spending a steadily increasing proportion of +their time, during the most impressionable period of life, in what are +liable to prove forcing-houses of sexual precocity and criminal +tendencies. There is every reason for regarding the habit of "going to +the pictures" without adequate restrictions as contributing seriously to +precocious sexuality, and also to weakening the powers of inhibition and +self-control in other directions--powers which are the distinctive +attributes of the higher human being. + +Alongside these considerations, the bodily harm done to the young by +frequently spending their afternoons and evenings in hot, stuffy, +overcrowded halls shrinks into insignificance, though serious enough in +itself. + +The Committee endorses the opinions expressed by Education authorities, +and by practically every organization throughout the Dominion concerned +with the welfare of children, upon the harmful effect of moving-picture +shows as at present conducted. The Committee sympathizes with proposals +for reform along the following lines:-- + + (1.) Stricter censorship, not only of films, but of picture + posters, handbills, and advertisements. + + (2.) Regulations as to the age of admission for children when + unaccompanied by a responsible adult, and to such pictures as + are not pronounced by the Censor as suitable for children. + + (3.) Proper safeguards for the morals of children and young + persons within picture-theatres, including adequate + supervision of the premises. + +The Committee desire it to be clearly understood that in this report +they have not particularly dealt with mental disabilities resulting from +diseases such as syphilis, or toxic influences such as alcohol, drugs, +&c. These questions have already been covered to some extent by the +Report of the Venereal Diseases Committee, and in any case would involve +too wide a field of investigation for the present inquiry. + +An authoritative summary taken from this year's report of the Director +of the Division of School Hygiene is quoted in the Appendix as pointing +out most of the faults and mistakes in environment and upbringing to +which reference has been made, and because it draws special and +much-needed attention to the injurious effects of overwork and excessive +competition and the need for more sleep and rest. + +We would merely add to this very clear, practical statement that +encouragement of excessive competition, inside or outside the school, +for any purpose whatsoever, is costly and damaging to the whole being, +and that, in the opinion of the Committee, nothing needs to be impressed +more strongly on parents and school-teachers than Froebel's injunction, +"Give space and time and rest." + + +SECTION 3.--ILLUSTRATIVE CASES OF HEREDITARY DEGENERACY. + +_The Juke Family._ + +To show the close relationship existing between the criminal and the +psychopath the record of the so-called Juke family in America was +compiled by R. L. Dugdale. + +The descendants of one morbid couple were traced through five +generations. Whilst a small proportion were honest workers, the great +majority were paupers, criminals, and prostitutes. + +Of 540 Jukes practically one-fifth were born out of wedlock, 37 were +known to be syphilitic, 53 had been in poorhouses, 76 had been sentenced +to prison, and of 229 women of marriageable age 128 were prostitutes. +The economic damage inflicted upon the State of New York by the Jukes in +seventy-five years was estimated at more than $1,300,000, to say nothing +of diseases and other evil influences which they helped to spread. + +A more recent investigation shows that 2,820 people have been studied; +2,094 were of Juke blood and 726 of "X" blood married into the Juke +family; of these, 366 were paupers, while 171 were criminals, and 10 +lives have been sacrificed by murder. In school-work 62 did well, 288 +did fairly, while 458 were retarded two or more years. It is known that +166 never attended school; the school data for the rest of the family +were unobtainable. There were 282 intemperate and 277 harlots. The total +cost to the State has been estimated at $2,093,685. + + +_The Kallikak Family._ + +The history of the Kallikak family has been traced and fully described +in detail by Dr. Goddard, and his study shows the hereditary nature and +sociological bearings of feeble-mindedness. + +Martin Kallikak was a youthful soldier in the Revolutionary War. At a +tavern frequented by the militia he met a feeble-minded girl by whom he +became the father of a feeble-minded son. In 1912 there were 480 known +direct descendants of this temporary union. It is known that 36 of these +were illegitimates; that 33 were sexually immoral; that 24 were +confirmed alcoholics; and that 8 kept houses of ill-fame. The +explanation of so much immorality will be obvious when it is stated that +of the 480 descendants 143 were known to be feeble-minded, and that many +of the others were of questionable mentality. + +A few years after returning from the war this same Martin Kallikak +married a respectable girl of good family. From this union 496 +individuals have been traced in direct descent, and in this branch of +the family there were no illegitimate children, no immoral women, and +only one man who was sexually loose. There were no criminals, no keepers +of houses of ill-fame, and only two confirmed alcoholics. Again the +explanation is clear when it is stated that this branch of the family +did not contain a single feeble-minded individual. It was made up of +doctors, lawyers, judges, educators, traders, and landholders. + + +_New Zealand Cases._ + +But it is not necessary to go to the records of older countries to find +examples of this kind. Unfortunately, this young Dominion, whose history +as a European settlement is comprised within the lifetime of its oldest +inhabitants, is already reproducing some of the saddest problems of +civilization which perplex the people of the Old World. We started with +every advantage in the shape of a favourable climate and rich natural +resources. The original settlers were, for the most part, men and women +of sturdy determination, enterprising spirit, and strong physique. + +In the "seventies" a vigorous public-works policy was inaugurated, and +great efforts were made to introduce fresh population, the result being +that undoubtedly a great impetus was given to settlement, and the +country was fairly started on the road to prosperity. But, +unfortunately, it is now only too apparent that insufficient care was +taken in the selection of immigrants. + +The following extract from a statement made to the Committee by Sir +Robert Stout, Chief Justice, and President of the Prisons Board, +illustrates this point: "The Prisons Board has sometimes brought before +it several persons of one family who have offended against our laws, and +in the experience I had in 1884 and 1885, when looking after our +Hospitals and Charitable Aid Department in the General Government, I +found that people obtaining charitable aid had done so for three +generations; that is, grandfather, father or mother, and children were +all obtaining aid from the Government because they were unable to +maintain themselves. Some of the cases were traced, and it was found +that the grandfathers, or grandparents, had been originally in +poorhouses in the Homeland, and although they came to New Zealand and +had greater opportunities than they had in their Homeland, yet their +inability to provide for themselves continued." + +How serious the problem has already become will be seen from the +following illustrative cases selected from a large number given in the +evidence:-- + + _Case No. 1._ + +--------------------------------+ + | Father: | Mother: | + | Weak-minded. | Weak-minded. | + | | | + +----------+----------+----------+ + |Female, | + |born 1906.| + +----------+ + |Female, | + |born 1907.| + +----------+ + |Female, | + |born 1908.| + +----------+ + |Female, | + |born 1909.| + +----------+ + |Female, | + |born 1911.| + +----------+ + |Male, | + |born 1912.| + +----------+ + |Male, | + |born 1913.| + +----------+ + |Male, | + |born 1915.| + +----------+ + |Female, | + |born 1916.| + +----------+ + +All these children except one are feeble-minded, and when committed to +the care of the State were found living under deplorable conditions. +Most of these children will require lifelong control in an institution. +The total cost of maintaining this family will be approximately L9,500. +These children are cousins of another family under State control. There +are four children, two of whom are simple-minded. The mother is +feeble-minded, and the father died in a mental hospital. In this case +the mothers of the children are sisters. + + _Case No. 2._ + +----------------------------------+ + | Father: | Mother: | + | Feeble-minded. | Feeble-minded | + | | and drunkard. | + | | | + +---------+-------------+----------+ + |Female, | + |illegitimate,| + |born 1902. | + +-------------+ + |Male, | + |born 1904. | + +-------------+ + |Male, | + |born 1906. | + +-------------+ + |Male, | + |born 1907. | + +-------------+ + |Male, | + |born 1910. | + +-------------+ + |Male, | + |born 1912. | + +-------------+ + |Female, | + |born 1914. | + +-------------+ + |Female, | + |born 1916. | + +-------------+ + |Male, | + |born 1918. | + +-------------+ + |Male, | + |born 1920. | + +-------------+ + |Male, | + |born 1923. | + +-------------+ + +All these children are feeble-minded and have been brought under State +control shortly after birth. Some are now in mental hospitals and some +in special schools. All these children are lifelong custodial cases. The +cost to the State for maintenance is approximately L16,000, towards +which amount the father has contributed but L6. + + _Case No. 3._ + +----------------------------------------------------+ + | Father: | Mother: | + | Old-age pensioner in | Apparently weak mentally | + | Home for Aged People. | and morally--at present | + | | in reformatory home. | + | | | + +------------------+-------------------------+---------------------+ + |1. Female. | Female, Female, Male, | All these children | + | Prostitute | born born born | are illegitimate. | + | residing with | 1908. 1911. 1913. | Reputed father a | + | drunkard. | | drunkard and man of | + | | Male, | bad character. | + | | born 1915. | | + +------------------+-------------------------+---------------------+ + |2. Female. | Male, Male, Female, | All these children | + | Prostitute and | born born born | are illegitimate. | + | addicted to | 1907. 1910. 1912. | In most cases the | + | drink. | | father is unknown. | + | | Male, Female, | | + | | born 1914. born 1917. | | + +------------------+-------------------------+---------------------+ + |3. Female. | Male, Male, | Both illegitimate. | + | Immoral and | born 1911. born 1912. | Reputed fathers | + | generally bad | | well-known bad | + | character. | | characters. | + | Inmate of | | | + | private | | | + | reformatory. | | | + +------------------+-------------------------+---------------------+ + |4. Female. | Female, Female, | Mother married a | + | Indifferent, | born born | widower with three | + | married | 1908. 1912. | children. There are | + | criminal, now | | three more the | + | in prison. | Female, born 1916. | result of marriage | + | | | maintained by the | + | | | State. | + +------------------+-------------------------+---------------------+ + |5. Female. | Female, Female, | All delicate | + | Drunkard and | born born | neurotic types and | + | married a | 1898. 1900. | difficult to | + | drunkard | | manage. | + | although man | Female, Female, | | + | of good | born 1902. born 1905. | | + | education. | | | + | | Female, born 1908. | | + +------------------+-------------------------+---------------------+ + |6. Female. | Male, born 1910. | | + | Well-known | | | + | prostitute, | | | + | married member | | | + | of notorious | | | + | criminal | | | + | family, and | | | + | himself | | | + | criminal. | | | + +------------------+-------------------------+---------------------+ + +All these children, numbering twenty-one, were committed to the care of +the State, in most cases shortly after birth. Twelve of the children are +illegitimate. The husband of daughter No. 6 is also the father of one +each of the offspring of daughters Nos. 2 and 3. Most of the children +are delicate and poorly developed, and at least six of them are +definitely tubercular. The remainder are either neurotic or erratic in +their conduct and have given a great deal of trouble in their +upbringing. The total cost to the State for the maintenance of these +children may be quoted at L10,000, but of this amount L482 has been +recovered from the various men liable. It is difficult to assess the +State's total commitment. If some of the children have to be maintained +until they reach the age of twenty-one the additional cost will be +L3,000. There is the probability, too, that the offspring of these +children will become charges upon the State. + + _Case No. 4._ + +--------------------+---------------------+ + | Father: | Mother: | + | Addicted to drink | Drunkard and | + | and degenerate. | morally deficient. | + | | | + +------------------------------------+----------------+ + | | Female, | + | | born 1908. | + | +----------------+ + | | Male, | + | | born 1909. | + |All these children are illegitimate |Admitted special| + |and are feeble-minded, requiring | school, 1920. | + |lifelong control. Three are now +----------------+ + |inmates of mental hospitals, and | Female, | + |in time the remainder of the | born 1910. | + |family at present in special +----------------+ + |schools will be sent on to mental | Male, | + |hospitals. | born 1914. | + | +----------------+ + | | Male, | + | | born 1916. | + | +----------------+ + | | Female, | + | | born 1917. | + +------------------------------------+----------------+ + | | Male, | + | | born 1918. | + |All probably feeble-minded. +----------------+ + |Not yet brought under | Male, | + |State control. | born 1920. | + | +----------------+ + | | Male, | + | | born 1923. | + +------------------------------------+----------------+ + +An officer of the Education Department describes the home as "one of the +dirtiest and most squalid homes I have seen." The cost (including past, +present, and approximate future maintenance) to the State for the upkeep +of this family is estimated at L10,000. Nothing has been paid by the +parents towards the support of these children. In all probability, the +remaining members of the family will be brought under State control at a +probable cost of L4,500. + + _Case No. 5._ + +--------------------------------------------------+ + | Father: | Mother: | + | Drunken waster; | Feeble-minded helpless | + | subnormal; | invalid. Died shortly | + | frequently in gaol. | after children committed | + | | to care of State. | + | | | + +--------------------------------------------------+ + |Male, born 1904. | + |Tubercular. Partly | + |self-supporting. | + +------------------------+ + |Female, born 1907. | + |Tubercular. Suffers | + |from epileptic seizures.| + |Inmate mental hospital. | + |Lifelong custody. | + +------------------------+ + |Male, born 1909. | + |Subnormal. May in | + |time become partly | + |self-supporting | + |under favourable | + |conditions. | + +------------------------+ + |Male, born 1911. | + |Mentally deficient. | + |Case for lifelong | + |control. | + +------------------------+ + |Male, born 1913. | + |Mentally deficient. | + |Lifelong custodial | + |case. | + +------------------------+ + |Female, born 1914. | + |Feeble-minded and | + |badly nourished. Case | + |for permanent | + |segregation. | + +------------------------+ + |Male, born 1916. | + |Very backward. May | + |become partly | + |self-supporting | + |under favourable | + |conditions. | + +------------------------+ + +In 1916 the whole of this family was committed to the care of the State, +and at least six of them will be lifelong cases. The cost to the State, +computed up to twenty-one years in each case, is approximately L8,500, +but the additional future cost may easily be estimated at L5,000, making +in all the sum of L13,500. The father was ordered to pay at the rate of +15s. a week, but the amount recovered from him to date is only L156. + + _Case No. 6._ + +---------------------+-----------------------+ + | Father: | Mother: | + | Subnormal. Was a | Has always been | + | watersider, so | addicted to periodic | + | dirty in habits | fits of insanity. | + | that watersiders | Has been in mental | + | complained. A | hospital on several | + | sexual case. | occasions. | + | | | + +--------------------------------+----------------+ + | | Female, | + | | born 1904. | + | | Subnormal. | + | +----------------+ + | | Female, | + | | born 1909. | + |These four children were | Subnormal; | + |committed to the care of |also delinquent.| + |the state in 1917. +----------------+ + | | Female, | + | | born 1915. | + | | Subnormal. | + | +----------------+ + | | Female, | + | | born 1916. | + | | Subnormal. | + |--------------------------------+----------------+ + | | Unknown | + |Not yet brought under +----------------+ + |State control. | Unknown | + | +----------------+ + | | Unknown | + +--------------------------------+----------------+ + +The approximate cost to the State of maintaining these four children +will be L5,150, less what is recovered from the father. Up to the +present the amount received from him is L176. Should the other three +children be brought under State control, the additional cost may amount +to approximately L5,000. + +This is a glaring case of persons being allowed to marry who are totally +unfit to marry. A relative stated that the mother's mentality was in a +shocking state at the time of marriage. The father has always been +subnormal. The woman is too insane at times to attend to ordinary +household duties or matters of ordinary personal cleanliness. At the +time the children were committed the home was in a shockingly filthy +condition, and at that time was one of the worst brought under the +notice of the Department in the district. The second girl (age fifteen) +has had her hair cut for the sake of cleanliness by some kindly disposed +well-wisher. The mother allowed the dirt to accumulate to such an extent +that the whole of the girl's head was covered with a scab of dirt. She +had to enter the Hospital to have this removed. This was a most +objectionable case. After the State took charge of these children the +mother and father were still allowed to cohabit, with the result that +three more children have been born. Without doubt, these children will +also be supported by the State. The father is a sexual case, and +foster-parents of the children have objected to the father visiting them +on account of the way he handles them. + + +SECTION 4.--ELEMENTS OF THE PROBLEM. + +Wallen, in his book "Problems of Subnormality," draws attention to three +basic phases of the problem of the feeble-minded:-- + + "(1.) The obligation of society to identify and register as + early as possible all feeble-minded children. All students of + social problems will concede that feeble-mindedness is one of + the fundamental causes of our numerous social ills. It is a + prolific source of poverty, destitution, all kinds of crimes + against property and person, social immorality, illegitimacy, + and of prolific and degenerate progeny. + + "There are few problems in present-day constructive social + economics which are more important than the development of a + State-wide and a nation-wide policy for the compulsory + official identification and registration of feeble-minded + children, particularly all those who come from homes where the + conditions are not such as to guarantee continuous supervision + and support. + + "(2.) The proper educational care and training of + feeble-minded children. The adequate discharge of this + obligation involves segregating the feeble-minded in special + classes as soon as they can be indubitably diagnosed and + providing for them the type of training which will maximally + develop those powers and aptitudes which they possess and + which will maximally equip them for earning their livelihood. + + "(3.) Provision for continuous oversight and supervision over + the feeble-minded." + +It is clear that if we wish to reduce the number of mentally defective +and socially inadequate individuals we must not only consider measures +for preventing as far as possible the transmission of hereditary defect, +but must also provide for the youth of the country an environment and +training calculated to encourage the development of its best powers. +There is no doubt that unfavourable home conditions and unsuitable +educational methods conspire to keep many children from realizing their +full capabilities. This is especially true of the backward and +feeble-minded. It is, moreover, wasteful and ineffective to force on +children of poor mental receptivity and potentialities an educational +curriculum devised for those of normal mentality, since the subnormal +impede the general progress in an ordinary class, and in it they soon +form a discouraged minority which learns to accept failure +unquestioningly. Untrained to perform the simple work which is within +their power and in the achievement of which they might earn self-respect +and happiness, they feel themselves to be aliens, and may cease to +regard the laws of society in which they have no sense of membership. In +such cases the community which might have benefited from their work had +their potentialities been properly developed is burdened by their +maintenance, and, further, if they are not law-abiding, has also the +expense of segregating them in reformatories and gaols. Hence it is +clearly the duty of the State to adapt the educational curriculum to the +requirements of various groups of children. + +The child who has been handicapped by illness and lack of opportunity, +the child who is inherently dull and backward, must be distinguished +from the child with nervous instability or definite mental defect. +Wherever possible, the training suitable for various improvable types of +children should be arranged in connection with the ordinary public +schools. But the curriculum must be modified to suit the need of the +individual and should be directed with the object of making him a useful +member of society. By this means these pupils are not deprived of that +association with their normal fellows which is of such value as a +preparation for their after-life in the community. + +For children whose homes are unsuitable or too remote from centres, who +require more continuous supervision, or who tend to become delinquent, +special residential schools will be necessary. These schools would also +be used for those whose capabilities cannot be assessed without extended +expert observation for a considerable period. + +The special school is to be regarded as a training-centre for such +feeble-minded children as are expected as a result of the training +received there to be fitted to take a place in the community and to +perform useful work under adequate supervision. There is a danger of +filling the special schools with children whose poor mental endowment +renders them incapable of receiving benefit at all commensurate with the +energy and expense devoted to them. Such children are subjects for +custodial institutions. + +Institutional care is necessary for mentally defective persons whose +helplessness or anti-social traits would render them either the victims +of the unscrupulous or a menace to society. Such individuals should be +segregated in farm and industrial colonies, so that not only is the +community freed from the responsibility of their presence, but they +themselves are afforded opportunity of leading much happier and more +useful lives, and of becoming, to some extent, self-supporting. + +All feeble-minded children within the community, whether in special +classes, or on parole from an institution for the feeble-minded, or over +school age, should be carefully supervised. + +It is clear that the problem of making provision for the feeble-minded +and mentally abnormal in the community is first to be encountered in the +schools, though there must be considered also a much smaller number of +such low mental capacity that they have never sought admission there. + +In deciding the place of the feeble-minded in the community factors +other than the degree of mental defect have to be considered. Many +feeble-minded individuals are capable of performing useful work, and +provided they have no anti-social traits and can receive adequate care +outside their permanent inclusion in an institution is undesirable, not +only from consideration of their own well-being, but also from a social +and economic standpoint. Many feeble-minded individuals are so dependent +upon routine that having once been trained in the regular performance of +simple duties they find difficulty in breaking their methodical +programme. In this way their lack of initiative is really protective, as +it tends to keep them steadfastly at their labours. + +In the case of all feeble-minded persons living outside institutions, +whether with relatives or otherwise, the State should, in the interest +of both such feeble-minded individuals and of society, have the ultimate +right of supervision. + +The magnitude of the task to be undertaken cannot be estimated unless we +have some indication of how numerous are those for whom special measures +must be adopted. The information given below must not be too literally +interpreted, but will serve to throw some light upon existing conditions +in New Zealand. + + +SECTION 5.--ESTIMATES AS TO NUMBERS OF MENTAL DEFECTIVES. + +In the absence of a complete system of notification, which the Committee +consider is urgently necessary, any estimate as to the number of +feeble-minded to be dealt with must be largely a matter of conjecture. + +From the annual report of the Education Department, however, interesting +information is available showing the ages of the pupils in the several +classes of the primary schools. The following table is considered worthy +of reprinting in this report, for from the figures it supplies some idea +may be formed of the number of backward and feeble-minded children +attending primary schools. Children of extremely low-grade mentality do +not attend school as a rule, while feeble-minded children higher in the +scale, discouraged by the unsuitable course of instruction and lack of +sympathetic treatment, tend to leave school early. Hence the number of +feeble-minded children in any community must be considerably larger than +the school records indicate. + +The following table shows the ages of pupils in the several classes of +the primary schools. The numbers between the heavy horizontal lines +represent those that, beginning school under six years of age spend an +average of two years in the preparatory classes and one year in each of +the standards. The numbers above the upper heavy lines have progressed +at a greater rate than that indicated, and those below the lower lines +have either begun school later or have progressed more slowly. + +The most arresting feature in the table (p. 13) is the large number of +children in classes lower than should be expected at their age. Thus the +preparatory classes had 12,693 pupils over the age of eight years. This +number is certainly a considerable reduction on the total for the +previous year, but it still represents no less than 18 per cent. of the +total roll of those classes. Particular attention is being directed to +the problem of retardation, and in some of the larger centres special +classes for retardates have been established. + +It will also be seen that the actual number of children retarded three +years or more, including the preparatory classes and up to Standard +III--beyond which the higher grades of the feeble-minded do not progress +as a rule--is 4,917 out of a total of 212,709 children attending school, +or a trifle over 2 per cent. In some countries three years' retardation +is regarded as _prima facie_ evidence of mental deficiency. Probably New +Zealand has much the same proportion of mental defectives as other +countries. This is stated by Goddard to be between 2 and 3 per cent. of +the population. + +A recent survey made by the Education Department of the children +attending the primary schools in a typical area disclosed the fact that +out of a total school population of 16,499 no fewer than 950 pupils, +constituting 5.7 per cent. of the total school enrolment, are retarded +two years or more. Some of these may be classed as dull normal; some may +be suffering from remediable physical defects; others may be merely the +victims of unfavourable circumstances, while others again may be what +Burt calls "late bloomers"--_i.e._, cases of slow development. Many of +them, however, will ultimately prove to be mental defectives. Deficiency +sometimes does not reveal itself definitely until the pre-adolescent +period or early adolescence. + +Of the total number on the school registers 266, or 1.6 per cent., are +retarded three years or more. It is interesting to note from information +supplied by Mr. N. R. McKenzie, Inspector of Schools, that this is +exactly the percentage of defectives discovered in the schools of a +section of the city of Toronto as the result of a psychological survey. +It also corresponds with the number in the Vancouver city schools, where +nineteen special classes are operating with a school population of +19,000--_i.e._, one class per 1,000 pupils. + +For the purpose of this report a preliminary survey from information +supplied by social workers, school-teachers, police, Hospital Boards, +&c., has been made by the Education Department of what may be regarded +as the obviously feeble-minded and epileptic cases known to exist +outside institutions in the Dominion. + +The following figures show the number of such cases reported, but these +figures are incomplete--the actual number must be greater:-- + + At 24th June, 1924. + + Feeble-minded. Epileptic. + + Age. Male. Female. Male. Female. + + Under sixteen years 524 285 41 43 + Over sixteen years 305 203 35 31 + ___ ___ __ __ + 829 488 76 74 + + _Recapitulation._ + + Males 905 + Females 562 + _____ + 1,467 + +_Table showing Ages of Pupils in the several Classes of the Primary +Schools._ + + +---------------+---------------+---------------+---------------+ + | | Class P. | Standard I. | Standard II. | + | Ages. +-------+-------+-------+-------+-------+-------+ + | | Boys. | Girls.| Boys. | Girls.| Boys. | Girls.| + +---------------+-------+-------+-------+-------+-------+-------+ + |5 and under 6 | 7,923 | 7,334 | .. | .. | .. | .. | + | | | | | | | | + |6 " 7 |10,776 |10,356 | 73 | 72 | 3 | 2 | + | | | | | | | | + |7 " 8 |10,324 | 9,291 | 2,021 | 2,047 | 111 | 141 | + | |================================ | | + |8 " 9 | 4,970 | 4,183 = 5,696 | 5,413 = 1,729 | 1,884 | + | | | ================================| + |9 " 10 | 1,400 | 1,118 | 4,443 | 3,732 = 5,011 | 5,152 | + | | | | | ================| + |10 " 11 | 393 | 277 | 1,657 | 1,162 | 4,210 | 3,624 | + | | | | | | | | + |11 " 12 | 112 | 107 | 487 | 383 | 1,814 | 1,461 | + | | | | | | | | + |12 " 13 | 54 | 30 | 146 | 91 | 628 | 425 | + | | | | | | | | + |13 " 14 | 18 | 13 | 51 | 24 | 201 | 125 | + | | | | | | | | + |14 " 15 | 7 | 5 | 10 | 9 | 58 | 42 | + | | | | | | | | + |15 " 16 | 2 | 1 | 2 | 6 | 12 | 6 | + | | | | | | | | + |16 " 17 | 1 | .. | 1 | 2 | .. | 2 | + | | | | | | | | + |Over 17 | .. | .. | .. | 1 | .. | .. | + +---------------+-------+-------+-------+-------+-------+-------+ + |Totals (1923) |35,980 |32,715 |14,587 |12,942 |13,777 |12,864 | + +---------------+-------+-------+-------+-------+-------+-------+ + + +---------------+---------------+---------------+---------------+ + | Standard III. | Standard IV. | Standard V. | Standard VI. | + |-------+-------+-------+-------+-------+-------+-------+-------+ + | Boys. | Girls.| Boys. | Girls.| Boys. | Girls.| Boys. | Girls.| + +-------+-------+-------+-------+-------+-------+-------+-------+ + | .. | .. | .. | .. | .. | .. | .. | .. | + | | | | | | | | | + | .. | .. | .. | .. | .. | .. | .. | .. | + | | | | | | | | | + | 3 | 1 | .. | .. | .. | .. | .. | .. | + | | | | | | | | | + | 113 | 135 | 3 | 2 | .. | .. | .. | .. | + | | | | | | | | | + | 1,447 | 1,531 | 102 | 66 | .. | 4 | 1 | .. | + |================ | | | | | | + | 4,570 | 4,749 = 1,311 | 1,439 | 82 | 108 | 6 | 4 | + |================================ | | | | + | 4,202 | 3,827 = 4,166 | 4,214 = 1,123 | 1,202 | 93 | 95 | + | | ================================= | | + | 2,268 | 1,860 | 3,890 | 3,515 = 3,540 | 3,664 = 1,020 | 1,064 | + | | | | ================================| + | 935 | 669 | 2,129 | 1,764 | 3,766 | 3,271 = 3,255 | 3,277 | + | | | | | | ================| + | 235 | 139 | 790 | 500 | 1,848 | 1,499 | 3,101 | 2,883 | + | | | | | | | | | + | 36 | 26 | 148 | 81 | 532 | 349 | 1,454 | 1,010 | + | | | | | | | | | + | 8 | 6 | 11 | 13 | 61 | 30 | 194 | 114 | + | | | | | | | | | + | 1 | .. | .. | 3 | 8 | 8 | 25 | 13 | + +-------+-------+-------+-------+-------+-------+-------+-------+ + |13,818 |12,943 |12,550 |11,597 |10,960 |10,135 | 9,149 | 8,460 | + +-------+-------+-------+-------+-------+-------+-------+-------+ + + +---------------+-----------------+ + | Standard VII. | Totals. | + |-------+-------+--------+--------+ + | Boys. | Girls.| Boys. | Girls. | + +-------+-------+--------+--------+ + | .. | .. | 7,923 | 7,334 | + | | | | | + | .. | .. | 10,852 | 10,430 | + | | | | | + | .. | .. | 12,459 | 11,480 | + | | | | | + | .. | .. | 12,511 | 11,617 | + | | | | | + | .. | .. | 12,404 | 11,603 | + | | | | | + | .. | .. | 12,229 | 11,363 | + | | | | | + | .. | 1 | 11,997 | 11,290 | + | | | | | + | 3 | 3 | 11,549 | 10,652 | + | | | | | + | 20 | 42 | 10,375 | 9,185 | + |===============| | | + | 34 | 47 | 6,083 | 5,124 | + | | | | | + | 23 | 37 | 2,209 | 1,516 | + | | | | | + | 3 | 15 | 279 | 182 | + | | | | | + | 1 | 3 | 35 | 28 | + +-------+-------+--------+--------+ + | 84 | 148 |110,905 |101,804 | + +-------+-------+--------+--------+ + + +SECTION 6.--STUDY OF FEEBLE-MINDED AND DELINQUENT CHILDREN. + +_Methods employed in other Countries._ + +In many parts of America and in some European countries the problem of +the mentally backward and feeble-minded child receives close attention. +The juvenile delinquent is also carefully studied. For children who fail +to make good in school, or who are guilty of frequent misdemeanours, a +system of intelligence testing and psychological analysis is carried +out. A study is also made of family history and environmental +influences. Children who are "maladjusted to their environment" are kept +under survey with a view to finding what is the difficulty and how it +can be overcome. To quote from the "Mental Hygiene Bulletin," published +by the National Committee for Mental Hygiene for the United States of +America: "Children showing definite problems are selected for more +intensive study and treatment. The grossly mentally handicapped child, +who is likely to become a social problem if not properly dealt with in +childhood; the psychopathic and mentally maladjusted child, who later in +life may develop mental disease; the child manifesting conduct disorders +which may be the beginning of a delinquent or criminal career; the +retarded child; the epileptic; the child with speech-defect or with some +physical disability; the child with gross personality difficulties; the +exceptionally brilliant child--all present problems that demand +attention during the child's school life. Such children are given a +thorough physical examination, a careful psychiatric study, and an +individual psychological examination, including a variety of +psychological tests, not only to determine the child's intelligence +rating, but, in so far as possible, his special abilities and +disabilities. A social study is made of the child's home, school, and +other environments to determine what factors may have unfavourably +influenced the development of the child, and what forces may be utilized +in securing the child's adjustments. The results of all these studies +are given to the school authorities with recommendations relative to the +needed adjustments." + +In New Zealand there is need of increased facilities for the study of +the individual child, and the services of psychological experts should +be available in order to group children according to their mental +equipment and special requirements. Only those fully qualified to +estimate accurately all the evidence available are fitted to decide the +destiny of children. + +Herein lies the danger of relying exclusively upon the use of mental +tests. + +_Mental tests_ are of definite value in enabling the observer to arrive +at a conclusion regarding the general mental development of the subject, +or to investigate some particular psychological function. A too +exclusive dependence upon the result of the application of these tests, +especially by a layman, would invariably lead to error. A comprehensive +survey is necessary, taking into consideration such factors as family +history, environment, physical condition, behaviour, temperament, &c. +The observation, possibly for a considerable period of time, of an +expert psychiatrist or psychologist may be necessary in order to arrive +at an accurate estimate of the mental ability of the subject. + +In this regard we quote from Tredgold, "Mental Deficiency": "There are, +however, very many exceptions, particularly when we are dealing with the +milder grades of deficiency, so that if serial tests are depended upon +for the diagnosis of these cases they may be, and often are, very +fallacious. I may say here that although it would, of course, be +extremely valuable if we could devise tests which would accurately +measure mental capacity, particularly that capacity and those qualities +which are needed for social adaptation and maintenance, we have not yet +succeeded in doing so. The mental factors which may be involved in this +capacity for social adaptation, and which render the individual in need +of care, supervision, or control, are many and varied, and there is even +some danger that too much reliance upon serial tests may distract from +the adequate investigation of these qualities and defects and lead to +totally erroneous conclusions." + +There is no doubt, however, that in the hands of competent observers +properly applied tests afford information of great value in assessing +mental and moral capacity, but the observer must be competent. + + +SECTION 7.--METHOD OF DEALING WITH MENTAL DEFECTIVES IN NEW +ZEALAND. + +_Present Legal Provision for Notification and Education of Feeble-minded +Children, and for Care of Custodial Feeble-minded Adults and Children._ + +The Education Act, 1914, contains provision (see section 127) for the +establishment of special schools for the education and training of +afflicted children (deaf, blind, feeble-minded, and epileptic) between +the ages of six and twenty-one years, with provision in the case of +inmates of special schools for extension of the period of detention +where it is considered necessary in the public interest. For the +purposes of this Act,-- + +"'Feeble-minded child' means a child who, not being an idiot or imbecile +or otherwise a proper person to be sent to an institution under the +control of the Mental Hospitals Department, and not being merely +backward, is by reason of mental or physical defect incapable of +receiving proper benefit from instruction in an ordinary school, but is +not incapable by reason of such defect of receiving benefit from +instruction in a special school." + +"'Epileptic child' means an epileptic child who is unfit by reason of +severe or frequent epilepsy to attend an ordinary school, but is not +idiot or imbecile or otherwise a proper person to be sent to an +institution under the control of the Mental Hospitals Department." + +Section 127: "(2.) It shall be the duty of the parent of any ... +feeble-minded or epileptic child to provide efficient and suitable +education for such child." + +"(3.) If the parent of such child fails to provide such education for +such child, or is deemed by the Minister to be unable to provide such +education, the Minister may direct that such child be sent to such +special school or other institution for the education of feeble-minded +or epileptic children as he thinks fit." + +Section 129: "Every parent, teacher of a school (either public or +private), constable, or officer of a charitable or kindred institution +who is aware of the place of residence (either temporary or permanent) +of a blind, deaf, feeble-minded, or epileptic child, and the householder +in whose house any such child resides, shall send notification of the +fact to the Minister, giving name, age, and address of the child; and if +any such person neglects or fails to comply with this provision, such +person shall on conviction thereof be liable to a fine not exceeding one +pound, or in the case of a second or subsequent offence, whether +relating to the same or another child, not exceeding five pounds." + +Section 56: "Every public school shall be organized and conducted in +accordance with regulations (a copy of which shall be conspicuously put +up in the school): Provided that the Minister may, on the application of +the Board, sanction the establishment of special classes for backward +children--that is, children who, through physical infirmity, absence +from school, or otherwise, are below the average standard of education +reached by other children of the same age." + +The Mental Defectives Act, 1911, divides mentally defective persons into +six classes, as under:-- + +"'Mentally defective person' means a person who, owing to his mental +condition requires oversight, care, or control for his own good or in +the public interest, and who, according to the nature of his mental +defect, and to the degree of care, oversight, or control deemed to be +necessary, is included in one of the following classes:-- + + "_Class I:_ Persons of unsound mind--that is, persons who, + owing to disorder of the mind, are incapable of managing + themselves or their affairs. + + "_Class II:_ Persons mentally infirm--that is, persons who, + through mental infirmity arising from age or decay of their + faculties, are incapable of managing themselves or their + affairs. + + "_Class III:_ Idiots--that is, persons so deficient in mind + from birth or from an early age that they are unable to guard + themselves against common physical dangers, and therefore + require oversight, care, or control required to be exercised + in the case of young children. + + "_Class IV:_ Imbeciles--that is, persons who, though capable + of guarding themselves against common physical dangers, are + incapable, or if of school age will presumably, when older, be + incapable, of earning their own living by reason of mental + deficiency existing from birth or from an early age. + + "_Class V:_ Feeble-minded--that is, persons who may be capable + of earning a living under favourable circumstances, but are + incapable from mental deficiency existing from birth or from + an early age of competing on equal terms with their normal + fellows, or of managing themselves and their affairs with + ordinary prudence. + + "_Class VI:_ Epileptics--that is, persons suffering from + epilepsy." + +This is similar to the classification in the English Mental Deficiency +Act, which also includes the following definition:-- + + "'Moral imbeciles'--that is, persons who from an early age + display permanent mental defect, coupled with strong criminal + or vicious propensities, on which punishment has little or no + deterrent effect." + +In the opinion of the Committee it is very important that a similar +definition should be included in any amendment of the New Zealand Act. + +A Magistrate may order the committal to an institution of any person +coming within these definitions if he is satisfied that such person is +mentally defective and two medical men give a certificate to that +effect. Persons coming under the description in Classes I, II, III, or +IV are committed to the mental hospitals, but there seems to be +considerable reluctance both on the part of medical practitioners to +certify and of Magistrates to commit to a mental hospital epileptics and +those described as "feeble-minded." Evidence was given before the +Committee to the effect that there would not be the same disinclination +to send these classes of patients to a special institution such as a +farm colony or an industrial colony. + +Apart from the residential special schools, special classes have been +established in connection with public schools in each of the large +centres of population throughout the Dominion with promising results. + +The Committee visited the special classes in one of the centres, and +were impressed with the sympathetic attitude of the teachers towards +their scholars and the happy appearance of the children, who seemed to +be keenly interested and busy over their appointed tasks. + +There is as yet no special provision in New Zealand for the education of +epileptic children. Fortunately, the number of these is apparently +small, but, as in many cases it is undesirable for them to attend the +ordinary classes of the elementary schools, the question of arranging +for their tuition otherwise requires earnest consideration. + +Following on legislative authority contained in the Education Act +already referred to, provision for feeble-minded children, within the +meaning of the Act, was made by establishing the special school at +Otekaike, near Oamaru, with accommodation for 195 boys, and some years +later a similar institution was opened at Richmond, near Nelson, with +provision for about eighty girls. + +These institutions contain two separate divisions, providing for--(1) +The training of children of school age, and (2) the instruction of young +persons over school age in handicraft and farm-work. + +Both institutions have modern and well-equipped day schools with trained +women teachers, and at Otekaike the industrial division is provided with +workshops and instructors in trades and handicrafts. + +The children are housed in modern and well-appointed cottage homes, each +with accommodation for thirty-five, and are supervised by selected women +attendants. + +The Committee visited and inspected both Otekaike and Richmond, and were +very favourably impressed with the healthy environment and careful +management of these institutions, and with the humane and sympathetic +methods adopted for the purpose of making the best of imperfect human +material. + +At both places physical exercises, musical drill, and organized games +form an important part of the training, and the teachers deserve +commendation for the efficiency of the pupils in these respects and +their general appearance of physical fitness. + +Moral training and training in habits of personal cleanliness and prompt +obedience form an important part of the curriculum, and the effects are +noticeable in the quick movements and alert attitude of the inmates. The +girls at Richmond receive training in domestic work, needlework, +knitting, darning, &c., according to their ability. + +The children are taught various kinds of handiwork, and by grouping them +according to mental capacity they are given a school course modified to +suit the individual. In the industrial division at Otekaike, baskets, +sea-grass furniture, and all kinds of wickerware and coir mats are well +made, and are readily sold. Bootmaking and repairing for the institution +are also carried out by certain of the inmates under a practical man. +Attached to Otekaike there is an area of land where farming, gardening, +and fruitgrowing absorb most of the labour of the older inmates. + +At Richmond the area of land available for cultivation is limited, but +even so it occurred to the Committee that something more might possibly +be done in the direction of providing congenial and profitable work for +the older girls, as, for instance, the growing of flowers for sale in +the Wellington markets. + +At Otekaike, after training, the best types of the older inmates are +placed out, usually with farmers in the district, and for the most part +are leading useful lives under the supervision of the local Juvenile +Probation Officers of the Education Department. + +The matter of placing out girls from the school at Richmond is obviously +one of much greater difficulty. + +At both Otekaike and Richmond there is a growing group of custodial +cases, due to the fact that in many instances the parents or guardians +are either unable to provide proper protective measures for the children +if released, or are unsuitable in other ways to have the control of +them. On the other hand, there is reluctance on the part of medical +practitioners to certify such cases for a mental hospital. It is very +desirable, of course, that the special schools should be used as +trying-out places for children whose mental equipment is questionable, +but where after a reasonable trial it is evident that merely custodial +care is required there should be some simple method of passing them on +to farm colonies or suitable custodial homes. + +As a matter of fact, the school at Richmond has its full complement of +pupils, and as many cases have now to be refused admission it is +urgently necessary that other provision should be made, especially for +the older girls needing custodial care. + +Mention should also be made of a visit paid by the Committee to the +industrial school at Caversham, which deals with girls and young women +who have failed to make good when placed out under supervision in the +community. There is a small clothing-factory attached to the +institution, which provides useful employment for certain of the +better-type girls. It is stated that, even under present conditions, +which are not altogether satisfactory, the majority of the Caversham +girls benefit from the training they receive to such an extent that they +can be trusted to earn their living in the community under supervision. + +The Committee, however, are of opinion that the buildings and site are +most unsuitable for such an institution. Little level space is available +for recreation purposes, the property is overlooked at the back, and the +location and general plan of the buildings are such that the utmost +vigilance has to be exercised. For the inmates belonging to the +reformatory section it is considered that such an institution should be +situated in the country with sufficient suitable land to permit of +gardening and farming on a small scale. This would afford healthful +occupation for the inmates and contribute towards their support. Such an +institution should be so situated as to be readily accessible from all +parts of the Dominion. + +In the matter of the admission of young offenders over sixteen years of +age to the Caversham Industrial School, and also to the Boys' +Training-farm at Weraroa, the Committee found that in these cases the +Courts have no authority to commit direct, but must first sentence the +young person to imprisonment and then recommend transfer to an +industrial school. Such a system is not only cumbersome, but is +fundamentally wrong, and should be remedied as soon as possible. The +Courts should have discretionary powers to commit any young offender +under eighteen years of age direct to an industrial school. + +At Caversham there is a small proportion of the inmates who should be +transferred to a Borstal institution. This refers to the so-called +"over-sexed" girl, and the girl with strong anti-social proclivities, +who should be confined to an institution where there is provision for +segregation and treatment of refractory cases. In many instances these +young women should be kept under control for a considerable period. Many +are hopelessly immoral, and in the interests of society should not be +allowed their liberty. + +That section of the Caversham institution comprising children committed +to the care of the State on account of destitution or unsuitable +conditions in their homes would be better provided for in a separate +receiving home. This would be in accord with the practice obtaining in +all the other centres. + +The Education Department deals with all children committed to the care +of the State for causes varying from destitution to delinquency. The +procedure is for the police to charge the children and for the +Magistrate to commit them to the nearest receiving home, where they are +kept under observation, trained in proper habits, and so forth, and as +soon as possible, if they exhibit no anti-social traits, placed out in +selected foster-homes. The Department holds the view, shared by leading +authorities, that home life, however humble, provided the foster-parents +are suitable people, is better than institution life for the majority of +the children who are cast on the State for sustenance and protection. +The supervision of these cases, and the selection of employment for them +when they become old enough, are carried out by the nurses, Managers of +receiving homes, and Juvenile Probation Officers of the Education +Department. Several of these officers gave valuable evidence in the +course of this inquiry. These officials not only look after the welfare +of the children brought under State control, but also carry out a great +deal of preventive work in the way of advising parents and supervising +children, who by their timely and kindly intervention are saved from +coming within the scope of the law. + + +SECTION 8.--CHILDREN'S COURTS. + +Several witnesses before the Committee pointed out the need for the +establishment of special Courts for children and juveniles. + +The Committee recommend that such provision be made, and also that +clinics be established providing for the physical and psychological +examination of all children coming under the jurisdiction of these +Courts. The fuller knowledge thus acquired would be extremely valuable +to the authorities dealing with the children. + +Many countries have recognized this need and have established properly +constituted Courts for dealing with children and juveniles as apart and +distinct from Police Courts. + +In this connection it is surprising to find that New Zealand is lagging +behind in that in the laws relating to the punishment of crime hardly +any distinction in procedure is made between the child and the adult. It +is true, of course, that a practice has grown up whereby children are +dealt with in the Police Courts at a time apart from the hearing of +adult cases, but the procedure of the Criminal Court has been +retained--_i.e._, the young delinquent is charged with an offence, is +required to plead, and if found guilty is liable to conviction. In the +majority of such cases the charges are for minor offences and are dealt +with summarily, but a child charged with an indictable offence and +remanded to the Supreme Court for trial or sentence may in the interim +be detained in prison. + +By arrangement between the Departments concerned most of the cases of +children and juveniles are investigated by the Juvenile Probation +Officer of the Education Department prior to the hearing, but these +officers have no legal standing in any Court, and are not even empowered +to bring a destitute child before a Magistrate for committal to the care +of the State. This function must be carried out by a police constable. + +The Children's Court, as it is constituted in other countries, is a +Court of equity, and its principal function is to consider all children +brought before it as cases requiring protection and care. It is the +business of the Court, by means of careful investigation in each case of +conduct, school history, family history, and mental condition, to +ascertain, if possible, the reason for misconduct, and either to +eliminate or modify the causes, or to remove the child from the +environment that has contributed to its present condition. + +The presiding Magistrates are usually selected on account of their +experience with children and knowledge of child psychology. In some of +the Courts in America women are selected for these positions. + +It is common knowledge that lack of mental balance, retardation, and +physical defect are responsible for much juvenile delinquency, and it is +therefore essential that if the children appearing before the Courts are +to be dealt with in a scientific manner there should be provision on the +lines recommended above. + + +SECTION 9.--POLICY FOR THE FUTURE. + +It seems to the Committee that the Dominion has now come to the parting +of the ways in this matter, and unless the multiplication of the +feeble-minded is to be allowed to go on in an ever-increasing ratio, +with consequences dreadful to contemplate, the problem must be dealt +with on broader lines, and in a more comprehensive fashion. + +In the first place, a comprehensive system of notification is essential +so that a register as complete as possible may be made of the cases to +be dealt with. + +The English Commission for Inquiring into the Care and Control of the +Feeble-minded, whose report appeared as far back as 1908, laid down the +basic principles of a sound policy in dealing with this question. Their +first principle was that persons who cannot take a part in the struggle +for life owing to mental defect should be afforded by the State such +protection as may be suited to their needs. Their next principle was +that the mental condition of these persons, and neither their poverty +nor their crime, is the real ground of their claim for help from the +State. Their third principle was that if the mentally defective are to +be properly considered and protected as such it is necessary to +ascertain who they are and where they are. + +This, of course, is the object of the system of registration to which we +have referred. + +Lastly, the English Commission held that the protection of the mentally +defective person, whatever form it takes, should be continued as long as +it is necessary for his good. + +These principles appear to us to be quite sound, and we have no +hesitation in adopting them. + + +_Proposed Eugenic Board._ + +In regard to the method of compiling the register, some excellent +suggestions were made by Dr. Theodore Grant Gray, Medical Superintendent +of the Nelson Mental Hospital. He proposed, first, that a Government +Department or sub-department should be created to deal with all +feeble-minded and mentally defective persons living outside +institutions. It would deal not only with the feeble-minded, but it +would act the part of a Government "after-care association," in that it +would keep in touch with all persons discharged from mental hospitals. +One of its duties would be to keep a register of all feeble-minded, +epileptic, and mentally defective persons living outside institutional +care. Dr. Gray further suggests that the register should be compiled in +the following manner:-- + + (1.) It would be a statutory duty of all School Medical + Officers to report to the Department the names of all + feeble-minded or epileptic children in their districts. + + (2.) It would be the duty of the District Education Board to + report any child of school age who was not attending school + because of feeble-mindedness or epilepsy. + + (3.) It would be the duty of the Superintendent, owner, or + licensee of every hospital, private hospital, industrial + school, or reformatory prison to notify the Department upon + the admission of any person suffering from feeble-mindedness + or epilepsy. + + (4.) It would be the duty of the Superintendent of every + mental hospital to notify the name of every person discharged + from a mental hospital. + + (5.) It would be the duty of every Judge or Magistrate in all + cases brought before him in which there appears to be mental + enfeeblement or epilepsy to call to his assistance an + alienist, and, if the report is confirmatory, to order such + person's name to be placed upon the register. + +N.B.--In the case of sections 1, 2, and 3 the Department would apply to +a Magistrate for an order to register the person concerned. In section 4 +the process would be automatic. + + * * * * * + +The Committee consider the machinery suggested for the purpose of +compilation of the register very suitable, subject to such modifications +as may be found necessary in practice, but have come to the conclusion +that it would be preferable for many reasons to keep cases of this kind, +as far as possible, free from Courts, a large part of whose work +consists in trying persons charged with criminal offences, and to follow +the plan which seems to be working very well in several American +States--namely, to set up a Board of experts to deal with these cases. + +The Board, which might be called the Eugenic Board, should be a central +Board associated with a special Department or sub-department, of which +the head should be a man of sufficient personality, energy, and +organizing-power to grapple effectively with this question--first, by +taking the necessary steps to compile a reasonably exhaustive register, +and afterwards, by co-ordination with cognate Departments or by +independent departmental action, to build up the necessary machinery to +provide for the care, segregation, supervision, or treatment of the +class with which his Department is required to deal. + +The compilation of the register is a departmental matter, but +legislative authority will be necessary, to provide for compulsory +notification and to prescribe the means. A well qualified departmental +officer should at once be detailed to take this matter in hand and +formulate from the evidence given to the Committee and from other +sources of information the method and means of obtaining complete +registration. + +The first step towards the formation of the Board should be the early +selection and appointment of a thoroughly trained and experienced +psychiatrist. Irrespective of the necessity for the employment of such a +man as the scientific member of the proposed Board, the Committee are of +opinion that the Departments of Health, Mental Hospitals, Prisons, and +the Special Schools Branch of the Education Department are at present +suffering from the lack of expert advice in this direction, and that it +is high time the Government had in its service at least one trained +psychological expert, with recourse to the services of other men with +similar training in the four centres. + +The Eugenic Board should be vested with power to examine all cases +notified and, after due investigation, to place on the register-- + + (1.) Such persons as in its judgment come within the + definition in the Mental Deficiency Act of feeble-minded; + + (2.) Persons afflicted with epilepsy associated with + automatism or other conditions rendering them especially + liable to dangerous, immoral, or otherwise anti-social + manifestations, and in the case of juvenile epileptics the + mere frequency of fits rendering them unsuitable for + attendance at ordinary schools; + + (3.) Moral imbeciles as defined in the English Mental + Deficiency Act; and + + (4.) Persons discharged from mental hospitals. + +It should be the function of the Board to order or recommend to the +Minister the segregation, supervision, or treatment of the different +classes. Cases receiving adequate care in their homes would not, of +course, be interfered with. + +The Eugenic Board, of course, should have power to remove any name from +the register if it is of opinion that there is no longer any need for +registration. There should be the right of appeal to a Judge of the +Supreme Court against the decision of the Board to place a person on the +register, and there should also be power to apply to a Judge for the +removal of the name from the register in cases where the Board declines +to do so. These provisions should, it is considered, effectively +safeguard the liberty of the subject. + +The machinery necessary to deal adequately with this vital +question--vital in its influence on the purity of our race--must be +somewhat extensive, but use should be made as far as possible of +existing governmental and private agencies and organizations. + +The work requires organization, and the first essential is, therefore, +the appointment of an organizing head. Unless such an appointment is +soon made the matter will drift. The heads of the existing Departments +of State under whom such an organization might be placed have already +more business to handle than they can comfortably overtake. Some one +must be selected to specialize on this work and this work alone. + +The question naturally arises as to the Department of State to which the +proposed sub-department for the care of the feeble-minded might best be +attached. In the judgment of the Committee the education of +feeble-minded children should be continued by the Education Department, +which has evolved a very successful system and is administering it well. +After everything possible has been done in the matter of education a +large proportion, as they grow up, will be quite unable to hold their +own in the world, and for their own protection and safety, and in the +interests of society, must be cared for in some institution, where they +may be kept usefully occupied in gardening or farming, or in some +handicraft which will serve to keep them in health and help to recoup +the State some part of the cost of their maintenance. It is, of course, +most essential that they should not be allowed to reproduce their kind, +thus further enfeebling and deteriorating the national stock, adding to +the burden of the community and to the sum of human misery and +degradation. "To produce but not to reproduce" sums up the best scheme +of life for these unfortunates. + +Looking at all the circumstances of the case, it appears to the +Committee that it would be better if the compilation of the register, +the provision of the farm and industrial colonies, and the after-care of +adult feeble-minded patients coming under Classes V and VI and "moral +imbeciles" were entrusted to a special branch of the Mental Hospitals +Department. It is essential that the feeble-minded shall be kept +separate from the insane, while the feeble-minded themselves, of course, +require careful classification. + +It is very important that marriages with registered persons should be +made illegal, and, as a corollary to this, that it should be made an +indictable offence for any person knowingly to have carnal knowledge of +a registered person. It should also be provided that any parent or +guardian who facilitates or negligently allows any registered person to +have carnal intercourse with another person shall be guilty of an +indictable offence. + + +SECTION 10.--THE QUESTION OF STERILIZATION. + +A question which has given the Committee much anxious thought is as to +whether sterilization should be adopted as a method of preventing the +propagation of the feeble-minded. That it would be an effective method +as regards the persons operated on goes without saying. The operation of +vasectomy in the case of males is a very simple one, which may be +performed with the aid of a local anaesthetic, and may be said for all +practical purposes to be unattended by any risk to the patient. In the +case of women a similar operation on the Fallopian tubes, which is known +as salpingectomy, is an abdominal operation and cannot be said to be +entirely free from danger, although it is not regarded as very serious. +Except for the prevention of fertility, the operation does not interfere +with the sexual powers of the patient and has little or no effect on +sexual desires. It has been stated that a process of sterilization by +means of X-rays can be applied to either sex. The only evidence +available, however, shows that this method is still in the experimental +stage, and the Committee, for this reason, cannot recommend it, +especially as there is a danger that it might damage the cells producing +the internal secretions which influence the secondary sexual +characteristics and so injuriously affect the general health and +mentality. + +Several States in America have passed laws providing for the +sterilization of persons in State institutions who are--(1) Insane, (2) +feeble-minded, (3) criminalistic. + +In some of the States an appeal was made to the Supreme Court, and, the +law being pronounced unconstitutional, no attempt was made to enforce +it. In other States the law has been allowed to become a dead-letter. Up +to the 1st January, 1921, the latest date dealt with by the most +recently published work on the subject, there have been 124 State +institutions legally authorized to perform operations for sterilization, +of which thirty-one have made more or less use of their authority, while +ninety-three have not. The total number of operations performed up to +the date mentioned was 3,233, divided into classes as follows: +Feeble-minded, 403; insane, 2,700; criminalistic, 130. Of this total of +3,233 operations the State of California contributed no less than 2,538, +and in this State a single institution (the State Hospital for the +Insane at Patton) is responsible for no fewer than 1,009 cases. A Bill +introduced in 1924 into the Senate to legalize sterilization of mental +defectives, &c., was rejected. + +Dr. H. H. Laughlin, of the Psychological Laboratory of the Municipal +Court of Chicago, has devoted several years to the study of this +question, and has recently published the result of his researches in a +book entitled "Eugenical Sterilization in the United States." He +publishes the texts of all the laws past and present, gives his idea of +a model sterilization law, together with the necessary forms for putting +it into effect. He also deals with the physiological and mental effects +of sexual sterilization. A reviewer of his book, writing in the _Journal +of Heredity_ of October, 1923, states forcibly the case for the +opponents of sterilization. He expresses the opinion that "The release +of sterilized individuals with feeble inhibitions or anti-social +tendencies is the equivalent to the creation of so-many new and virulent +foci of venereal diseases and promiscuity." + +Furthermore, the Central Association for Mental Welfare of Great +Britain, which was formed in 1913 to act as a co-ordinating and +representative body on all questions affecting mental defectives and +their relations to the community, not long ago referred the question to +their standing Medical Committee, who gave the considered opinion that +"sterilization at the present time is not a practical proposition." + +The Committee of the Central Association being in complete agreement +with this view, the Association decided not to advocate the policy of +sterilization, because they consider that it would have only a limited +influence in preventing the increase of mental deficiency, that it would +be attended with certain harmful results in other directions, and +because its adoption is impracticable. The Association's statement on +this subject goes on to say: "It is very important to remember that +although propagation by defectives is one of the causes of mental +deficiency, nevertheless this is by no means the only social menace +attaching to their presence in the community. If left unguided and +unprotected, their lack of stability and control may lead them to commit +serious crime, such as theft, arson, assault, and even murder. Their +inability to maintain economic independence results in vagrancy and +destitution. Their helplessness in the face of obstacles frequently +brings about their complete collapse at the first rebuff which they have +to meet. The interest of the community can only be adequately protected +by the segregation of a considerable proportion of these persons in +suitable institutions. A sterilized defective would not be any less +liable to these happenings than would one who was unsterilized. A +defective woman, from the fact of her being sterilized and incapable of +bearing children, would be more prone to illicit intercourse, to adopt a +life of prostitution, and to spread venereal disease. It follows that +segregation would still be needed in the case of a very large proportion +of defectives, but, if they are segregated, sterilization is +unnecessary. On the other hand, there can be very little doubt that any +general adoption of sterilization would, in actual practice, lead to the +non-segregation of a large number of defectives who should be under care +and thus to an increase of the foul evils mentioned." + +Having thus stated the arguments against sterilization the Committee +must now present the other side of the question. + +In the first place, it is evident that, as far as the United States is +concerned, the extension of sterilization of the mentally defective has +received a grave set-back by reason of the declaration of the Supreme +Court of the United States that the laws in certain States permitting +sterilization are unconstitutional. This ruling, of course, does not +apply to New Zealand. + +Further, opponents of sterilization ask to be shown its good results; +but obviously the results cannot emerge in one generation or in a +comparatively short space of time, but only in the ultimate lessening of +the proportion of mental defectives in the community by diminishing the +hereditary supply. + +There is no doubt also that much confusion exists in the minds of the +public as to the meaning of sterilization and desexualization or +castration. The process of sterilization, as has been shown, involves +only a simple and safe operation and has the sole effect of preventing +reproduction. Sterilization, therefore, should not be loaded with the +objections which apply to the far-reaching effects of castration. The +former, unlike the latter, is not prone to produce harmful effects upon +the mind or morals of the sterilized individual. + +The assertion that "sterilization at the present time is not a practical +proposition" is difficult to understand. It is certainly practicable, +and is as likely to be favoured as opposed by public opinion, especially +that section of the public that understands the difference between +simple sterilization and desexualization. As regards the suggestion that +sterilization may lead to new foci of venereal disease, it must be borne +in mind that the unsterilized feeble-minded are already prone to sexual +promiscuity, and there is no evidence that sterilization would increase +this tendency. The opponents of sterilization offer as an alternative +only permanent segregation to prevent the transmission of mental defect. +It is evident, however, that the cost of the segregation of all mental +defectives capable of reproducing other mental defectives would be +exceedingly heavy. The Committee advocates powers of segregation and of +sterilization, these powers to be placed in the hands of the Eugenic +Board, under proper safeguards and the right of appeal. + +Sterilization in suitable cases is not a high price to pay for liberty. +There are in our mental hospitals to-day men and women who suffer from +recurrent insanity, who are admitted to the mental hospitals from time +to time and discharged when they are better, and in the intervals +between their admission cohabit with their wives or husbands, as the +case may be, and bring more defective children into the world. If +discretionary power were given to the Board as suggested it should, and +no doubt would, be exercised cautiously and tentatively. + +Sterilization gives the patient liberty to do useful work in the +community, is less drastic than segregation for life, and on the whole a +much slighter interference with the rights of the individual, which are +surely subordinate in such cases to the rights of the State. + +There are, of course, numbers of mental defectives who can never be +allowed their liberty, and in the case of these the question of +sterilization need not be considered. There are many cases of mentally +defective girls, liberated from institutions in New Zealand for the +purpose of engaging in domestic service or other work, returning +afterwards the mothers of illegitimate children, probably also mentally +defective. Unless such are to be maintained for years as wards of the +State in institutions, should they ever again be allowed their liberty +unless they undergo the operation of sterilization? + +This is the question: Can the propagation of mental defect by mental +defectives and the debasing of the race thereby be greatly checked if +not completely prevented? The answer is assuredly, Yes, by segregation +and by sterilization. + +The Committee recommends that both methods be placed in the hands of the +Eugenic Board, with powers to discriminate as to which method is the +more suitable for each individual case. The two methods are +complementary, not antagonistic, and suitable safeguards for the liberty +of the subject are provided. + +The Committee recommends that the Eugenic Board should be given the +power in suitable cases to make sterilization a condition of release +from any of the institutions under the charge of the Department of +Mental Hospitals or removal of their names from the register on +probation, but that in no case should the operation be performed without +the consent of parents or guardians of the persons concerned. + +The Committee consider that the persons so operated upon and liberated +should be released on probation and kept under supervision for a +reasonable period, and that they should be returned to institutional +care if found to be leading an immoral life, or unable to support +themselves, or for any other reason which the Eugenic Board may consider +sufficient. + +If the recommendation as to sterilization being authorized under the +conditions specified is adopted, the Committee think it would be +advisable to introduce some provision as in the American Acts, making it +unlawful to perform operations whose object is the prevention of +reproduction in cases not authorized by the Board unless the same shall +be a medical necessity. + + +SECTION 11.--SEGREGATION. + +It will be neither possible nor desirable to segregate all mental +defectives. Feeble-minded children who are receiving adequate care and +training in their own homes will, of course, be left there. When they +reach the age of adolescence the question of their disposal should be +considered by the Board. In many cases the inmates of special schools, +after they have received some training, would do well if returned to +their homes or boarded out in selected foster-homes under supervision. + +The real difficulty arises, especially in the case of girls, when the +age of adolescence is reached. + +In the opinion of the Committee it is of the utmost importance that +mental defectives should be prevented from reproducing. No person who +has been placed on the register should be allowed to marry until the +Eugenic Board has given its consent by removing the name from the +register. + +It is altogether wrong to suppose that there is any unkindness in taking +the feeble-minded, who are unable to battle for themselves, under the +care of the State and preventing them from bringing forth another +generation of defectives. The real unkindness consists in allowing such +unfortunates to be brought into the world. + +In school, and still more in the after-struggle for existence, the +feeble-minded find themselves the butts of their fellows, and the +"inferiority complex" thus developed tends to make them sink lower in +the scale both in intellect and morals. + +"On the other hand, it is the general experience of those who have had +many years' practical experience with defectives that the majority are +far happier in suitable institutions engaged in congenial occupations, +and having the companionship of their mental equals, than when they are +exposed to the difficulties of an outside world to which they are +incapable of adapting themselves. In many cases, indeed, such freedom +amounts to the infliction of positive cruelty." + +This statement is taken from the memorandum of the Central Association +for Mental Welfare of Great Britain, to which reference has already been +made, and this Committee can, from their own observation, endorse the +views thus expressed. + +It seems desirable, however, to point out the fallacy of a popular idea +that the world could easily stamp out defectives and degenerates by +merely adopting a vigorous policy of segregation and sterilization. Even +if it were possible by these means to prevent all manifest mental +defectives from reproducing, it cannot be expected that this class will +be thereby eliminated from the population, since mental defectives may +be the offspring of apparently normal stocks, or may be descended from +stock in which only minor manifestations of impaired nervous vitality, +such as instability, eccentricity, &c., have hitherto been evident, and +in a large proportion of cases they are no doubt the progeny of persons +belonging to the higher grade of distinctly degenerate stock--persons +who have not themselves necessarily shown any marked traits of +instability or degeneracy, and to whom therefore sterilization or +segregation would be inapplicable. + + +SECTION 12.--THE QUESTION OF EXPENSE. + +It will probably be objected that the plan for cutting off as far as +possible further additions to the mental defectives of the Dominion will +involve increased expenditure. This is, unfortunately, the case; but +will it not be a much more costly process to allow the present +unrestricted multiplication of these defectives to continue in an +ever-increasing ratio? If they are allowed to multiply, their +unfortunate offspring will have to be provided for in one way or +another--some by means of charitable aid, some in our prisons, some in +our mental hospitals. Take the case of the defective couple, case No. 4, +page 9, themselves in receipt of charitable aid, who have already +produced eleven children, all of whom are being provided for by the +State, while, as the couple are still living together and the woman is +still of child-bearing age, it is quite possible that the total may yet +be increased. This family, it is estimated, will cost the State at least +L16,000. Will any one seriously contend that it would not have been +sound economy if this couple had been taken in the first instance, +placed in separate farm colonies where they would have lived fairly +useful lives, and been prevented from casting such an excessive burden +on the State? We might take each of the cases quoted in an earlier part +of this report, and many others which we have not quoted, and ask the +same question in regard to each. There is no doubt whatever that from +the purely financial point of view it is very much to the interest of +the community that this problem should be taken boldly in hand at once +while the evil is within fairly manageable proportions, instead of +allowing it to grow into an intolerable burden. + +Consider the humanitarian aspect. Surely it is a kindly act to give the +protective care of the State to those unfortunate persons who are unable +to hold their own in the struggle for existence, and who, if left to +their own devices, will fall miserably by the way and in many cases +become a menace to society. + +Lastly, there is the national question to be considered. Surely it is +important that our stock should be kept as sound and virile as possible, +and that where a process of deterioration has been detected every +attempt should be made to stop it as soon as possible and by every means +in our power. + + +SECTION 13.--IMMIGRATION. + +The Committee feel very strongly that any attempt to check the +multiplication of mental defectives in the Dominion will to a large +extent be labour thrown away if the greatest care is not at the same +time taken to prevent the introduction of feeble-minded and other +undesirable persons from overseas. The distance of New Zealand from +Europe and the cost of the long passage have on the whole had a +selective influence on the character of the immigrants and tended to +keep up the standard of quality. As already mentioned, however, serious +mistakes were made in the "seventies" of last century. Very striking +testimony to this effect is contained in the report of the late Dr. +Macgregor, Inspector-General of Hospitals and Charitable Institutions, +presented in 1888, an extract from which appears in the Appendix of this +report. In the brief space of fifteen years the dire consequences of the +mistakes made in previous immigration without due regard to its quality +had already become apparent, and in the most impressive terms Dr. +Macgregor, who was an exceedingly able and far-sighted public servant, +pointed out that the evil done by the introduction of an undesirable +class of immigrant is never finished. + +"The impaired health, low morality, and insanity descend to the +offspring, and are a continued drain upon this community." + +The benefit of a well-regulated stream of immigration into this country +is not open to question. A substantial addition to our population is now +more than ever needed if this country is to progress and its resources +are to be developed sufficiently to enable it to bear with ease the +heavy burden imposed on the community by the Great War. The point which +it is desired to emphasize is that constant vigilance is necessary to +keep up the standard of quality of the new-comers in view of the very +natural desire to send off to a new land those who are physically or +mentally unable to maintain themselves in the land of their birth. Such +vigilance, it need hardly be pointed out, is especially necessary at the +present time when the volume of immigration is greatly increased owing +to the condition of affairs in the Mother-country. + +As a matter of fact, there seems no doubt that immediately after the +conclusion of the war the system of control and medical inspection was +not so strict as it should have been, especially in the case of the +Imperial Government's overseas settlement scheme for ex-service men and +women. The New Zealand Government, however, sent Home an officer from +the Immigration Department to rectify matters and to provide for a more +thorough examination of assisted immigrants. + +Under the system at present in force a special roster of medical +referees has been compiled, and no person is accepted as an assisted +immigrant without a certificate of physical and mental fitness from one +of these doctors. The medical examiner, in the instructions, is +particularly requested "To satisfy himself that the applicant is in +every way a fit subject to pass a thorough medical examination, as +applicants are liable to rejection both at the port of embarkation and +at the port of arrival." Finally, the doctor is required to sign the +following statement: "Having read and made myself conversant with the +instructions contained in Form KA supplied me, I certify that I have +this day examined the above-named, and am of the opinion that ---- +is in ---- health and of sound constitution. ---- is not suffering from +any mental or bodily defect which in my opinion would unfit ---- for +earning ---- own living as a ----." + +The form provides for a very complete examination, but as regards +certain conditions, especially previous mental diseases, the examiner is +necessarily dependent on the statements of the applicant. + +The Committee were informed that New Zealand has now the reputation with +the Imperial authorities of being the hardest and most exacting of all +Dominions regarding the health and physical fitness of immigrants. + +The Committee think that, in addition to the precautions already taken, +inquiry should be made, as far as may be possible, into the family and +personal history of assisted immigrants, particularly as to whether they +disclose any cases of insanity, epilepsy or feeble-mindedness, crime, or +dependence on charitable aid. + +The Committee are further of opinion that the time has now arrived when +closer supervision should be exercised over those persons who come as +ordinary passengers with the intention of remaining in the Dominion. + +The Immigration Restriction Act, 1908, provides that "When any passenger +arriving on board any ship is either lunatic, idiotic, deaf, dumb, +blind, or infirm, and is likely to become a charge upon the public," the +owner, master, or charterer of the ship shall be required to enter into +a bond in the sum of L100 for every such passenger, the person entering +into the bond and his sureties being bound to pay to the Minister all +expenses incurred within the space of five years for the maintenance of +such passenger. + +Under the Act the following are made "prohibited immigrants":-- + + "(_b._) Any idiot or insane person." + + "(_c._) Any person suffering from a contagious disease which + is loathsome or dangerous." + + "(_d._) Any person the date of whose arrival in New Zealand is + earlier than two years after the termination of any offence + which, if committed in New Zealand, would be punishable by + death, or imprisonment for two years or upwards, not being a + mere political offence, and no pardon having been granted." + +By Order in Council tuberculosis is gazetted as a contagious disease +which is dangerous within the meaning of the Act, and syphilis and +leprosy are contagious and loathsome diseases within the meaning of the +Act. + +To any one who has seen a medical inspection of passengers arriving in +an overseas vessel it is obvious that any degree of feeble-mindedness +short of manifest imbecility or dementia would be liable to be admitted, +and a good many cases of tuberculosis escape detection. Other countries +are now alive to the importance of greater care being taken to guard +against the admission of these who are likely to lower the mental and +physical standard of the race, and in the opinion of the Committee +stricter precautions should be taken in New Zealand. The smallness of +this country makes it all the more important that it should be occupied +and developed by a selected population, while its attractiveness as a +field of settlement and the limited amount of land available place it in +a position of independence in which it is able to insist on the +maintenance of a high standard of fitness on the part of those desiring +to share in its advantages. + + +SECTION 14.--SUMMARY OF FINDINGS AND RECOMMENDATIONS. + +The Committee find-- + + (1.) That the unchecked multiplication of the feeble-minded + and epileptic is leading to a continually growing addition to + the sum of human misery, an ever-increasing burden on the + State, and the serious deterioration of the race. + + (2.) That it would be sound economy, as well as in the best + interests of humanity, to deal with the problem at once, even + though it involve a substantial expenditure. + +The Committee therefore recommend: + + (1.) That to the definitions in the New Zealand Mental + Defectives Act, 1911, there should be added a further + definition--namely, that of "moral imbecile" contained in the + English Act. + + (2.) That a special branch of the Mental Hospitals Department + be established to deal with all classes of mental defectives + who are not inmates of mental hospitals, and to act as an + "after-care" Department to look after patients discharged from + mental hospitals. + + (3.) That a Eugenic Board be appointed, to include a skilled + psychiatrist, another member of the medical profession, and to + be presided over by a Magistrate as Chairman. + + (4.) That the duty of the Department shall be to keep a + complete register of persons coming under the following + definitions in cases where the Eugenic Board has decided that + the patients in their own interests or in the interests of + society should be placed on the register:-- + + (_a._) Mental defectives who are not inmates of mental + hospitals who in the judgment of the Eugenic Board come within + the definition of "feeble-minded" in section 2, Class V, of + the Mental Defectives Act, 1911. + + (_b._) Persons afflicted with epilepsy associated with + automatism or other conditions rendering them especially + liable to dangerous, immoral, or otherwise anti-social + manifestations, and in the case of juvenile epileptics the + mere frequency of fits rendering them unsuitable for + attendance at ordinary schools. + + (_c._) Moral imbeciles as defined in the English Mental + Deficiency Act, 1913. + + (_d._) Persons discharged from mental hospitals. + + (5.) That the care of backward and feeble-minded children, so + long as these remain in an educable stage, shall be the duty, + as at present, of the Education Department. + + (6.) That the Education Department obtain the services of + psychological experts with a view to creating a comprehensive + system providing increased facilities for the study of the + individual child in school, for the classification of children + according to their mental capacities, and for the adaptation + of the curriculum to the needs of special children. This may + necessitate the establishment of an increased number of + special classes, an extension of the residential special + schools, and also provision for social readjustment of the + children when required. + + (7.) That fuller provision be made in connection with our + Universities and training colleges for the education of + teachers in child psychology and its practical application, + and for their training for service in special classes and + special schools. + + (8.) That full use be made of residential special schools for + those cases who fail to benefit by attendance at special + classes, but who are considered capable of training in manual + work or handicrafts. The lower grades of the feeble-minded who + require merely custodial care should, as a general rule, be + excluded from special schools, but where there is any doubt as + to a child's degree of mentality or aptitude for manual + training admission to a special school for a probationary + period should be arranged. + + (9.) That the Education Department shall report to the Eugenic + Board those inmates of special schools found incapable of + receiving benefit from further residence in such schools, and + the Eugenic Board shall be empowered to place on the register + such as they consider should be so dealt with. + + (10.) In regard to those on the register, the Eugenic Board + shall have the power to order the removal of feeble-minded + persons and moral imbeciles to a farm or industrial colony to + be provided for the care and training of such persons. + + (11.) That any person alleged to be feeble-minded, or the + parents or guardians of such person, shall have the right of + appeal to a Judge of the Supreme Court against the placing of + his or her name upon the register, and the parents or + guardians of any person on the register shall have the right + to apply to a Judge of the Supreme Court for the removal of + the name of such person from the register, or for his or her + release from any institution established under the Act. + + (12.) The Committee recommend the establishment of farm or + industrial colonies where feeble-minded or delinquent persons + who are custodial cases may be usefully and, as far as + possible, profitably employed, and where they may receive the + care and protection required by their condition. + + (13.) In regard to sterilization, the Committee find that the + operation of vasectomy in men can be carried out under local + anaesthesia, and is free from risk. The analogous operation of + salpingectomy in women is an abdominal operation, but the risk + is not considered serious. These operations are effective in + preventing procreation, but do not otherwise interfere with + the sexual powers of the patient. In the case of persons + suffering from recurrent insanity or idiopathic epilepsy, + high-grade morons, and others who in the interests of + themselves and of society ought not to be allowed to + reproduce, but who do not for other reasons require custodial + care, it is desirable that the operation of sterilization + should be considered by the Eugenic Board. + + (14.) The Committee recommends that the Eugenic Board should + be given the power in suitable cases to make sterilization a + condition of release from any of the institutions under the + charge of the Department of Mental Hospitals, or removal of + their names from the register on probation, but that in no + case should the operation be performed without the consent of + parents or guardians of the persons concerned. + + (15.) The Committee consider that the persons so operated upon + and liberated should be released on probation and kept under + supervision for a reasonable period, and that they should be + returned to institutional care if found to be leading an + immoral life, or unable to support themselves, or for any + other reason which the Eugenic Board may consider sufficient. + + (16.) The Committee consider that marriage with any registered + person should be made illegal, and that it should be an + indictable offence for any person to have carnal knowledge of + any registered person. It should also be provided that any + parent or guardian who facilitates or negligently allows any + registered person to have carnal knowledge of another person + shall be guilty of an indictable offence. + + (17.) In view of the fact that feeble-minded persons and + others likely to become a burden on the community have in the + past been introduced from overseas, the Committee recommend + that, in addition to the precautions already taken in regard + to assisted immigrants, inquiry should be made into the family + history, especially as to whether it discloses any cases of + insanity, epilepsy, or feeble-mindedness, and that applicants + unable to produce satisfactory evidence on this point should + be excluded. The Committee are further of the opinion that + closer supervision should be exercised over persons who come + as ordinary passengers with the intention of remaining in the + Dominion. + + + + +PART III.--SEXUAL OFFENDERS. + + +SECTION 1.--SCOPE AND ORIGIN OF THE INQUIRY. + +The second section of the order of reference requires the Committee "To +inquire and report as to the necessity for the care and treatment of +mental degenerates and persons charged with sexual offences, and to +recommend forms of treatment for the various types of cases." + +The Committee's finding and recommendation in regard to the "care and +treatment of mental degenerates" who have not been charged with criminal +offences are embodied in the first part of this report. + +The origin of the inquiry, in so far as it concerns the care and +treatment of mental degenerates and sexual offenders who appear before +the Courts, is to be found in the resolution of the Prisons Board first +appearing in their annual report for the year 1920 and repeated in their +reports for 1921 and 1922. + +The resolution is as follows:-- + +"Whereas an increasing number of sexual offences has been the subject of +frequent and serious judicial comment, especially in cases where young +children were the victims, or the very serious nature of the charge +connoted a perversion dangerous to the moral well-being of society; and, +as the experience of the Board in dealing with prisoners of this class +accords, as far as it goes, with the now generally accepted opinion +that, with certain exceptions, persons committing unnatural offences +labour under physical disease or disability, or mental deficiency or +disorder, or both, which accounts for the sexual perversion and the +morbid character of the offence charged: It is resolved by the Prisons +Board strongly to recommend to the Government an amendment of the Crimes +Act under which such offenders could be dealt with scientifically-- + + "(1.) Before sentence is pronounced, by furnishing expert + medical or surgical reports or evidence: + + "(2.) By sanctioning an indeterminate sentence: + + "(3.) By segregating persons so sentenced and subjecting them, + under proper safeguards, to any medical or surgical treatment + which may be deemed necessary or expedient either for their + own good or in the public interest." + +The repeated occurrence of gross offences of the character described by +the Prisons Board, both before and since the Committee commenced its +sittings, has focussed public attention more strongly upon the +necessity for immediate action in regard to the more adequate treatment +of this class of degenerate than upon the much larger and relatively +more important class of mental defective covered by the first section of +the order of reference. + +The bulk of the evidence heard by the Committee and practically the +whole of the information obtained from various sources bore more +particularly upon the question of the care and prevention of the +propagation of the mentally defective part of the population coming +under the general designation of "feeble-minded." While, however, the +evidence obtained regarding the prevalence of sex offences and the care +and treatment of the offenders was not great in volume, it was eminently +practical in character. Apart from this, the flagrant cases reported in +the daily Press during the past few months in connection with the +Supreme Court Sessions in the various centres offer sufficient proof of +the necessity for some drastic amendment of the law on the lines +suggested by the Prisons Board. + + +SECTION 2.--SERIOUSNESS OF THE EVIL. + +That the order for an inquiry into this question was by no means +premature was made apparent to the Committee by the presentation at its +first sitting of a return furnished by the Prisons Department, which +appears in the Appendix to this report, page 30, showing the number of +sexual offenders of the various classes who were actually serving +sentences on the 10th May, 1924. The total number of the sexual +offenders in the prisons of the Dominion on that date was 185. This +number represented 17.273 per cent. of all the prisoners then in +custody. Unfortunately, this percentage has since been increased by +recent commitments of cases of the most serious types. + +A return compiled by the Government Statistician (Mr. Malcolm Fraser) +shows that during the five years, 1919-1923, there were 331 persons +sentenced in the Supreme Court for sexual offences as follows: Rape, 5; +attempted rape, 19; indecent assault on a female, 150; indecent assault +on a male, 50; unlawful carnal knowledge, 49; attempted unlawful carnal +knowledge, 18; incest, 17; unnatural offence, 23: total, 331. + + +SECTION 3.--TYPES OF OFFENCES. + +It is obvious that included under the heading of sexual offences are +cases which vary so greatly in their gravity and in their very nature as +to have little in common. There is a great gulf between the lad +convicted of unlawful carnal knowledge with a girl who is under the +legal age of consent, but who in some instances may even be the actual +instigator of the offence, and the miscreant who tampers with little +girls of tender years, or sets himself deliberately to corrupt boys. It +was this class which the Prisons Board had in mind when it passed the +resolution quoted, and no doubt it is the class which the Committee's +order of reference is intended to cover. + +This class of offence is held in so much detestation by normal persons +possessing ordinary healthy natural instincts that they find it +impossible to consider the question from a judicial and coldly +scientific point of view. It is evident, however, that this must be done +if we are to entertain any hope of finding and applying an effective +remedy to this cancer in the social organism. The evidence given before +the Committee leads them to the belief that the evil is much more +prevalent than is generally supposed--that the cases which come before +the Court constitute only a percentage of those which actually occur. + +The ignorance of the general public in regard to these matters +occasionally leads to an unjust attitude of mind towards some of the +offenders brought before the Courts. Take the case of an old man charged +with "exhibitionism." To the normal mind this seems a particularly +disgusting proceeding, and the offender's age is regarded as an +aggravation. The explanation is that the higher nerve-cells of the old +man are degenerating, that he may be thus unable effectively to control +his morbid sexual impulses, particularly if stimulated by an enlarged +prostate. Such a person is a subject for pity rather than punishment; he +must be restrained from annoying others by his offensive behaviour, but +it is really a case for medical treatment. + +Another class to be considered is the confirmed homosexualist. There are +well-known examples of men eminent in the arts and literature given to +this unnatural practice, and of the offenders who come before the Courts +only a small proportion can be described as feeble-minded. The practice +is not confined to the male sex, although for reasons which will be +apparent it is only males who come before the Courts charged with this +specific offence. Many parents are unaware that girls as well as boys +may contract bad habits and fall into sexual abnormalities, but it is a +fact which they ought to know in order that the danger may be guarded +against. + +Mr. Hawkins, Inspector of Prisons, whose experience extending over forty +years in charge of prisoners in New Zealand makes his opinion of great +weight, says there are two types of sexual offenders to be found in our +prisons: First, there are those who yielded to sudden temptation, +assaulted women or young female children, sometimes under circumstances +exhibiting extreme brutality. In the majority of these cases, he says, +the offenders are curable under a proper system of treatment, and it is +seldom that they again offend. He goes on to say: "The real sexual +pervert, however, who is continually tampering with young children is +different, as is also the case when young boys are the victims. The +worst pervert of all is the one who flagrantly offers himself for the +purposes of sodomy. Strange as it may seem, there are quite a number of +such degenerates in our prisons to-day; middle-aged and elderly men +being the chief offenders of this class. In my opinion segregation for +life is the only course, and my years of experience among such a class +have convinced me of this, their case being absolutely hopeless when +this stage has been reached, and no cure is possible in such cases." + +This pessimistic view, unfortunately, is fully confirmed by the records +of cases examined by the Committee. Long terms of imprisonment, though +combined with the lash, have proved quite ineffective as a deterrent, +even to the individual concerned. In some cases the offender within a +short time after his release has been detected in the same practices and +rearrested. Still less does such a punishment act as a deterrent to +other addicts, if for no other reason than that each individual +cherishes the conviction that he will not be found out. + +Records of a number of illustrative cases are set out in the Appendix, +pages 31-33. + + +SECTION 4.--SUGGESTED REMEDIES. + +As regards the infliction of corporal punishment which is often +advocated, Dr. Murray, Medical Officer to the Mount Eden Prison at +Auckland, who has had a good deal of experience with sexual offenders, +said he had seen a good many flogged, and he did not think it had any +effect as a deterrent. He added, "Nothing will deter men once they have +taken on that line. I think you will find in some cases where a person +has been addicted to those practices before marriage he will drift again +into the same course after a certain number of years. It seems a +perversion they have no control over, and after a certain number of +years it masters them." + +The general opinion of those who have been in touch with this problem +for many years is well expressed in the following extract from a very +valuable report furnished to the Committee by Dr. F. S. Hay, +Inspector-General of Mental Hospitals, on the different questions coming +within the scope of the inquiry:-- + +"As a member of the Prisons Board I have had the matter of the sexual +offender brought under my notice and have come to some very definite +conclusions. + +"I think that he should be brought to trial in the ordinary way, with +perhaps suppression of publication of names of the offender and victim. +If found guilty, he should be given an indeterminate sentence, and be +removed to a farm reformatory prison, where he would be brought under +skilled medical and lay observation, and his case studied in respect +to--_Mentality_, when if afterwards it is decided that he is mentally +defective or deficient in terms of the Act he can be transferred to the +proper institution; _physical condition_, when if there is any disorder +it can be remedied. If the disorder is causative (_e.g._, prostatic in +the elderly) and surgical or medical interference is necessary, it will +be carried out and its results carefully watched and reported on. + +"At present the sentences vary from, say, a year to ten years or more, +the seriousness of the case being one determining factor; but often +similar cases have years of difference in their sentences, and at the +end of the sentence they once more enter the world, and a fair +proportion repeat the offence. The people in the reformatory prisons +can, with experience of a case lasting over some years, foretell the +failure fairly accurately. + +"The degree of sexual perversion being measured by the amount of +interference with children, which accounts for the measure of the +sentence, means no essential difference in the intent or in the +likelihood of repetition, and therefore scientifically the sentences +should be equal. I suggest that they should be made equal by being made +indeterminate. + +"Those of whom the Medical Officer cannot report favourably would +continue on. They could be given a right of revision. Those of whom he +can report very favourably could be released on probation, and so on. +The essential feature is that no hurried diagnosis is made before trial, +but diagnosis and prognosis are arrived at after months and maybe years +of close observation and by a staff gaining experience daily." + + +_Sterilization and Desexualization._ + +The increase of sexual offences during recent years and the disgust felt +by all normally disposed people when contemplating cases of sexual +perversion and assault upon young children have created a strong public +opinion in favour of dealing with these offences as radically as +circumstances will permit. + +Demands are constantly made that the offenders should undergo "a +surgical operation," which is intended to imply either castration or +simple sterilization. + +The British Medical Association, at their annual Conference held in +Auckland in April, 1924, resolved that the following motion be adopted +by the Council: "That this Conference can make no recommendation for +surgical desexualization in the treatment of the adult sex pervert. The +only safeguard for young children in this matter is the permanent +segregation of the offender, either in prisons or in farm colonies. The +Conference emphasizes the importance of the sterilization of the chronic +mentally or morally unfit that a future generation may benefit thereby." + +The Committee therefore considers it necessary to set out as clearly as +may be possible the result of such operations and its deductions from +the evidence taken and authorities consulted as to the probability of +the achievement of the result desired. + +To consider in the first place the operation of simple sterilization +(vasectomy or salpingectomy). It is quite clear that this operation, +when properly carried out, prevents procreation by the individual +operated upon. Although the knowledge of the loss of this power may +modify the views of life held by the individual the operation _per se_ +does not affect his physical or mental health. This would be +anticipated, as the production of the internal secretion of the sexual +glands in either sex (ovaries or testes) continues. + +Sexual desire and capacity for coitus are not usually appreciably +impaired by this operation, and it clearly could not be expected to +restrain the sexual offender from the pursuit of his perverted modes of +gratification. As, however, it appears that in a proportion of cases of +sexual perversion the tendency is an hereditary one, these operations +would, as in the case of the feeble-minded, tend to restrict the number +of individuals in the community afflicted in this manner. The Committee +would therefore recommend that simple sterilization be considered by the +Eugenic Board in relation to sexual perverts. + + +_Castration (Desexualization)._ + +The operation of desexualization implies the removal of the sexual +glands (ovaries or testes), and involves other considerations than the +operation of simple sterilization. + +The loss of the internal secretion of these glands may produce physical +and mental changes in the individual. These effects vary greatly in +degree according to the age at which the operation is performed. + +The earlier it is done the more decided the result. If performed _before +puberty_ the secondary sexual characteristics fail to develop. The voice +does not change in the male; the development of hair is more sparse; the +general physical development is less masculine; and mentally the +individual is less aggressive. Most pertinent of all as bearing upon the +question under review, sexual desire and capacity do not develop, either +at all, or at any rate, not to the same degree as in a normal +individual. This result, however, is not constant, and depends +principally upon the age at which the operation is performed. + +_After puberty_ the operation is very much less effective. The secondary +sexual characteristics have been already established and persist. It +occasionally occurs that certain mental effects are produced. In women +these resemble, generally speaking, those occurring at the climacteric. +In both sexes, however, mental disturbances may occasionally arise. + +The immediate effect upon sexual desire and capacity is slight. It would +appear, however, from the small amount of evidence available on this +point that the tendency is to a gradual diminution of sexual desire, +possibly even to disappearance after some years. + +As it is generally after puberty that sexual perversion becomes +manifest, it is clear that much cannot be expected from this operation. + +The problematic result and the extent of the mutilation restrain the +Committee from any suggestion that such an operation should be made +compulsory. + +The Committee feel that the information at present available in regard +to sterilization or desexualization of sexual offenders is quite +inadequate to permit of a sound and final judgment as to the value of +the procedure. They recommend, therefore, that the whole question be +remitted for careful investigation to the Eugenic Board which it is +proposed should be set up. + + +SECTION 5.--SCIENTIFIC TREATMENT AND SEGREGATION WITH INDETERMINATE +SENTENCE. + +After very careful consideration the Committee have come to the +conclusion that it is most desirable, in continuation of the system of +prison reform which has been inaugurated with so much success in this +country, that every person charged with a serious sexual offence should +be carefully examined by a medical man and skilled psychiatrist before +his trial, and evidence given to the Court of any physical or mental +defect having a bearing on the case. + +In the judgment of the Committee, the best way of dealing with persons +guilty of sexual crimes is by means of the indeterminate sentence. Each +case should be examined by a psychiatrist as well as by the Prison +Medical Officer, and the length of the period of detention should be +determined by the Prisons Board after looking into the nature of the +offence and considering the report of the psychologist and evidence as +to the conduct of the prisoner while under detention. In cases of the +worst type the indeterminate sentence would doubtless resolve itself +into detention for life. + +At all costs the women and children of the community must be protected +against this class of offender. The evidence of Mr. Hawkins as to this +class is emphatic and very much to the point:-- + +"Personally I have never yet seen a complete cure in the case of a real +sexual pervert. Years of imprisonment, to my own personal knowledge, +have failed to do any good whatever. Treat them kindly, give them useful +work, and make their lives as pleasant as possible, but never let them +loose on society again. Even if this were done, the trouble with such +individuals is by no means ended, as if it is intended to prevent them +following their beastly tendencies constant unremitting supervision will +be necessary. The average citizen has not the slightest conception of +the utter depths of depravity to which a confirmed male sexual pervert +will descend. Instances of such depravity have occurred to my knowledge. +Many of the men referred to are not fit to live, but it must be +remembered that in many instances the evil tendencies have been +inherited, while in others environment has played a prominent part." + +The information placed before the Committee, which is summarized in the +foregoing paragraphs, leads to the conclusion that the requirements of +the position are fairly well covered by the terms of the Prisons Board's +resolution. + + +SECTION 6.--SUMMARY OF RECOMMENDATIONS. + +The Committee recommend,-- + + (1.) That the Crimes Act be amended to provide for the passing + of an indeterminate sentence upon persons convicted of sexual + offences. The Courts to be given full discretion as to whether + the sentence shall be definite or indeterminate. + + (2.) That the Prisons Board be vested with the same power of + recommendation for the release on probation or final discharge + of prisoners under an indeterminate sentence as they have now + in regard to all other prisoners. + + (3.) That a psychiatrist be appointed to advise the Prisons + Department as to the classification and treatment, and that he + be available to the Courts for the examination, before + sentence, of sexual offenders, or of offenders who are thought + to be irresponsible on account of mental defect. + + (4.) That the Prisons Board be advised by the Eugenic Board in + regard to the release on probation or final discharge of all + sexual offenders or feeble-minded offenders coming under its + jurisdiction. + + (5.) The Committee feel that the information at present + available in regard to sterilization or desexualization of + sexual offenders is quite inadequate to permit of a sound and + final judgment as to the value of the procedure. They + recommend, therefore, that the whole question be remitted for + careful investigation to the Eugenic Board which it is + proposed should be set up. + + +CONCLUDING REMARKS. + +It goes without saying that the work of the Committee in pursuing their +investigations has been of a very painful and depressing character. We +need not refer to the depth of human degradation and the revolting +pathological details which had to be explored in dealing with the second +order of reference, beyond saying that the witnesses who faced the +unpleasant task of giving evidence deserve the thanks of the public for +discharging what they evidently felt to be a public duty. In the inquiry +into the problem of the feeble-minded the most saddening experience of +the Committee was the sight of so many children deprived of their full +share of the light of reason, often maimed and stunted in body as well +as in intellect. The sight was made sadder still by the reflection that +unless prompt and effective action is taken the multiplication of these +degenerates will increase and the race will steadily deteriorate. + +Professor William MacDougall, the noted psychologist of Harvard +University, speaking at Toronto recently in reference to the disregard +of eugenic methods in America in maintaining and improving the national +stock, said: "As I watch the American people speeding daily with +invincible optimism down the path that leads to destruction I seem to be +watching one of the greatest tragedies of history." + +New Zealand is a young country already exhibiting some of the weaknesses +of much older nations, but it is now at the stage where, if its people +are wise, they may escape the worst evils of the Old World. It has +rightly been decided that this should be not only a "white man's +country," but as completely British as possible. We ought to make every +effort to keep the stock sturdy and strong, as well as racially pure. +The pioneers were for the most part an ideal stock for a new offshoot of +the Mother-country. The Great War revealed that from their loins have +sprung some of the finest men the world has ever seen, not only in +physical strength, but in character and spirit. It also revealed that an +inferior strain had crept in and that New Zealand was already getting +its share of weaklings. Surely our aim should be to prevent, as far as +possible, the multiplication of the latter type, and to increase the +elements of the mental, moral, and physical strength of the nation. In +these beautiful and richly dowered islands we have a noble heritage--to +be in keeping and to ensure the full development of their resources and +enjoyment of their blessings the inhabitants should be of the highest +type obtainable by human effort. + +This is the lesson which has been impressed upon the minds of the +Committee during their investigations, and they have been sustained in +their saddening experience by the hope that this lesson will be taken to +heart by both the Parliament and the people of the Dominion. + +W. H. TRIGGS, Chairman. +D. MCGAVIN. +F. TRUBY KING. +J. S. ELLIOTT. +ADA G. PATERSON. +CHAS. E. MATTHEWS. +J. BECK. + +J. W. BUCHANAN, Secretary. + + + + +APPENDIX. + +PAST MISTAKES IN IMMIGRATION. + +EXTRACT FROM REPORT ON HOSPITALS AND CHARITABLE INSTITUTIONS OF THE +COLONY, 1888, BY THE LATE DR. MACGREGOR, INSPECTOR-GENERAL. + + +Many causes have conspired in our history as a colony to intensify the +good-nature of our people--at any rate, so far as extravagance in +vicarious charity is concerned. Our sensitiveness to suffering has been +greatly stimulated by the comparative absence from our towns of those +sights of misery and squalor that deaden the feelings by familiarity; +and the lavish life we have led since 1870 has made us free-handed to +the poor and impatient of the trouble required to find out whether our +charity was wisely or mischievously given. + +During our years of plenty, when borrowed money was being largely spent, +and the prices of wool, &c., were high, I was in charge of the Dunedin +Asylum, and remember with what forebodings I regarded the quality of the +immigrants that were being poured into the country after the despatch of +instructions in October, 1873, to the Agent-General "To grant free +passages, and also, if necessary, advance expenses to port of +embarkation and outfit." + +Twenty thousand immigrants were, if possible, to be sent out in six +months. With wonderful rapidity the results became apparent. From all +parts came reports of the evil quality of the immigrants. The +Immigration Minister, writing to the Agent-General in June, 1874, says: +"I have already called your attention to the fact that the shipment by +the ... included a number of girls out of the Cork Workhouse, and I took +the opportunity of remarking on the very undesirable character of such +immigration. A perusal of the report of the Immigration Officer at +Dunedin will, I think, convince you how very disastrous it is likely to +prove to the cause of immigration if such modes of selection as those +adopted by Mrs. ---- (who was paid per emigrant) are under any +circumstances permitted. The result in the colony of the landing and +distribution of such women as these complained of, and of such +immigrants as the "young men" whom Mr. Allen states he has ascertained +to be professed thieves, and one of them a ticket-of-leave man, is +naturally a feeling of indignation and dismay." + +No doubt this was an extreme case, but, nevertheless, it is plain that, +what with the great influx of a low class of navvies during the height +of our public works, and the vicious and degenerate people, of whom so +many were introduced at this time, the average of our population in +point of quality was considerably deteriorated. My experience as Medical +Officer of our largest asylum for so many years has convinced me that +the ultimate cost of this degraded class of people to this country is +enormous. For instance, here is an account of two families and their +asylum history:-- + + +--------+-------------------------------+---------------+-------------+ + | | | Cost per | | + | | | Head. Rate, | | + |Number. | Name. | L1 per Week | Total Cost. | + +--------+-------------------------------+---------------+-------------+ + | | | L s. d.| L s. d.| + | | _Family of B._ | | | + |I | A.B. (brothers) | 80 2 0 | | + |II | C.B. | 274 4 0 | | + |III | D.B. | 230 2 0 | | + |IV | E.B. | 8 2 0 | | + |V | F.B. | 8 2 0 | | + | | |---------------+ 600 12 0 | + | | _Family of C._ | | | + |I | A.C., wife | 472 2 0 | | + |II | B.C., husband of A.C. | 418 0 0 | | + |III | D.C., daughter of A.C. | 834 2 0 | | + | | and B.C. | | | + |IV | E.C., " | 1,318 2 0 | | + |V | F.C., illegitimate daughter | 169 8 0 | | + | | of E.C. | | | + |VI | G.C., husband of F.C., but no | 5 2 0 | | + | | blood relation | | | + | | |---------------+ 3,216 16 0 | + | | | |-------------| + | | | |L3,817 8 0 | + +--------+-------------------------------+---------------+-------------+ + +Such people and their offspring are at this moment a fruitful source of +those idle and useless persons who bring discredit on the cause of that +portion of our people who cannot find employment. They fill our gaols, +our hospitals, and our asylums, and, like a swarm of low parasitical +organisms, they have, to an extent that is almost incredible, absorbed +the outdoor relief that was meant for the self-supporting and struggling +poor. I am sure that by far the largest proportion of the aid that has +been so abundantly distributed by the various charitable agencies, +especially in our large towns, has been spent in supporting a great many +idle and vicious persons whose example has had the most pernicious +effect in pauperizing the people. It should never be forgotten that the +evil caused by the introduction of this class is never finished. The +impaired health, low morality, and insanity descend to the offspring, +and are a continual drain upon the community. + + + + +THE HEALTH OF SCHOOL-CHILDREN. + +EXTRACT FROM THE REPORT OF THE DIRECTOR OF THE DIVISION OF SCHOOL +HYGIENE, 1924. + + +The fundamental necessities of healthy growth are simple, and it is +doubtful if there is any country in the world to-day where they are more +universally procurable. Fresh air, sunlight, food of the right type and +amount, adequate sleep and rest, wholesome exercise, are available for +all but that small section of the people already mentioned. Sir +Frederick Mott, in an address recently published in the _British Medical +Journal_, quotes Voltaire: "Regime in diet is better than medicine. Eat +moderately what you know by experience you can digest, for that which +you can digest only is good for the body. What is the medicine that +makes you digest? Exercise. What will repair your energy? Sleep." + +To this text he adds the benefits of sunlight and pure air. + +Reports from School Medical Officers continue to record that tea, white +bread, and meat play the chief part in the dietary of many homes. Fresh +fruit and vegetables, even in rural areas, are not eaten sufficiently. + +Frequent eating between meals takes away appetite and retards digestion. +Many children bring to school substantial "play-lunches" to be consumed +at the mid-morning interval. Others consume large quantities of sweets. +Healthy hunger they rarely know. A noteworthy fact is that in New +Zealand the consumption of sugar per head per annum is 117 lb., as +against rather more than half that quantity in Britain and much less in +other countries. Apart from its directly deleterious influence on the +teeth, the alteration of food values in the dietary necessitated by the +inclusion of so much sugar results in digestive troubles and disturbed +nutrition. In this country, with its many sources of supply, eggs, milk, +cheese, butter, fresh fruit, and vegetables should be available in +sufficient abundance and at low-enough prices to displace to a greater +extent the meat that is such a prominent article of diet in many +households. + +The value of rest, both physical and mental, for children is not +adequately recognized. In the country many children work early and late +at farm-work, as milking, &c., and in the city children earn money as +newsboys, message-boys, &c. Where the family exchequer needs to be +augmented in this way excuse must be made, but in many comfortable homes +children do not rest sufficiently. Mr. Cyril Burt, psychologist for the +London City Council, was recently reported as deploring the tendency in +modern education to attach undue value to the dramatic and theatrical. +Children who possess talent are made to drag it prematurely into the +light of publicity. They are over-trained and over-stimulated. Nearly +all children are taught to regard frequent amusement as essential to +happiness. To leave them to develop their own resources and allow them +to find interest in simple and natural things would be to extend widely +their chance of future happiness. + +It is the wrongly fed, insufficiently rested child that most readily +develops physical deformity. The fatigued nervous system is expressed in +general bodily slackness. There is deficient muscular and ligamentous +tone. The typical faulty posture is thus acquired, with drooping head, +flat chest, wing shoulders, prominent abdomen. Vitality is depressed and +the bodily mechanism out of gear. The grosser bony deformities so often +found in older lands associated with rickets are rarely seen in New +Zealand, but less evident manifestations of faulty diet and regime are +frequent. It is fortunate that in this country we cannot altogether +escape, however we seek our pleasures in stuffy rooms or dark, +ill-ventilated places of entertainment, those powerful and beneficial +agents for promoting healthy growth--sunlight and fresh air. For the +prevention of defect it is essential that the classroom should offer +hygienic conditions--_e.g._, good lighting and ventilation, suitable +furniture, &c. Another contributory factor in poor physical development +is the use of incorrect clothing and footwear. It is a common thing to +find from six to eight layers of tight garments constricting the chest +even in a child whose legs are scantily protected from cold. Shoes which +are too tight or too short, or which have heels so high as to prevent +correct body-balance, are very harmful. Clothing should offer adequate +protection, but should not prevent the most absolute freedom of +movement. + + + + +SEXUAL OFFENDERS IN NEW ZEALAND. + + +The Prisons Department has furnished the following return of +sexual offenders serving sentences in New Zealand prisons in 1924: +The total number of sexual offenders, 192; the total number of +sexual offenders born in New Zealand, 126; the total number of +sexual offenders born out of New Zealand, 66; the total number of +persons in the prisons serving sentences exceeding three months, +980; the total number of New-Zealand-born prisoners, 673; +proportion of sexual offenders--New-Zealand-born to total number +of New-Zealand-born criminals, 18.722; total number of prisoners +born outside New Zealand, 307; proportion of sexual offenders born +outside New Zealand to prisoners born outside New Zealand, 21.498. + + +TABLE SHOWING THE NUMBER OF SEXUAL OFFENDERS SENTENCED UNDER THE +RESPECTIVE HEADINGS IN NEW ZEALAND PRISONS AS ON 31ST AUGUST, 1924. + + Carnal Knowledge and Attempted Carnal Knowledge. 30 + Indecent Assault. 106 + Indecent Act. 3 + Indecent Exposure. 9 + Incest and Attempted Incest. 18 + Sodomy and Attempted Sodomy. 23 + Rape and Attempted Rape. 19 + Manslaughter. 1[A] + TOTAL 209[B] + + [Footnote A: Victim an old lady, aged 71, who died as the + result of a struggle, in which prisoner committed rape upon + her.] + + [Footnote B: Number includes 17 prisoners who appear under + more than one of the above headings, therefore the actual + number of individual offenders total 192.] + +Number of sentenced prisoners (exceeding three months) in custody on the +31st August, 1924, was 980, therefore sexual offenders (192 individuals) +represent 19.592 per cent. of the sentenced prison population serving +periods exceeding three months. + + +CARNAL KNOWLEDGE AND ATTEMPTED CARNAL KNOWLEDGE. + + ____________________________________________________________ + | Age of |Age of | Age of | Age of | Age of |Age of | + |Offender.|Victim.|Offender.| Victim. |Offender.|Victim.| + +---------+-------+---------+--------------+---------+-------+ + | 28 | 13 | 43 |Several young | 34 | 14 | + | 18 | 7 | | children | 22 | 15 | + | 18 | 7 | 52 | 14 | 30 | 9 | + | 34 | 15-5/6| 23 | 14 | 35 | 15 | + | 72 | 13-1/2| 25 | 9 | 27 | 12 | + | 21 | 8 | 44 | 6 | 28 | 9 | + | 29 |15-7/10| 37 | 15 | 37 | 14 | + | 29 | 13 | 29 | 15 | 35 | 3 | + | 40 | 14-1/2| 44 | 13 | 17 | 12 | + | 27 | 8 | 31 | 15 | 43 | 15 | + | 23 | 15 | | | | | + +---------+-------+---------+--------------+---------+-------+ + + +SOME ILLUSTRATIVE HISTORIES. + + +CASE NO. 1. + + ____________________________________________________ + |Number of |Age of | | + |Successive |Offender | | + |Convictions.|when | Offence. | + | |offence | | + | |committed.| | + +------------+----------+----------------------------+ + |A. 1 | 19 |Indecent assault on a male | + | 2 | 23 |Idle and disorderly | + | 3 | 26 |Indecent assault on a male | + | | | | + | | | | + | 4 | 37 |Indecent assault on males | + | | | (three charges) | + +------------+----------+----------------------------+ + __________________________________________________________________ + | Sentence. | Sentenced|Released|Period at Large | + | | (Date). | (Date).| before arrest | + | | | |on Further Charge. | + +-------------------------+----------+--------+--------------------+ + |4 years' hard labour | 21/12/06 |21/12/09| 2-1/2 months. | + |12 months' hard labour | 4/ 3/10 |29/12/10| 2 years 2 months. | + |10 years' hard labour | 17/ 3/13 |16/12/21| 2-1/2 years. | + |and 10 years' reformative| | | | + |detention | | | | + |10 years' hard labour | 25/ 6/24 |Still in| | + | | | prison.| | + +-------------------------+----------+--------+--------------------+ + +NOTE.--Offender was born at Auckland and is the third eldest of +a family of eight. He was evidently dull at school, as he passed the +Third Standard only at the age of 13. At the age of 16 he was charged +with the offence of vagrancy, convicted and discharged. The victims in +all his offences were children varying in age from 6 to 13 years. + + +CASE NO. 2. + + ______________________________________________________ + |Number of |Age of | | + |Successive |Offender | Offence. | + |Convictions.|When Offence| | + | |committed. | | + +------------+------------+----------------------------+ + | B. 1 | 23 |Theft (four charges) | + | 2 | 24 |Rogue and vagabond; vagrancy| + | 3 | 37 |Rape | + +------------+------------+----------------------------+ + _______________________________________________________________ + | | | | | + | Sentence. |Sentenced | Released |Period at Large | + | | (Date). | (Date). |before Arrest | + | | | |on Further Charge. | + +---------------------+----------+----------+-------------------+ + |1 month | 29/10/00 | 28/10/00 | 1 year. | + |3 months' hard labour| 5/11/01 | 4/ 2/02 | 1 year 9 months. | + |Hard labour for life | 1/ 2/04 | 3/12/23 | | + +---------------------+----------+----------+-------------------+ + +NOTE.--Offender is a native of New Zealand. The most serious of +his offences (No. 3) was committed on a girl 81/2 years of age. After +serving six years of his term of life imprisonment the prisoner showed +signs of being mentally unsound, and in March, 1910, he was transferred +to a mental hospital. He remained a patient in a mental hospital until +March, 1915, when he escaped. It was afterwards ascertained that he was +aware of the fact that he was about to be returned to prison as being no +longer an insane person--hence his escape. After his escape he married, +and subsequently served two years with the Expeditionary Force. He was +returned to New Zealand as medically unfit and was arrested at Auckland +and returned to prison in August, 1917. Two members of his family--a +sister and a brother--have been convicted of theft and "conducting a +house of ill fame." + +This man was released on probation, on the certificate of an expert in +mental diseases, after serving the full life term of twenty years, but +soon after release gave clear indications of return to former criminal +perversions, and his rearrest was ordered. + + +CASE NO. 3. + + ______________________________________________________________________ + |Number of |Age of | | | + |Successive |Offender | Offence. | Sentence. | + |Convictions.|When Offence| | | + | |committed. | | | + +------------+------------+------------------+-------------------------+ + | C. 1 | 25 |Obscene exposure |3 months' hard labour | + | 2 | 26 | " |6 months' hard labour | + | 3 | 26 | " |12 months' hard labour | + | 4 | 27 |Wilful damage |14 days' hard labour | + | 5 | 27 |Obscene exposure |12 months' hard labour | + | 6 | 30 |Assault |2 months' hard labour | + | 7 | 31 |Obscene exposure |3 months' hard labour | + | 8 | 31 |Rogue and vagabond|1 month's hard labour | + | 9 | 31 | " |12 months' hard labour | + | 10 | 32 |Obscene language |2 months' hard labour | + | 11 | 33 |Indecent assault |6 years' hard labour and | + | | | on a female | 4 years' reformative | + | | | | detention | + | 12 | 40 |Indecent assault |7 years' hard labour | + | | | on a male | | + +------------+------------+------------------+-------------------------+ + ________________________________________ + |Sentenced |Released |Period at Large | + | (Date). | (Date). |before Arrest | + | | |on Further Charge. | + +----------+---------+-------------------+ + | 19/ 6/06 | 18/9/06 | 8 months. | + | 15/ 5/07 |22/10/07 | 1 day. | + | 23/10/07 | 15/8/08 | 3 months. | + |} 6/11/08 | 28/8/09 | 10 months. | + |} | | | + | 13/ 6/10 | 5/9/10 | 4 months. | + | 6/ 1/11 | 5/4/11 | 6 days. | + | 11/ 4/11 | 10/5/11 | 1 day. | + | 11/ 5/11 | 2/3/12 | 1 month. | + | 2/ 4/12 | 1/6/12 | 8 months. | + | 5/ 2/13 | 23/9/19 | 2 years 1 month. | + | | | | + | | | | + | 31/10/21 |Still in | | + | |prison. | | + +----------+---------+-------------------+ + +NOTE.--C. is a single man, aged 40 years, and a native of New +Zealand. He is a cabinetmaker by trade and said to be an excellent +tradesman. He appears to have been in trouble since he was 25 years of +age, and has constantly been in prison, the majority of his offences +being of a sexual nature. He is described as a highly dangerous criminal +and a menace to society. + + +CASE NO. 4. + + _____________________________________________________________________ + |Number of |Age of | | | + |Successive |Offender | Offence. | Sentence. | + |Convictions.|When Offence| | | + | |committed. | | | + +------------+------------+-----------------+-------------------------+ + | D. 1 | 15 |Theft |6 months' probation | + | 2 | 26 |Carnal Knowledge |20 years' hard labour | + | 3 | 38 | (1.) Indecent |(1.) 2 years' reformative| + | | | assault on a | detention; declared | + | | | male | habitual criminal | + | | | (2.) Indecent |(2.) 3 years' reformative| + | | | assault on a | detention | + | | | female | | + +------------+------------+-----------------+-------------------------+ + + +----------+---------+-------------------+ + |Sentenced |Released |Period at Large | + | (Date). | (Date). |before Arrest | + | | |on Further Charge. | + +----------+---------+-------------------+ + | 30/7/01 | ---- | | + | 1/2/12 | 20/2/22 | 2 years 6 months. | + | | | | + | 28/7/24 |Still in | | + | | prison | | + +----------+---------+-------------------+ + +NOTE.--D. is a native of New Zealand, aged 38 years and +married. His second offence, a very serious one, was committed on a +female child of 9 years, the child being subjected to great violence and +raped. He was released from prison on license on 20th February, 1922, +when he married a respectable woman who knew nothing of his past +history. She states that he was a good husband. There is one child of +the marriage, a female of 11 months. He is addicted to drink, and is +said to have been under the influence of liquor when he committed his +last offence. He is not a fit subject to be at liberty, as it was the +merest accident that his last offence did not become as serious as that +he committed in 1912. Offender has two brothers, both criminals. + + +CASE NO. 5. + + __________________________________________________________ + |Number of |Age of | | + |Successive |Offender | Offence. | + |Convictions.|when Offence| | + | |committed. | | + +------------+------------+--------------------------------+ + | E. 1 | 14 |Breaking, entering, and theft | + | 2 | 15 |Absconding | + | 3 | 15 |Breaking, entering, and theft | + | 4 | 19 |Drunk | + | 5 | 19 | " | + | 6 | 20 |Sodomy | + | 7 | 38 |(1.) Indecent assault on a male | + | | |(2.) Common assault | + +------------+------------+--------------------------------+ + ____________________________________________________________________ + | | | | | + | Sentence. |Sentenced |Released |Period at Large | + | | (Date). | (Date). |before Arrest | + | | | |on Further Charge.| + +--------------------------+----------+----------+------------------+ + |Committed to Burnham | 26/11/00 | ---- | | + |Returned to Burnham | 24/ 2/01 | ---- | | + |12 months' hard labour | 18/ 4/01 | 15/ 2/02 | 2 years 3 months.| + |Fined 5s. and costs | 23/ 5/04 | ---- | | + |Fined 5s. and costs | 3/11/04 | 3/11/04 | 3 months. | + |Life | 15/ 2/05 | 21/ 6/21 | 2 years 4 months.| + |(1.) 10 years' hard labour| 30/10/23 | Still in | | + |(2.) 1 year's hard labour | " | prison.| | + +--------------------------+----------+----------+------------------+ + +NOTE.--E. is a native of New Zealand, aged 39 years and +married, with one child. He is reported to suffer from injuries to the +head caused by a fall from a tree when eleven years of age, and to be +subject to uncontrollable fits of temper and loss of mental balance +since that age. Offender was educated in Auckland, and passed the Third +Standard only at the age of 13. He was committed to Burnham at the age +of 10 for two years, from which institution he absconded on several +occasions. According to his own statement, during his term at Burnham +the practice of sodomy was fairly common, and the boys often talked +about it, but in his opinion did not regard it as a serious offence. He +states they were flogged for it, but did not think much of that either, +because they were flogged for many other things which he knew were not +serious. He says he also met boys from another industrial school who +were sent to Burnham, who also did and talked about the same practice. +Altogether, therefore, he knew he was doing wrong, but he will not admit +that he regarded it in any way as a serious offence. In 1903 he went to +sea, and states that his chief companion was a member of the Salvation +Army, also a seaman. He affirms that during all the time he was at sea +he never heard the offence referred to. The men talked of women but +never of sodomy. From 1903 to 1905 he apparently lived a reasonably good +life. In 1905 he was convicted of sodomy and sentenced to life +imprisonment. He was released on license on the 20th June, 1921, and +followed the occupation of gardener around Auckland. He married in June, +1923, and is at present serving a long sentence. Offender alleges having +made arrangements to be sterilized, but states doctor refused to perform +operation. Drink appears to have had some effect upon his life. + + +CASE NO. 6. + + ________________________________________________________ + |Number of |Age of | | + |Successive |Offender | Offence. | + |Convictions.|when Offence| | + | |committed. | | + +------------+------------+------------------------------+ + | F. 1 | 12 | Theft | + | | | | + | 2 | 12 | " | + | 3 | 20 | " | + | 4 | 20 | " | + | | | | + | 5 | 21 |Breaking, entering, and theft | + | 6 | 22 |Vagrancy | + | 7 | 24 |Indecent assault | + | 8 | 25 |Escaping from custody | + | | | | + | 9 | 28 |Indecent assault | + | 10 | 37 | " | + | 11 | 43 |Indecent assault on a female | + | | | (two charges) | + | | | | + | | | | + +------------+------------+------------------------------+ + ___________________________________________________________________ + | | | | | + | Sentence. |Sentenced | Released |Period at Large | + | | (Date). | (Date).|before Arrest | + | | | |on Further Charge. | + +-------------------------+----------+----------+-------------------+ + |To come up when called | 8/10/92 | ---- | | + | upon | | | | + |Sent to Burnham | 5/12/92 | ---- | | + |7 days' hard labour | 28/ 4/00 | ---- | | + |To come up when called | 24/10/00 | ---- | | + | upon | | | | + |12 months' hard labour | 26/ 2/01 | 21/12/01 | 3 months. | + |3 months' hard labour | 13/ 3/02 | 21/ 6/02 | 1 year 8 months. | + | 5 years' hard labour | 17/ 2/04 | 23/12/07 | 9 months. | + | 4 months' hard labour, | 17/ 5/05 | " | | + | cumulative with above | | | | + |7 years' hard labour | 8/ 9/08 | 8/12/13 | 3 years 5 months. | + |7 years' hard labour | 14/ 5/17 | 20/11/22 | 6 months. | + |3 years' hard labour on | 8/ 5/23 | Still in | | + | each charge, cumulative,| | prison.| | + | and declared | | | | + | habitual criminal | | | | + +-------------------------+----------+----------+-------------------+ + +NOTE.--F. is a native of New Zealand, born in Napier, February, +1880, and is a labourer by occupation. He was convicted of theft at +Napier when a boy and sent to the Burnham Industrial School, from which +place he escaped on several occasions. He was discharged from the school +on the 30th April, 1898, and since then has continued his criminal +career, his further offences being of a sexual nature. He is given to +tampering with little girls, and has on four occasions committed +indecent assault of a more or less serious nature. He is undoubtedly a +menace to society and not fit to be at large. Offender is a temperate +man, and when out of gaol appears to have wandered about the country +doing an odd day's work here and there. His parents are dead. + + + + +_Approximate Cost of Paper._--Preparation, not given; printing (575 +copies), L42 + + * * * * * + +By Authority: W. A. G. SKINNER, Government Printer, +Wellington.--1925. + +_Price 1s._ + + + + + +End of the Project Gutenberg EBook of Mental Defectives and Sexual Offenders, by +W. H. Triggs, Donald McGavin, Frederick Truby King, J. Sands Elliot, Ada G. Patterson, C.E. Matthews and J. Beck + +*** END OF THIS PROJECT GUTENBERG EBOOK MENTAL DEFECTIVES AND SEXUAL OFFENDERS *** + +***** This file should be named 18932.txt or 18932.zip ***** +This and all associated files of various formats will be found in: + http://www.gutenberg.org/1/8/9/3/18932/ + +Produced by Jonathan Ah Kit, Cori Samuel and the Online +Distributed Proofreading Team at http://www.pgdp.net + + +Updated editions will replace the previous one--the old editions +will be renamed. + +Creating the works from public domain print editions means that no +one owns a United States copyright in these works, so the Foundation +(and you!) can copy and distribute it in the United States without +permission and without paying copyright royalties. Special rules, +set forth in the General Terms of Use part of this license, apply to +copying and distributing Project Gutenberg-tm electronic works to +protect the PROJECT GUTENBERG-tm concept and trademark. 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