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diff --git a/26912.txt b/26912.txt new file mode 100644 index 0000000..2a0cb98 --- /dev/null +++ b/26912.txt @@ -0,0 +1,1804 @@ +The Project Gutenberg EBook of Report of the Juvenile Delinquency Committee, by +Ronald Macmillan Algie + +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: Report of the Juvenile Delinquency Committee + +Author: Ronald Macmillan Algie + +Release Date: October 13, 2008 [EBook #26912] + +Language: English + +Character set encoding: ASCII + +*** START OF THIS PROJECT GUTENBERG EBOOK JUVENILE DELIQUENCY COMMITTEE *** + + + + +Produced by Jonathan Ah Kit, Mark C. Orton, Victoria +University of Wellington College of Education (Gender and +Women's Studies Programme) and the Online Distributed +Proofreading Team at https://www.pgdp.net + + + + + + +I--15 + +1955 +NEW ZEALAND + + + + +REPORT + +OF + +JUVENILE DELINQUENCY COMMITTEE + + + +(Hon. R. M. Algie, Chairman) + + +_Laid on the Table of the House of Representatives_ + + +BY AUTHORITY: +R. E. OWEN, GOVERNMENT PRINTER, WELLINGTON, NEW ZEALAND.--1955 + + + + +REPORT + + +By a resolution of the House dated the 28th day of September 1954 a +Special Select Committee was appointed to consider and to report upon +certain matters relating to moral delinquency. In particular, the +Committee was instructed to study the recommendations contained in the +report of the Mazengarb Committee and to make such observations thereon +as it thought fit. This Special Select Committee was empowered to sit +during recess and was directed to report its findings to the House +within twenty-eight days after the commencement of the next ensuing +session of Parliament. + +The Orders of Reference relating to the Committee were as follows: + + ORDERS OF REFERENCE + + _Extracts from the Journals of the House of Representatives_ + + TUESDAY, THE 28TH DAY OF SEPTEMBER 1954 + + _Ordered_, "That a Select Committee be appointed, consisting of ten + Members, to consider the Report of the Special Committee on Moral + Delinquency in Children and Adolescents (H-47, 1954); the Committee + to make such recommendations or observations as it thinks fit to + the House or the Government; the Committee to have power to sit + during the recess and for twenty-eight days after the commencement + of the next ensuing session; the Committee to consist of six + Members to be nominated by the Prime Minister and four Members to + be nominated by the Leader of the Opposition, such names to be + submitted to the Clerk of the House on or before 31 December 1954. + (Right Hon. Mr HOLLAND.)" + + The names submitted in accordance with the above Order of Reference + were: Mr Aderman, the Hon. Mr Algie, Mr Barnes, the Hon. Mr Hanan, + Mrs McMillan, the Hon. Mr Mason, Mr D. M. Rae, the Hon. Mrs Ross, + Mr Skoglund, and the Hon. Mr Tirikatene. + + + WEDNESDAY, THE 20TH DAY OF APRIL 1955 + + _Ordered_, "That the period set down by Order of the House dated 28 + September 1954 within which the Juvenile Delinquency Committee was + required to present its report be extended to 1 September 1955." + (Hon. Mr ALGIE.) + + + WEDNESDAY, THE 31ST DAY OF AUGUST 1955 + + _Ordered_, "That the period set down by Order of the House dated 20 + April 1955 within which the Juvenile Delinquency Committee was + required to present its report be extended to 1 October 1955." + (Hon. Mr ALGIE.) + +The Committee met on two days during the recess and on a number of +occasions during the 1955 session. + +For many reasons which need not be set out in this report, but which +were communicated to Parliament, it was found impossible to present a +report within the limits of time allowed, and by resolution of the +House it was finally agreed that the report should be presented on or +before the 1st day of October 1955. + +We have given careful attention to each and every one of the +recommendations of the Mazengarb Committee. We have not felt it to be +our duty to hear over again all or any of the evidence placed before +that Committee, nor have we regarded it as our duty to deal broadly +with the incidence and causes of moral delinquency, or with the +discovery and presentation of remedies for this social malady. On the +contrary, we felt that we were required: + + (1) To study the legislation relating to this subject and enacted + by Parliament in 1954, to consider its efficacy, and, if possible, + to make recommendations for its improvement, and + + (2) To consider the suggestions made by the Mazengarb Committee for + action by particular Government Departments, to give an opinion as + to how far such recommendations could be given practical effect, + and to set out for the information of Parliament the extent to + which those recommendations had been put into operation. + +Our views, suggestions, and recommendations are as follows: + + +The Need for Continuous Expert Investigation + +In the course of our study of this problem it was frequently pointed +out to us that there was a real need for a thorough and continuous +study of this problem by those who from their training, experience, and +occupation were best qualified to advise as to the scope and extent of +the problem, as to its general causes, and as to the practical ways of +dealing with it. From information in the possession of the police and +of the Department of Justice it appeared that the extent of the evil +was in fact not so alarming as one might be induced to believe by a +perusal of the reports in the newspapers; there was, however, plenty of +evidence to suggest that misconduct amongst adolescents was increasing +and that this aspect of the matter was one for grave concern. There was +support for these views in written memoranda submitted by two of our +Magistrates, Mr Sinclair and Mr M. C. Astley. The Secretary for Justice +and Controller-General of Prisons, Mr S. T. Barnett, wrote as follows: + + "My suggestion is that, as a first step, the Ministers in charge of + social Departments, e.g., Education, Child Welfare, Justice, + Police, should be requested to direct their Permanent Heads to + concert together and get down to a group study of the problem and + report to Government on the practical measures to meet it. + + "Within these Departments are experts who can get down to the facts + and who ought to be able to propound some suggestions to ameliorate + the present unsatisfactory state of affairs. They should, of + course, be authorized, and indeed requested, to enlarge the + departmental group and to take in representatives of principal + welfare organizations." + +The suggestions made by Mr Barnett were adopted, and the work +recommended by him is being carried on. The results have not yet +been made available to us. + +We think that in matters of this kind fact finding carried out by +experts in a thoroughly scientific manner is fundamental, and in a +later portion of this report we have a specific recommendation to +make on this subject. + + +Specific Recommendations of Mazengarb Committee Relative +to Child Welfare Administration + +In paragraph (4) of the report of the Mazengarb Committee--pages +57 to 60 inclusive--there are a number of comments and suggestions +relating to the Child Welfare Act and its administration. We have +examined these paragraphs very carefully, and we set out below some +excerpts from the report furnished to us by the Director of Education. +Our views are given immediately following the extract from the +opinion expressed by Dr Beeby, which is as follows: + + "We have always felt that the spirit of the Child Welfare Act 1925 + placed an obligation on us to do preventive work, and there are two + Cabinet decisions, one going back to 1941, which certainly give the + authority. However, we agree that it might be desirable to have the + obligation expressed explicitly in the Act. Indeed, in the draft + Child Welfare Bill prepared by the Division some eighteen months + ago you will find this done in two ways: + + "(1) On page 43 of the draft Bill I sent you you will find Part + I devoted to preventive work, and clause 1 begins, 'It shall be + the _duty_ of the Superintendent to take positive action to + prevent children, etc.'. + + "(2) On page 1 the definition of 'Child in need of care and + protection' is so widened as to cover every possible type of + preventive case, if read in conjunction with the amendments + passed during last session and with the Cabinet authorities to + spend public funds on such children. + + "We do not think it necessary to increase the powers of Child + Welfare Officers for these purposes. To give them more actual + powers over children who have not committed an offence would be to + risk justifiable public objection to interference with the liberty + of the subject and the rights of parents." + + +_Page 58, paragraph (b)_ + +In its report the Mazengarb Committee said that the establishment +a few years ago of a Ministry of Social Welfare, and the urgent need +for more preventive work to be done, suggest the possibility of better +administration if "child welfare" were given an independent status +under the Ministry for Social Welfare. + +This suggestion was examined by the Director of Education and by +the Superintendent of the Child Welfare Division of the Department +of Education. They reported fully to us, and their views are set out +below in summarized form. + +The strongest arguments that were placed before us in support of +the view that child welfare should be a separate and independent +Department were to the following effect: + + (1) The Superintendent would--as the head of his own Department--be + the captain of his own ship subject only to the direction of his + own Minister. + + (2) The Director of Education has a huge Department of his own to + administer, and he cannot be expected to give to child welfare the + full measure of attention it should have. + + (3) The Minister of Education must in the main find his principal + and absorbing interest in the school system, and he could hardly + devote to child welfare the same degree of attention that could be + expected from the Minister of Social Welfare. + + (4) There would be times when the Superintendent must find it + burdensome to have to work through a Department with far-reaching + special interests of its own. + + (5) The public standing and prestige of the Superintendent of Child + Welfare would be enhanced if he were recognized as the head of his + own independent Department. + +The arguments on the other side may be summarized in the following way: + + (1) Child welfare by itself would make a relatively small + Department and as such it might tend to become inbred and to + stagnate. + + (2) A separate Department of Child Welfare would cost more than at + present because it would not be able to rely upon some of the + staffing and administrative facilities of the Department of + Education. + + (3) Some of the institutions now conducted or controlled by child + welfare are really schools and as such they would always need to be + under the real control of the Department of Education. + + (4) In actual practice no one could define with precision where the + functions of child welfare could be separated from those of + education. + + (5) Over the years child welfare and education have worked out + their own joint policy of administration. They have in fact worked + along in harmony and with effective co-operation, and there + appeared to be no sound reason for disturbing a set-up which was in + fact efficient, economical, and harmonious. + +We were completely satisfied that the present arrangement has the full +support of the Director of Education and the Superintendent of Child +Welfare. This view has also the support of the Public Service +Commission. After a study of the evidence that was placed before us we +came to the unanimous conclusion that matters should be left as they +are. + +If it was decided by Government that child welfare should remain linked +with the Department of Education it would be advisable that some form +of administrative procedure should be worked out to define the +relations between the Director of Education and the Superintendent of +Child Welfare in so far as their respective approaches to the Minister +of Education and the Minister of Social Welfare are concerned. It was +clear to us that the present set-up is both efficient and harmonious. A +detailed plan for the due performance of the various duties was worked +out and agreed to by all interested parties. As it is a purely +administrative matter, we have not felt that it was necessary to embody +it in this report. Suffice it to say that in our opinion child welfare +should remain a part of the Department of Education, that its +Superintendent should have a right of direct reference to the Minister +of Social Welfare, that the Minister of Social Welfare should be +directly responsible for the administration of the vote applicable to +the Child Welfare Division, and that the administrative plan placed +before us should be adopted and applied unless and until varied by +agreement between the Ministers concerned. + + +_Page 59, paragraph (c)_ + +Dr Beeby said: + + "It is true that no regulations have ever been gazetted prescribing + the duties of Child Welfare Officers. The provisions for them under + the Act are merely permissive, and we think it would be a + retrograde step to gazette any. The duties of the Superintendent + are adequately defined in the Act, and, as in other parts of the + Public Service, he delegates such of those powers as he thinks fit + to his subordinates. The Division's work has been done on this + basis since the passing of the Act, and we can recall no incident + where the absence of regulations has caused any difficulty. To + define the powers might well be to restrict them and to interfere + with the very preventive work we all desire. + + "There should, as the Committee suggests, be some mention of + Honorary Child Welfare Officers in the Act, but their powers, + again, are better given by delegation than by legislation. It is + very desirable that the extent to which use is made of an Honorary + Officer's services be allowed to vary with the requirements of the + district and the ability of the officer." + +We agree with the views expressed above by Dr Beeby. + + +_Page 59, paragraph (d)_ + +The Mazengarb Committee pointed out that the practice and procedure of +the Children's Court may tend to vary from place to place throughout +the Dominion because the Court was not presided over by its own +specially appointed Magistrate. + +On this point the Director of Education said: + + "This comment is true. The position has arisen because of the + practical difficulties of having the work carried out by specially + appointed Magistrates. The volume of work involved could justify + the appointment of only a few such Magistrates, and, because of the + geographical spread of the work, they could not handle it + expeditiously." + +On this point we have no recommendations to make. We feel that the best +possible results are being secured by the Magistrates having regard to +their numbers and to the conditions under which they work. + + +_Page 59, paragraph (e)_ + +The Mazengarb Committee felt that it was a pity that proceedings in the +Children's Court were not conducted in a separate and distinct building. +It should at least be possible, said the report, to hear and determine +the cases in a room other than the ordinary Court room of a Magistrate's +Court. This was rather in the nature of a counsel of perfection. In +less-densely populated districts it would not be easy or economic to +provide separate accommodation of the kind envisaged. In larger and +busier centres it was often necessary to study the convenience of the +Magistrates themselves. The present Committee has no specific +recommendation to make in this connection. + +The best that can be done is in fact being done. + + +_Page 60, paragraph (f)_ + +On the subject of the publicity to be given to proceedings in the +Children's Court the Mazengarb Committee said: + + "There may be reasons why a Children's Court should be open to the + public ... The public has a right to know how child offenders have + been dealt with. The Committee does not recommend any alteration in + the provision prohibiting the publication of the name of any child, + or of any name or particulars likely to lead to identification. + Subject to this, it is desirable that reporters should be allowed + to attend." + +With these views we find ourselves to be in complete agreement. + + +_Page 60, paragraph (g)_ + +The Mazengarb Committee appeared to hold the view that when children +have been placed under supervision there was no adequate "follow up" +procedure. + +The following is Dr Beeby's comment upon this paragraph: + + "It is a little difficult to see just what the Committee are + suggesting in this paragraph. If they are proposing that a Child + Welfare Officer be required to report progress to a Magistrate for + his personal information and to enable him to check on the + correctness of his judgment, there can be no possible objection. + When asked for, indeed, this is already done. If, on the other + hand, it is proposed that the Magistrate have continuing authority + over the child, then it would turn the Court into a social work + agency and would run counter to the whole trend in the development + of Children's Court and child welfare work from the beginning of + this century. The Magistrate would be compelled to take on + responsibilities for which he is not trained, and Child Welfare + Officers would tend to become merely junior probation officers + attached to the Court. One of the advantages of the present system + is that the Superintendent, being the final authority, can ensure + uniform standards of case work throughout New Zealand. If it were + left to each individual Magistrate to decide exactly what should be + done with children, it is certain that wide variations in + principles and procedures would occur. Experience has shown, for + example, that some Magistrates, with no first-hand knowledge of our + institutions, would send to them children for whom they are not + established to cater. + + "With regard to the Committee's suggestion that there 'should be + some person or body apart from the departmental officers to whom a + child could turn for help ...', we would agree that something like + the Visiting Justice system of the Justice Department might apply + to our institutions as a guarantee to the public and as a + protection to both children and officers. However, to extend such a + system to children boarded out in private homes would be to ask for + endless trouble. People would be loath to accept State wards into + their homes if it laid them open to official visits from laymen + whose sole function was to hear complaints from the children. The + visits of Child Welfare Officers and of Inspectors of the Division + must, we feel, be accepted as the main guarantee to the public of + fair treatment." + +Without expressing any decided opinion, the Committee felt that +what the Director of Education has to say is worthy of consideration +by Government. + + +Certain Specific Changes Proposed by the Mazengarb Committee + +In clause (5) on pages 60 to 63, both inclusive, of the report the +Mazengarb Committee recommended that certain specific changes be +made as soon as possible in the legislation relating to proceedings in +the Children's Court. It was our duty to examine and report upon +each of these suggestions. Our comments are as follow: + + _Paragraph (a), page 61_ (creation of a new offence) and _paragraph + (b), page 61_ (the compulsory attendance of parents at a Children's + Court) + +Both of these recommendations have been given effect to, and they +are provided for in the legislation enacted late in the session of 1954. + + + _Paragraph (c). page 61_ (power of Court to make orders against the + parents of offending or delinquent children) + +We agree with this recommendation, and we understand that the necessary +provision has already been written into a new Child Welfare Bill which +is in course of preparation. + + + _Paragraph (d), page 62_ (notification of fact of expulsion of a + child from school) + +This proposal has already been given effect to by administrative +direction. We feel that legislation on this point will not be +necessary. + + + _Paragraph (e), page 63_ (notification to be given to principal of + a school where child found to be delinquent) + +In normal practice the Child Welfare Officer does take a head teacher +into his confidence when placing a child in his school district and +actively seeks his co-operation. There are odd cases, however, where it +may be thought that an individual head teacher should not be given, in +the words of the report, all "the circumstances which led to the +delinquency". This would be a very rare occurrence, but the statutory +obligation to tell everything he knew on every occasion might prevent +the Child Welfare Officer's taking steps he believed to be in the best +interests of all concerned. The best results, we feel, will come from +wise administrative action and from a general improvement in the mutual +understanding between teachers and Child Welfare Officers. + +The Committee felt that when information of this nature was passed on +to a Headmaster it should be treated as confidential. We feel strongly +that any child should always have a full opportunity of repentance and +of re-establishing his character, and where a child showed that +definite improvement had been made by him his chances of rehabilitation +should not be prejudiced by the fact of his earlier breach. + + + _Paragraph (f), page 63_ (recommendation that Child Welfare Act be + completely redrafted, etc.) + +A complete redraft of the Act is now in course of preparation. + +Further comments on paragraph (_f_) above were made by Dr Beeby. They +are as follow: + + "We think that the right of appeal from the decisions of the + Children's Courts might be usefully made explicit in the Child + Welfare Act. We agree also that it might be well to provide for the + right of appeal against the Superintendent in certain + circumstances. If the system is to be workable and not brought to a + standstill by a mass of frivolous appeals, it will be necessary to + restrict the right of appeal. If an appeal were to lie every time + the Superintendent shifted a ward of State, the proceedings would + be endless. The only appeal, we think, should be one to have a + child discharged from the care of the Superintendent. Serious + complaints of ill treatment could be aired in this way. We are not + able to suggest, off-hand, exactly what the restrictions should be, + and very full discussions between Child Welfare authorities and + legal authorities would be necessary as a preliminary to effective + legislation on the point." + +Little, if anything, appeared in the Mazengarb Committee's report to +justify us in thinking that a right of appeal of the kind suggested +should be provided. The Committee express the hope that a step of this +kind should not be taken unless sound reasons were advanced for taking +it. + + +Summary of Proposals for Administrative Action + +In its report at pages 67 and 68 the Mazengarb Committee set out a +number of proposals which in its view could be met by appropriate +action on the part of the Departments mentioned by the Committee. The +suggestions made have been considered by the Departments, and we give +below a statement of the extent to which the suggestions have been +carried into effect. + +(_a_) Police Department + +It was suggested that the training of policewomen should be considered +with a view to deciding the best method of dealing with girls involved +in sexual offences. + +For the information of Parliament we set out below a few excerpts from +a report prepared in the Police Department and sent to us by the +Minister of Police. The excerpts are to the following effect: + + "A. _Selection and Training_ + + "The minimum educational qualities required are secondary school + (Form 2). + + "Policewomen are not required for clerical or administrative + duties, therefore importance is not attached to ability to perform + office work, typing, or shorthand writing. + + "Recruits chosen with due regard to the foregoing are required to + undergo a course extending over five weeks in the Police School at + Lyttelton. They are coached in subjects relating to statutes, + general police duties, powers and responsibilities of the police, + methods of dealing with various contingencies with which they may + be faced when on duty, relations with and bearing towards the + general public, first-aid, and self-defence. In short, this course + is similar in character to that undergone by male recruits to the + Force. + + "Women recruits are instructed by a pathologist in matters + pertaining to pregnancy, abortion, and the identification of + abortion instruments and drugs. They receive instruction in + maternity hospitals, with special reference to the unmarried + mother. Children's homes, orphanages, and also homes for the aged + are visited and studied with a view to creating a solid background + for the policewomen's work. + + "With the co-operation of the Justice Department women trainees + visit prisons and borstal institutions. They also attend and study + procedure at Magistrates' and Supreme Courts. The workings of the + probation service and Child Welfare Department are also the subject + of visits and study. + + "The training course of five weeks is shorter than that for men, + but women recruits appear to absorb instruction more quickly and + less time is devoted to physical training. + + "B. _Suggestions Relative to Training_ + + "It is felt the present training syllabus coupled with the + practical experience which rapidly follows is adequate and that + each policewoman is capable of dealing with the problem of the girl + who has been involved in sexual offences. + + "C. _Further Comments_ + + "The Police Department appreciates that if increased numerically + and used more generally policewomen may be a great factor in the + prevention of juvenile delinquency, provided that through their + frequent association with children, both in the company of their + parents and at all grades of school, they become accepted by these + young persons from infancy. The help and guidance of women police + could be sought on grounds similar to those of the school dental + nurse who in her particular sphere is banishing the fear of dental + treatment. It is felt a similar approach to the child's moral + welfare is worthy of consideration." + +It is a fact that within recent weeks steps have been taken by the +Government to establish and operate an improved system of training for +recruits for the Police Force. We had no information before us as to +the nature of the course or the length of the training period: nor do +we know whether a specific course of training will be prescribed for +women recruits. We feel, however, that it is a fair assumption that a +sounder, more thorough, and more systematic system is about to be put +into operation. We feel, too, that with the increased emphasis about to +be laid upon training, it can safely be taken for granted that every +effort has been, and will continue to be, made to give effect to the +suggestions of the Mazengarb Committee. + + +(_b_) Department of Internal Affairs + +It was a recommendation of the Mazengarb Committee that steps should be +taken to gazette the outstanding regulations authorized under the +relevant film censorship Acts of 1934 and 1953. + +A report received from the Department of Internal Affairs contains the +information set out below: + + "It could be assumed from the terms of the recommendation that no + regulations are at present in force governing the censorship of + films and film posters. This, however, is not the case, as + appropriate regulations have been in operation for many years. What + is now contemplated is a revision of the existing regulations to + take account of later legislation and to modernise them in the + light of new developments and policies relating to this aspect of + the film industry. + + "In particular, the Cinematograph Films Amendment Act 1953 made + fairly extensive amendments to existing law relating to censorship, + and this in turn has led to the necessity for a completely new + approach to certain policy and machinery aspects of the existing + regulations. For these reasons, and as the film industry is a + licensed and controlled industry, the Committee will understand + that it has not been possible, or even perhaps desirable, to + progress as speedily as would be the case with other regulations + of a more normal character. + + "For the information of your Committee the general position now is + that the regulations are in a final stage of preparation and will + be submitted for Government approval as soon as practicable." + +We have been advised that quite recently a final draft of the +regulations was forwarded to the Film Industry Board for consideration. +We were told, too, that conferences are being held between officers of +the Department of Internal Affairs on the one hand and members of the +Film Industry Board on the other. It is expected that at the conclusion +of such conferences an agreed draft will be sent forward to the +Government. + + +(_c_) Broadcasting Service + +Two recommendations were before us for our consideration: + + (1) "That the Service ensure that the concept 'Crime must never + pay' is more prominently featured in crime serials; and + + (2) "That a married woman be immediately appointed to the + auditioning panel." + +In its report to us the Broadcasting Service says: + + "As regards (1), the Service has always attached great importance + to this principle. We can let feature producers know that we attach + greater importance to it than ever; but we cannot make it more + explicit or more prominent in a feature than the producers have. + (After all, no convention in the field of dramatic fiction, in any + medium, is stronger or better understood than the convention which + distinguishes hero and villain and makes the first triumph over the + second.) + + "As regards (2), this extends a practice in accordance with which, + since 1952, one or another of the senior women officers of the + Service has been used as a referee, when auditioning officers have + been in doubt about the proper classification and placement of + features. + + "It may be said in summary, then, that the principles, methods, and + practice of the Service are in general commended; that they are in + no respect criticized severely and in no respect without express + qualification; and that the Committee suggests or recommends no new + purpose, no new method, but only the closer application of methods + already well tried to a purpose which events have made weightier + and more urgent. + + "Nevertheless, it has appeared to be desirable to consider what + action could and should be taken in accordance with what appears to + be the spirit of the Committee's comments and recommendations on + Broadcasting rather than with their letter. This has been done, and + in what follows I wish to offer some comments and explanations, to + review action taken as soon as the report was available and later + decisions now being carried out, and to ask for further direction." + + "_Action: Immediate and Continuing:_ + + "(i) After the report had been studied Station Managers and + other responsible officers were asked to take interim action to + ensure that the spirit of the Committee's conclusions in regard + to a certain type of song was reflected in their programmes. + They were also asked to let us know, with reasons, of any + serial features running at their stations which they think + should be considered for withdrawal or later time placement. + + "(ii) Two married women of senior status on our staff have been + selected to sit in alternation on the Standard Recordings + Purchasing Committee and the Features Purchasing Committee. + They will not be able to hear with every auditioning officer + all episodes of features or all single recordings of songs. To + duplicate auditioning staff for this purpose would require the + full-time service of five or six married women. Either one, + however, will with the Committee study reports, agreeing to + acceptance or rejection, and help to guide auditioning and + purchasing policy. Doubtful cases brought up by auditioning + officers will be heard by them as well as by other senior + officers. + + "(iii) The time allotted to features classified as suitable for + playing when large audiences of children may be expected to be + listening has been from 5 p.m. to 7 p.m.; it is now to be from + 4 p.m. to 8 p.m. There may be differences of opinion from time + to time on suitability of features for this classification as + we have a considerable number of public judges of our + decisions, but we shall do our best. All auditioning officers + will be fully alert to their responsibility. + + "(iv) Opportunity was taken at a conference in Wellington at + the end of last month of the senior programme organizers of all + stations throughout the country to discuss fully their + responsibilities towards the matters raised in the Committee's + report. They also discussed the draft of a revised code of + instructions to auditioning officers and others, and this code + is now being circulated. + + "(v) An extension of present procedure on popular song records + was decided upon for Head Office auditioning officers. Records + will be wholly rejected, or passed for general use, or passed + with the reservation that they are to be programmed with + special care (i.e., as to time placement, frequency, etc.)." + + "The following further action is to be taken: + + "(i) The issue of the code referred to above will give effect + to the Service's desire for the consistent wholesomeness of + programmes, the need to aim constantly to maintain standards in + programmes of all kinds at the highest appropriate level, and + the need to exercise discretion in programming material which + might be rendered objectionable by repetition, inappropriate + time placement, or standard and style of performance. + + "(ii) Some of the dramatic features at present running will be + reauditioned if it is thought that they may be out of tune with + the present atmosphere or the revised time classification. Even + with additional assistance this task may take about six months. + There may be some financial loss if many episodes are to be + discarded or if the withdrawal of episodes or alteration of + time classification creates difficulties in providing + replacement programmes at short notice for sponsors. It is + relevant here to note the difference between ourselves and film + or book censors. After censoring we must ourselves face the + financial result of our actions and the administrative + difficulty of finding substitute and less objectionable + material. + + "(iii) Suppliers of transcribed programmes in Australia are to + be advised of the implications of the report so far as it is + likely to affect our future purchasing policy. + + "There has been a tendency amongst our critics (I do not refer + here to the Committee) to make insufficient allowance for the + considerable part played by broadcasting in serving the public + good in the spheres of information, education, the arts, + and community services. As Sir William Haley, formerly + Director-General of the B.B.C. and now Editor of the _Times_ + said in a recent lecture on _The Public Influence of + Broadcasting and the Press_: 'It is, of course, possible to + counter all this by raising one's eyebrows at some of the + variety programmes. They are the other side of the medal. But + one must look at the whole'." + +Our conclusions as a Committee are as follows: + + (1) The officers of the New Zealand Broadcasting Service have + studied in a properly co-operative spirit the suggestions and + recommendations of the Mazengarb Committee, and that + + (2) They are alive to the responsibilities that rest upon them as a + Department of State charged with the task of operating a most + important medium of public entertainment, information and + instruction, and that + + (3) They have, over the years, worked out for themselves a code of + procedure under which a high and commendable standard of + broadcasting has been, and is being, maintained, and that + + (4) They are taking all reasonable and practicable steps to give + effect to the suggestions put forward by the Mazengarb Committee, + and that + + (5) We express the hope that the utmost vigilance should be + exercised over the choice, content, and timing of + programmes--especially over those designed for the extended hours + set apart for juvenile listeners--and that every effort be made to + maintain the high standard that the Service has set for itself. We + recommend, too, that during the hours set apart for children there + should be a complete absence of features that can fairly be + regarded as being unsuitable for or injurious to young people. + + +(_d_) Censoring Authorities + +On this point we cite a paragraph from a memorandum placed +before us by the Secretary for the Department of Internal Affairs. It +reads as follows: + + "A further recommendation contained in the report is to the + following effect: + + "'Any Departments concerned with censorship should maintain a + liaison to produce as far as possible a uniform interpretation + of public opinion and taste.' + + "In the view of this Department the objective of the recommendation + is good and should be followed up by appropriate action. There are + several Departments concerned from different angles, and it would + seem that the recommendation could best be implemented by whichever + Department is charged with the general oversight of matters + relating to moral delinquency. It would then be merely a matter of + administrative action for that Department to call periodical + meetings of the appropriate officers concerned with censorship." + +We, as a Committee, agree with the view expressed above, and +recommend it to the Government for consideration. + + +(_e_) Department of Education + +(i) _Relative Functions of Public Health Nurses and Visiting +Teachers._--The duties of visiting teachers were laid down quite +specifically in an official circular in 1953. Senior officers of the +two Departments discussed the relative functions of public health +nurses and visiting teachers very fully soon after the publication of +the report. The two Departments and Education Boards have drawn the +attention of all visiting teachers and public health nurses to methods +of avoiding overlapping and of working in co-operation. In a number of +districts Child Care Committees, sponsored by Senior Inspectors of +Schools, have instituted central case registers. These have been a +great help in ensuring that visiting teachers and public health nurses +do not deal independently with the same child and family. + +A residential course at Frederic Wallis House, Lower Hutt, has been +planned for visiting teachers and public health nurses in 1956. + +(ii) and (iii) _Additional Visiting Teachers and Type of Officer to +Help in Post-Primary Schools_.--Approval has been given for four +additional visiting teachers--two in Auckland, one in Wellington, and +one in Christchurch. Discussions have been held with representative +post-primary-school principals on the kind of help they need with +problem children. Rather than have visiting teachers specially attached +to the post-primary service, the great majority of principals were +strongly in favour of extending the functions of the Education Boards' +visiting teachers to cover post-primary pupils, so that one individual +could follow the members of a family through their full school career. +Approval has therefore been given for this. As a further assistance to +both primary and post-primary schools, three additional school +psychologists have been appointed. + +(iv) _Housing for Teachers._--The Department has been trying to +deal with this problem in two ways: + + (_a_) By an extension of existing policy for the erection of + teachers' houses. All Education Boards were consulted as to where + the greatest need for additional houses lay, and, without + exception, they gave highest priority to rural areas and small + towns. The Government is giving consideration to an extension of + policy based on this advice. In 1954, 61 houses were built for + teachers; this year the number is expected to be 84. + + (_b_) By the use of the "pool" housing scheme administered by + an Inter-departmental Pool Housing Committee. Under this scheme, a + proportion of all new State houses erected is set aside for letting + to State employees and teachers on transfer. The Department of + Education is represented on the Committee that makes the + allocations and represents the needs and interests of the teachers + and the schools. Most of the areas concerned are in housing + settlements. + +(v) _Facilities for Recreation._--The use of school grounds and +buildings after school hours is entirely in the hands of boards and +local committees. The Department has no direct authority in the matter, +but does facilitate and encourage such use. Practice varies, but in +many schools very great use is made of school facilities for community +purposes. The work in this respect will be made more effective by the +decision taken at the beginning of 1955 to build halls in all new +post-primary and intermediate schools built to the new designs, to +re-introduce the L2 for L1 subsidy up to L4,000 for halls in primary +schools and to give a pound-for-pound subsidy up to L4,000 on gymnasia +in post-primary schools. Approval has just been given, on an +experimental basis, for a subsidy on a gymnasium and cafeteria in one +intermediate school in Auckland, with the express condition that it be +used "to provide recreational and cultural facilities for young people +who have left school". + +The Committee recommends these opinions for the consideration of the +Government. + + +(_f_) Research Into Juvenile Delinquency + +The Mazengarb Committee was of opinion that there should be a long-term +study of the problem of delinquency. As a matter of fact the present +Committee heard evidence on this suggestion from several witnesses, and +we were greatly impressed by what we heard. It goes without saying that +if one would seek a remedy for a given problem a thorough diagnosis of +the problem itself is a fundamental prerequisite. First let us find the +facts; let us know what is the nature and extent of the evil; let us +get as much data as to its causes and incidence. With that material in +hand we should be in a better position to search for useful methods of +treatment. This task of fact finding would be a long and arduous one; +it would need to be entrusted to experts of wide knowledge and +experience. A start has already been made by the setting up of the +Inter-Departmental Committee referred to earlier in this report. We +strongly recommend the Government to give very favourable consideration +to this particular proposal, and we hope that ways and means will be +found of giving effect to it. We think that this suggestion is of +fundamental importance in any approach to the problem, and we consider +it should be given consideration by the Government. + +_Instruction for Parents_: In the long run the responsibility for +a child's general well-being rests upon the parents. Some can, and do, +take every care to discharge that responsibility. Others either fail or +neglect to do so. In some cases this failure comes from a lack of the +necessary knowledge or from inability to impart it. In one memorandum +addressed to the Committee there appear the following paragraphs: + + "I think it highly probable that much delinquency is due to the + fact that parents simply do not know how to teach their children on + a subject that many parents regard as secret between parents. I + think it highly unlikely that a parent will consult an adviser + (say, a doctor) as to how the child should be trained, and I am not + so sure that a doctor would know what advice to tender even if he + was consulted. + + "Instruction of parents seems to be the job of a specialist. The + doctors have prepared several booklets on sex instruction. + + "I am wondering if good attendance could be secured for a series of + lectures by specialists to parents, either to both sexes or to + mothers alone. A mother would probably be more likely to attend a + meeting as one of an audience rather than to suffer the + embarrassment of a personal consultation with, say, a doctor to + whom she has to admit that she does not know how to discharge her + duty to her children. + + "It is generally agreed that much of the cause of child delinquency + is due to unsatisfactory home influence and parental control and + example, but the fact that many of the offenders come from good + homes and fine parents is strong evidence, I feel, that there is + some important deficiency even in those good homes, and it may well + be that that deficiency lies in the fact that the parents do not + really know how to give their children the knowledge that they + should have in the way they should receive it. I am confident that + we have people who could help in this important work. Perhaps women + lecturers would be best." + +We are of opinion that the views expressed above do merit very serious +consideration. We realize the tremendous difficulty we face in trying +to reach those who stand most in need of the help that is here referred +to. We recognize, however, that all our children must spend a big +portion of their young lives in our primary and post-primary schools. +It is here that positive and well-planned character training and +instruction in moral values can be undertaken with a certainty that the +instruction and the training will reach those whom we would wish to +help. Do we take full advantage of this opportunity? Do we give enough +attention to those inner disciplines that are so essential if a good +life is to be enjoyed by our young people? We are satisfied that our +teachers as a whole nobly discharge their obligations to our community +in this regard. We think, however, that the matters touched upon in +this paragraph are within the special province of the Department of +Education and its Minister, and it is our recommendation that they +should be referred to that Minister for examination and for such +positive action as he may consider proper and desirable. + +We think also that much more could be done in the homes if the ranks of +our visiting teachers, public health nurses, and school psychologists +were strengthened considerably, and we strongly recommend that action +along these lines should be taken by the Departments of Education and +Health. + +We are also of opinion that in any effort to reach parents over the +widest possible field a very useful agency lies ready to our hands in +our Parent-Teacher and Home and School Associations, and it is our hope +that this agency might be much more positively used to awaken and +maintain a due sense of parental responsibility and a proper +understanding of the moral and spiritual needs of children. + +With such thoughts in mind, we would recommend that the Director of +Education be asked to confer with the appropriate experts to see how +far, and under what conditions, suitable courses of lectures could be +provided for parents and prospective parents. + + +The Special Legislation of the 1954 Session + +Following upon the presentation of the Mazengarb report the Government +immediately took steps to give effect to those recommendations which +called for special legislation. Three Bills were introduced, the first +dealing with "indecent publications", the second dealing with child +welfare, and the third with police offences. + +In our order of reference we were directed to study these pieces of +legislation and to report as to their efficacy and as to whether there +were any specific amendments that were necessary or desirable. + +In the preparation of this part of our report we have had the advice +and much valued assistance of the Department of Justice. We deal here +with the question of "publications". Our comments as to the Child +Welfare Act appear elsewhere in this report. No comment is needed +regarding the amendment to the Police Offences Act. First as to +_publications of a more or less objectionable character circulating +in New Zealand_. + +We set out at some length some portions of the report submitted for our +consideration by the Minister of Justice, the Hon. Mr Marshall. +_Inter alia_, it is said: + + +I. _Objectionable Publications in General_ + + "Our survey of the book trade disclosed that there were three types + of publication to which particular attention should be + given--comics, certain crime stories, and nudist and other + suggestive magazines. + + (_a_) _Comics_: "These are the publications which have attracted + most public attention, both here and overseas, and in particular + the type of comic known as the 'crime' or 'horror' comic has come + in for a great deal of severe criticism. It is true that reading of + a mildly bloodthirsty nature directed at the juvenile market is no + new thing. The comic books of today, however, are not those of a + generation ago, nor are they at all similar to the comic strips now + appearing in the newspapers. Many of them are full of matter which + is brutal, horrifying, and sadistic, and although to a certain + extent they are published for and read by adults of feeble + mentality they are also available to children. + + "The origin of this type of comic is the United States, but other + countries have not been slow to follow suit. Large numbers of + comics are reprinted in England and Australia from American plates. + The interim report of the Kefauver Committee strongly indicts crime + and horror comics and gives some revolting illustrations of their + contents. Reports indicate that comics almost as bad were + circulating in England before the introduction of legislation + there. The nature of crime comics circulating in Canada was + responsible for an Act passed there in 1949 prohibiting such + comics. + + "Even before the passing of last year's Act none of the comics on + sale in New Zealand was as bad as the worst American or English + examples. At the same time some of them were most objectionable. + Since action has been taken here and in Australia the standard of + comics distributed in New Zealand appears to have improved + considerably. That is not to say that they are all free from + objection, and there are a number of crime comics which we do not + think should be allowed to go on circulating. Indeed, we think that + this country can well do without the crime comic altogether. + Recently objection was taken to some forty comics, and we are + waiting advice from the distributors as to their attitude. Later in + this report we shall refer to further proposals for dealing with + comics. + + (_b_) _Crime Stories_: "The second class of publications referred + to comprises publications usually known as 'thrillers'. These books + are quite different from the ordinary detective novel and from the + more traditional type of thriller. Many examples of this new type + of gangster thriller have been flooding the New Zealand market in + the form of paper-backs selling at 2s. 6d. or less. They are + entirely devoid of literary or other merit and are devoted to the + wanton depiction in gross detail of brutality, violence, and sex. + + "These publications and a number of so-called detective magazines + which imitate them may perhaps be regarded as the adolescent + equivalent of the crime comic, and we believe them to be equally + harmful. Action against them will, we think, no more infringe the + principle of freedom of speech than action against narcotics + infringes the principle of free enterprise in the economic sphere. + + "Action against these publications was taken some time ago, and + some of the results of this action have appeared from recent + reports in the press. As an illustration of what has been done we + advised the Associated Booksellers that you considered all the + novels of Mickey Spillane to be indecent and that you were prepared + to prosecute in respect of them. The booksellers agreed with this + opinion and recommended their members not to stock these books. We + think it significant that these books, which were agreed to be + objectionable, were being sold by many reputable booksellers in New + Zealand. This shows how easy it is to offend unwittingly against + the Act. + + "There was a group of even more objectionable publications + published in paper-back form by an English firm, Milestone Ltd. We + advised the police some time ago that we intended to take + proceedings against any one found selling these books. The + Booksellers' Association agreed with this view. + + "There is an enormous output of books and paper-backs of the + detection-thriller type, and it is by no means easy to know where + to draw the line. It should be possible, however, to eliminate the + really harmful and leave the rest. + + (_c_) _The Suggestive Magazine_: "The third class of publications + is the suggestive magazine. Some public concern has been expressed + that a number of suggestive magazines are continuing to circulate + in this country. The truth is, however, that, although the names + are the same, the contents are very different. We have carefully + examined all these magazines, and, although they are not perhaps + very edifying, we are satisfied that at present none of them + clearly infringes the law. + + "Nudist magazines are another matter. Those we have seen appear + unobjectionable if their circulation is restricted to nudists and + persons interested in the nudist cult. They have, however, been + appearing in some newsagents' and tobacconists' shops and openly + displayed in windows, and we consider circulation in this form to + be undesirable. Serious consideration is being given to the + prosecution of any one who displays these magazines or sells them + to the general public." + + +II. _Suggested Amendments to the Law Relating to Indecent Publications._ + +The Justice Department has given much attention to the question as to +the efficacy of the amending Act introduced in 1954. We had the +advantage of reading the report presented by the Department to the +Minister of Justice, and we set out below certain portions of the +report which we as a Committee think worthy of notice. The report says, +_inter alia_: + + "(1) We think that the substantive changes made in the special + legislation in 1954 have been beneficial, and we strongly recommend + that they be retained. The Indecent Publications Act 1910, as it + previously stood, dealt with sex and with sex alone, and this is + not sufficient. It is, for instance, doubtful if the Spillane + novels or some of the books in the Milestone series could + successfully be objected to merely on grounds of sex; but they are, + nevertheless, of an immoral and mischievous tendency and should not + be allowed to continue in circulation. They might be described as + 'sadistic' in the true psychological sense in that they combine sex + and violence. + + "There has been some suggestion that the Act leaves too vague just + what is indecent and that the word 'indecent' should be defined + with precision. In the nature of things there are, however, very + great difficulties in attempting such a definition. It is + significant that no precise definition of indecency exists either + in the principal Act or so far as we are aware in the legislation + of any other Commonwealth country. + + "The present state of affairs might be dangerous if prosecutions + could be taken on the decision of police officials in any town in + New Zealand. Whatever may be said in theory, however, the fact that + prosecutions can be brought only with the leave of the + Attorney-General is, we think, a sufficient guarantee that the law + will be applied uniformly and reasonably. Moreover, there is a + further safeguard in the right of appeal to the Supreme Court + against all decisions of a Magistrate under the Act. + + "We believe that the bookselling trade is quite happy with the + present substantive law as it is now being administered, and we + firmly hold the opinion that the best course is to leave the + substantive provisions of the 1954 Act largely as they are. + + "(2) The registration provisions are a rather complex way of + achieving their object, which is to enable the Court to put a + seller out of business if he is convicted of an offence against the + Act and if the Court believes his conduct is such as to warrant + this penalty. We think that this object could be achieved by giving + the Court this power directly. It could be provided that on + convicting any one under the Act the Court may make an order + prohibiting him for a certain period from carrying on the business + of selling books or periodicals. The provisions as to registration + could then be repealed." + +Some members of the present Committee felt that this power should be +exercised only in the case of a second or subsequent conviction. + + "(3) The marking requirements of the Act are not well adapted to + their object, and, as we have mentioned, it has proved necessary to + a large extent to dispense with compliance with them. We think it + is anomalous that the law should continue to require marking while + almost every publication is exempted. + + "In place of the present marking provisions we suggest that every + New Zealand publisher should continue to be required to print his + name and address on what he publishes, that the importer of + overseas periodicals for sale or distribution be required to supply + to the Department of Justice a list of the titles imported by him, + and that every one other than a retail bookseller who carries on + the business of importing books be required to supply to that + Department a list of the publishers whose books he imports. + + "(4) There is one anomaly in section 5 (1) (_d_) of the principal + Act as set out in the 1954 Act. This is the provision which + requires the Magistrate to take account of the persons, classes, or + age groups to whom a document is sold or is intended or likely to + be sold _and the tendency of the document to deprave or corrupt + such persons_. The words in italics are appropriate in the + Victorian statute from which they were copied because the + common-law test of depraving or corrupting applies in Victoria, but + they are at best unnecessary in New Zealand where the Act lays down + its own test--namely, that the act of the defendant must be of an + 'immoral or mischievous tendency'. + + "(5) The 1954 Amendment contains some ambiguities and anomalies in + matters of detail which should be remedied when any further + legislation is brought down. These defects were discussed in an + article by Professor I. D. Campbell in the 1955 _New Zealand Law + Journal_, page 294. + + "_New Provisions Suggested_: (1) As we have said, we are not + anxious that the ordinary law-abiding bookseller or distributor + should have to undergo the stigma of a criminal prosecution, and + this was the main reason for entering into arrangements with the + Associated Booksellers and Gordon and Gotch. At present, however, + criminal proceedings afford the only real way of testing the + position even where there is an honest difference of opinion. We + think a better procedure could be devised, and the Select Committee + may be invited to deal with this matter. + + "(2) A number of comics which are not strictly indecent within the + meaning of the Act are nevertheless objectionable from other points + of view. In many the ethical standards of the characters are low. + The quality of the print and illustrations varies from the + indifferent to the very poor, and must have a serious effect on + children's eyesight. In a number of comics the grammar and + vocabulary are likewise bad. + + "It is said that children learn from what they see and hear around + them. If this is so it would appear that the assiduous reading of + comics tends to counteract the work of teachers which costs the + country so much. + + "An Inter-departmental Committee in 1952 recommended the + introduction of a system of registration. The Committee's original + recommendations were: that publishers or importers of comics should + apply for registration of every title and that only suitable titles + should be registered. The sale of unregistered comics was to be an + offence. This procedure may be preferable to the subsequently + suggested system of automatic registration followed by + de-registration upon complaint. + + "Registration of comics, of course, amounts to censorship. There + is, however, no question of literary merit or the spread of + knowledge, and the view that an adult should in general be free to + read what he likes does not apply in the case of publications + primarily intended for children. If it is accepted as proper to + censor films there can be little objection to censoring comics. + + "We therefore suggest that the Select Committee might consider + whether an authority might be set up to approve and register + comics. There could be an Appeal Board similar to that in respect + of films to consider complaints against any decision of the + registering authority. + + "If this suggestion is unacceptable an alternative might be an + amendment to the legislation to be introduced enabling the Court in + the case of comics to take into account as one of the factors in + considering whether they are objectionable matters of grammar, + language and visual standards." + +The present Committee is of opinion that there is a good deal of force +in the suggestions put forward in this part of the report of the +Department of Justice, and our view is that these suggestions should be +referred to the Minister of Education with a request that he consider +them favourably and forward his conclusions to the Government. + + "(3) We have come across cases in which publications have been + advertised to such persons and in such a way as to endeavour to + sell them or attract the public on the basis of their emphasis or + alleged emphasis on sex, horror or violence. + + "If a publication--for instance, a medical book--is displayed in a + shop window open at a page of illustrations this would probably be + an offence against the present law even though the book may itself + be unobjectionable. There is however, another type of case which + would not be caught by the law as it stands, but which we think + equally deserves to be prohibited. An example of what we have in + mind is an advertisement which is put out by a mail-order firm and + is obviously designed to 'sell the book on its sex.' This open + appeal to salacious instincts is most objectionable and we can see + no justification for allowing it. Whether or not the publication + itself is indecent, we think the type of advertisement we refer to + should be prohibited by law. + + "_Amendments of Principal Act_: Prior to 1954 the Indecent + Publications Act 1910 had stood without alteration for over forty + years, and although its main principles are still sound revision is + badly needed. Indeed, last year's amendment in certain respects + increased rather than decreased the difficulties. In our opinion, + the best solution is to reconsider the legislation as a whole and + to deal with the topic of objectionable publications in a new and + self-contained Act. This would, of course, take some time. We have + notes of many points to raise with the draftsman, but we cite + others of more general significance. + + "(1) We consider that parts of the present section 6 are obsolete + and should be repealed. Section 6 enumerates certain classes of + works which are _prima facie_ indecent. Among these are 'any + document or matter which relates or refers, or may reasonably be + supposed to relate or refer, to any disease affecting the + generative organs of either sex, or to any complaint or infirmity + arising from or relating to sexual intercourse, or to the + prevention or removal of irregularities in menstruation'. + + "In so far as this part of the section would prevent the + advertising of useless or harmful products, it is unnecessary in + view of the Medical Advertisements Act 1942. In so far as it + represents a general attitude it seems out of date now that the + matters referred to are discussed with far less reticence than when + the Act was passed. The reference to drugs or methods for procuring + abortion or miscarriage in the later part of the section might be + retained, but it belongs more properly in the Crimes Act or the + Police Offences Act. + + "(2) At present section 157 of the Crimes Act overlaps the + provisions of the Indecent Publications Act 1910, and the tests it + lays down are expressed in very different language. This section is + little used, but it seems undesirable that there should be two + different tests for what is really the same offence. We recommend + the repeal of section 157 in so far as its subject matter overlaps + the Indecent Publications Act 1910. + + "(3) If the legislation is rewritten, we suggest that consideration + be given to the incorporation in the Act of the 'dominant effect' + test laid down in an American case, the Ulysses case. + + "The consolidation and rewriting of the existing legislation would + be of real benefit. The nature of the topic, however, demands that + any general consolidation should receive careful and even cautious + consideration. We do not think that in this matter urgent or speedy + action is called for." + +The Committee has examined all of these suggestions and recommends that +they should receive the very favourable consideration of the Government. + + +Summary of Principal Conclusions and Recommendations + +I. That the changes in the law which were regarded by the Mazengarb +Committee as calling for immediate action were duly and promptly +brought into being by the Government by and through its 1954 amendments +to the Indecent Publications Act 1910, the Child Welfare Act 1925, and +the Police Offences Act 1927. + +II. That the changes made last year in the Indecent Publications Act +1910 have been to some extent effective and helpful. We recommend, +however, that consideration be given by Government to the redrafting of +the Indecent Publications Act 1910 and to the inclusion in any new +draft of the amendments suggested by the Department of Justice. + +III. That it is clear that the suggestions made by the Mazengarb +Committee for administrative action by certain named Government +Departments along the lines indicated by that Committee have +been sympathetically studied by the several Departments and that +satisfactory measures have been taken by such Departments to carry +out the recommendations of that Committee. + +IV. That in the opinion of the present Committee the Child Welfare +Division should not be reconstituted as a separate and independent +Department of State, but that it should remain, as at present, a Branch +or Division of the Department of Education. + +V. That Government should take effective steps to set up a broadly +based committee composed of men and/or women of expert knowledge and +possessed of specialized training and wide experience to act as a +fact-finding body so that as far as possible a reliable diagnosis may +be obtained of the extent, causes, and incidence of the problem of +delinquency in this Dominion. We think that this must be done before +any thorough-going solutions can be propounded for consideration by +Government. + +VI. That the suggestions made by the Department of Justice with respect +to "comics" in general and "crime comics" in particular and also with +regard to "suggestive" magazines and periodicals appeal very strongly +to the members of the present Committee, and we accordingly recommend +that the Government should take action along the lines proposed by the +Justice Department. + +VII. That every effort be made through the Parent-Teacher and Home and +School Associations to reach the greatest possible number of parents +and prospective parents in order that they might be given the type of +assistance referred to in greater detail in the body of this report. + +VIII. That, for the better attainment of the object set out in the +preceding paragraph, it is recommended that the Director of Education +be asked to confer with appropriate experts with a view to the +provision of suitable courses of lectures for parents and prospective +parents. + +That with the same end in view steps should be taken to increase the +numbers of our visiting teachers, school psychologists, and public +health nurses. + +IX. That the Director of the National Broadcasting Service be supported +in the course he proposes to follow to put into effect the suggestions +made by him in this report. We also stress our view that during the +hours set apart for listening by children there should be a complete +absence of features that can fairly be regarded as being unsuitable for +or injurious to young children. + +X. That on the question of contraceptives the Committee has but one +recommendation to make--namely, that the Government should seriously +consider whether it could be made a criminal offence for any one but a +chemist acting in the ordinary course of his business to sell such +articles to any member of the general public. + +R. M. ALGIE, Chairman. + + + + +BY AUTHORITY: +R. E. OWEN, GOVERNMENT PRINTER WELLINGTON, NEW ZEALAND.--1955 + +_Price 1s. 6d._ + + + + + + +End of the Project Gutenberg EBook of Report of the Juvenile Delinquency +Committee, by Ronald Macmillan Algie + +*** END OF THIS PROJECT GUTENBERG EBOOK JUVENILE DELIQUENCY COMMITTEE *** + +***** This file should be named 26912.txt or 26912.zip ***** +This and all associated files of various formats will be found in: + https://www.gutenberg.org/2/6/9/1/26912/ + +Produced by Jonathan Ah Kit, Mark C. 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