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Twelfth Biennial Report
OF THE
Bureau of Child and
Animal Protection
OF THE
State of Montana
HELENA, MONTANA
1922 - 1924
3 0864 1004 1702 4
Montana State
Library
^^S&SSXh^ Montana
Twelfth Biennial Report
OF THE
Bureau of Child and
Animal Protection
OF THE
State of Montana
HELENA, MONTANA
1922 - 1924
S3'' T
Officers of the Bureau
:i5
State Capitol Building,
Helena, Montana
M. L. HIGGINS,
•
Secretary.
Lillian S. Cummings,
State Deputy.
Clara O'Connor Daly,
Clerk.
ng.
Telephone
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1281
DISTRICT DEPUTIES:
F. P. Collins, 523 S. 35th St Billings
John Hetherington, Dunn Block Great Falls
Frank L. Worden, 631 Stephens Ave Missoula
Emma A. Ingalls, 427 Third Ave. E. Kali^pell
Paul A. Ozanne, Court House : Butte
William W. Jones, Court House ..Havre
Letter of Transmittal
Helena, Montana,
December 15, 1924.
To the Honorable Joseph M. Dixon,
Governor of Montana,
Executive Office,
Helena, Montana.
Dear Sir:
In compliance with the law, the Bureau of Child and
Animal Protection has the honor to submit its Biennial Re-
port for the two years ending November 30th, 1924.
Respectfully submitted,
M. L. HIGGINS,
Secretary.
Report of the Bureau of Child and
Animal Protection
FOR THE YEARS 1922-1924
The State Bureau of Child and Animal Protection was
created by an Act of the Legislature twenty years ago. In
the following pages we shall endeavor to given an outline
of the work it is doing.
In a general way it has to deal with the youth of the
state, although quite often cases are brought to us of
domestic differences and of elderly persons who are not
getting the help they are entitled too from relatives, so in
fact we are a sort of clearing house for troubles, and are
glad to relate that by interviews with the parties directly
connected we have often been able to adjust without publicity
what might have resulted in legal procedure.
Cases of dependent, delinquent, neglected, deserted and
destitute children and cases of cruelty to animals come under
the supervision of this Bureau.
Montana has fifty-five counties covering 146,997 square
miles, these counties are divided into districts and six dep-
uties together with the Secretary cover the entire area.
To the State Deputy, or Placement Officer is assigned
the duty of placing children in private homes either for legal
adoption or for care and education.
Each case brought to our attention has its own peculiar
angles and has to be considered not only from a point of
law but from the humane side, what might be the best way
to solve the problem of one child, would not be the correct
or proper way to handle that of another.
It may be interesting to note that under the former
administration during the years, 1918 to 1921, there was
expended for the Bureau $69,633.71, while under the present
administration, for the years 1921 to 1924, the expenditures
were $52,268.94, thus showing a saving during the past three
years over the other administration of $17,364.77.
Our cases of cruelty to animals have been greatly re-
duced since the automobile has replaced the horse as a mode
of transportation, on the farms and in the construction work
also the. big powerful gas machines are seen where a short
time ago the horse and mule did the work, plodding along
faithfully, if slowly.
Although, as will be seen by our reports and figures,
we have been called on to investigate and stop many cases
of abuse of animals. Anyone who will wilfully abuse one
of God's lowly creatures should be punished severely. We
find that as soon as such people are given to understand
that animals have the right of protection they usually be-
come more careful and we do not often have a second offense.
That the work of the Bureau is far reaching one will
realize, when one stops to consider that the boy and girl of
today will be the man and woman of tomorrow, so we must
try to guide and direct their foot steps that in the^future we
will have good, strong and respected citizens.
In 1920 the Legislature cut the appropriation of this
department from something over Twenty-four thousand dol-
lars to Ninteen thousand and eighty dollars, again in 1922,
they saw fit to make another cut appropriating only Fifteen
thousand five hundred and sixty-five dollars for the two
years ending June 30. 1925. This greatly retarded the work,
the law calls for six deputies at a salary of one hundred and
fifty dollars each, per month, besides traveling expenses,
therefore, in order to carry on the work and not have a de-
ficit at the end of the two years it was decided to cut off one
deputy from the regular roll with the understanding that he
w^ould handle any cases that w^ere sent him from this office
and would be paid for time spent in so doing; that one
deputy be allowed only half time salary, and the other four
accept a reduced wage, by mutual consent this program was
carried out and we have done very well under those con-
ditions. In many instances the expense of transporting
children has been met by the county to which the child be-
longed some of the work has been referred by letter to the
county attorneys in the districts where there are no rail-
roads and where it would mean a heavy expense to send
a deputy.
The County Superintendents of Schools and the Execu-
tive Secretaries of the Red Cross have been of assistance to
us also, and have gladly made the first investigation of a
case and reported to us, thus saving the expense of one .trip.
If we then found a condition such as to warrant further in-
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vestigation, the deputy located nearest the point in question
was then sent.
The Attorney-General and his staff have very kindly and
quiclfcly rendered advice and given decisions on matters pre-
sented to them by this office for which I am extremely
appreciative. Our work brings us in close touch with the
various District Court Judges and the County officials
throughout the state and at all times have we been met
with the greatest courtesy and I herewith express my grati-
tude.
Mr. J. V. Hawk, Superintendent of the Montana Chil-
dren's Home Finding Society has gained my sincere ap-
preciation for his ever ready and willing offers of assistance
in our work, as has also the officers of the Parent-Teacher
association who have done their share when called on to
assist.
Time and opportunity have not availed in the recent
months for the Secretary to make personal visits to all of
the institutions, but the nature of the work of the Bureau
brings us in close touch with these places, and to each and
every one, whether a private or a State institution, the Sec-
retary and the deputies are of one voice in saying that we
have been received most courteously and that our relations
have been most harmonious. I highly commend the efficient
work of the heads of these various institutions and homes.
The work of this Bureau is closely 'allied with that of the
Florence Crittenden Home and too much praise cannot be
given to the superintendent, Mrs. Lena Cullum. It is here
that the homeless girl or the unmarried girl who is about
to become a mother finds shelter and loving care during a
time when the world turns against her. If after her babe
arrives she finds that she is unable to care for it, and is
willing, this Bureau then takes legal guardianship of the
child and through the Placement Officer a home is found
into which the little one is received and adopted. The mother
quite often remains at the Home and finds employment and
is helped financially and morally by those in charge and
when she finally leaves she will have a brighter and better
outlook on life. At present there are fifty inmates at the
Crittenden Home.
Gladly will I testify to the energetic, loyal and intelli-
gent work performed by the officers of the Department.
They have endured hardships in the prosecution of the work
and often have been subjected to unjust criticism, but they
have ever been faithful and industrious and are deserving
of my unstinted praise.
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The State Deputy, Mrs, Lillian S. Cummings, has sub-
mitted the following report:
November 30, 1924.
Mr. M. L. Higgins, Secretary,
Bureau of Child and Animal Protection,
Helena, Montana.
Dear Sir:
I herewith submit a report of the work of the State
Deputy as the child placing and supervising agent of the
Bureau of Child and Animal Protection for the biennial period
from November 30, 1922 to November 30, 1924.
Children placed in private homes and adopted 151
Returned to parents or other relatives 152
Total .- 303
Visitations :
Children visited after placement 275
Private homes visited 334
Interviews :
State and County officials 291
Miscellaneous 1,003
«
Investigations :
Applications for children:
Personal investigation ....'......■.... 108
By correspondence ...■.—. 50
Miscellaneous 83
Total :....:.. - ...._ 241
Letters written .1,309
Phone calls 971
The figures appear first in this report but they are
by no means first in importance in this branch of funda-
mental child welfare work. The point for emphasis is
quality not quantity. What kind of homes have been pro-
vided for the children? What kind of citizens are they
being developed into? The constructive idea is, how good
are the foster homes rather than how many are ' there.
Many of our children have been received and adopted into
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some of the best homes in the State, while others have
only the ordinary advantages of life. An earnest effort
has been made to fit the right child into every home and
only a very few have had to be transferred or returned to
the State Oi-phan's Home. There is not the same incentive
and enthusiasm to visit children who are already placed
or apparently doing well, that there is in making new place-
ments, but your deputy when on a trip of investigation in
any place in any certain district makes a special point of
visiting all children placed in that territory whether they
have been adopted or not.
There is a very apparent economic value in inquiring
into new applications and just as great, though not nearly
so apparent a value in friendly visits to homes where our
children are living and receiving their training for useful
manhood and womanhood. Frequent visits of the Place-
ment Officer are very helpful from several standpoints:
(1) For the purpose of establishing friendly
relations.
(2) For observing the development of family
life, in the homes selected for our children.
(3) In helping to establish and maintain the
proper balance between parent and child.
(4) Such visits have a very wholesome restrain-
ing influence on all concerned, many times differ-
ences that seem rather formidable are adjusted
and happier conditions prevail after a visit from a
supervisory officer.
Several year's experienpe demonstrates the fact that
the closer supervision exercised over children placed out, the
better the result obtained.
Montana has a territory equal to three fair sized
Eastern States, but up to this time our law has provided
for only one officer whose special duty it is to place and
supervise the state children who are in private homes.
This report would not be complete without mention
of the kind reception and hospitality extended to your
State Deputy in all the homes visited throughout the
length and breadth of the state. Some lasting personal
friendships have been formed and there exists a real
spirit of interest and co-operation in the work of the
Bureau.
The general work done by your State Deputy is equal
in volume but somewhat different in character to that
accomplished in the former biennial period. The work of
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the Bureau has been presented to six different organiza-
tions as a part of formal programs. A number of girls
have been accompanied to the State Vocational School for
Girls and some special investigations have been made for
the school and for other institutions. Thirty children have
been taken to the State Orphan's Home or to foster par-
ents. Several girls needing the care of such an institution
have been sent to the Florence Crittenden Home. The
greatest economy has been exercised in this department of
the work and the effort always made to have one dollar
spent for expense represent much more in actual results.
In other words the largest volume of work possible has
been done on the least amount of money.
It sometimes seems a pity that there is no compulsory
education for parents, some are so ignorant while others
are so indifferent, and still others so wilfully negligent of
the welfare of their own children. Our present day ideals,
or lack of them, and present living conditions seem to be
responsible for some shocking instances of the desertion
of children by their parents. Within the last two years
several parents have been cruel enough to leave children
absolutely without provision for their care. Others have
almost insisted on giving their new born baby to strangers
to care for, so the "tourist" parents could proceed on their
journey to nowhere in particular in a poor old worn out
automobile.
If all our dependent, neglected and abandoned children
were under six years of age, we could probably place them
all in private homes within a very few weeks or months,
because so many good homes are ready to receive some
little child. Several childless homes have received two
3^oung children of the same family, and older children
taken for care and education are placed in the same neigh-
borhood where they can grow up together without losing
their family connection.
In placing children, one is often reminded that "Fools rush
in where angels fear to tread," but the children must have
home both as a humanitarian and an economic measure and
arrangements must be made through some human agency, so
your State Deputy has gone about this work thoughtfully,
prayerfully and most cheerfully as a contribution of service
to the homeless and dependent children entrusted to our
care. She has endeavored always to worthily personify the
helpful and protective powers of the State of Montana, real-
izing fully that the future of many children depends on what
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we of the Bureau of Child and Animal Protection do for
them today.
Respectfully yours,
LILLIAN S. CUMMINGS,
State Deputy.
—11-
Mrs. Emma A. Ingalls of Kalispell is of the opinion that
the work of the Humane officer and of the Juvenile Court
is rather hazy to most people, and states that it is based
upon the assumption that the child, as a future citizen is at
all times the ward of the State and entitled to the protec-
tion of the courts that parents or guardians who do not
treat their children right may be punished, and if necessary
for the future welfare of the child, that it may, by process
of law be taken away and placed in an environment where
it will have a chance to grow into a good citizen. The pur-
pose being to do something FOR the child, not something TO
the child, correction not punishment.
It is comparatively easy to place bright, normal children
in homes where they soon make a place for themselves, the
problem is what to do with those children not eligible to the
Boulder School for Feeble Minded, that come from stocks
too feebly endowed by nature with energy and character to
take care of themselves and the large families that seem to
be the rule with this class.
In Montana we have no law restraining feeble-minded peo-
ple from marrying and the result of such unions is children
crippled mentally, morally and spiritually. This is perhaps
the most prolific source of work for humane officers. Be-
sides, the expense of caring for this wreckage takes a large
slice of our tax money. Yet to allow children to grow up under
destructive conditions and then to punish them because they
have become delinquent, is not merely unjust; it is social in-
competence and stupidity.
We find many children dwarfed in soul and body for lack
of care and nourishment who would respond wonderfully to
wholesome living and a happy environment. Then we see
the other side of the picture many childless homes where
these little waifs would give as much as they would receive
if the childless ones would only have faith in the power of
love and a home, to work the miracle of progress in the
child handicapped by heredity. The human plant like a tree
must have conditions favorable to growth.
Institutional life cannot take the place of a home in assist-
ing children to develop the best that is in them. It neces-
sarily is too mechanical and stunts the emotional life. Thus
one of the most gratifying trends of the Bureau work is the
systematic effort to place children when possible in private
homes. The advantage to the child is positive. It will more
easily find openings for self support where it grows up in
full acquaintance with the neighborhood life and its resources,
and will develop more initiative and self reliance. I have' had
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many requests for assistance from other States and have
also received many favors from officers of outside States
when I have had to send children to friends and they were
compelled to travel alone.
In closing I will say that Child Welfare in the last analysis
becomes a question of intelligently applied eugenics, and a
government that does not care for its future citizens must
later pay for it in a more expensive way by supporting them
in reformatories and penitentiaries.
Mr. F. P. Collins of Billings gives a summary of the work
done in his district and includes the important cases, or the
ones which required attention either of the District Court
or that were settled otherwise to the benefit of the chil-
dren. Many cases were reported and required time for in-
vestigation and then proved to be without foundation, no
report was made on them.
Quoting from his report: "At times it seemed that one
could only touch the high spots of the work that was to be
done in so large a district. Personally, I have become very
much interested in Juvenile work and believe that there is
not enough interest taken in the welfare of our growing
generation ; there is too much inclination on the part of
citizens and parents and sometimes even officials to pass
these matters up lightly. We should have an ironclad law
holding the parent or guardian responsible for dependents
and delinquents, thereby relieving the State and counties of
the burden of caring for and supporting the children of
parents who are living, yet who are adjudged unfit or in-
competent to rear them. As it is now, public funds are being
drained and public institutions filled with the children of
parents who should be compelled to furnish the funds for the
support of their offspring.
"From November 30th, 1922, to November 30, 1924, I have
investigated 382 delinquent cases and 493 children who
were considered dependent, or a total of 875 children. Of this
number 28 were committed to the Boys' Industrial School
at Miles City; 14 to the Girls' Vocational Training School at
Helena; 21 to the State Orphan's Home at Twin Bridges;
26 to the Bureau of Child and Animal Protection: 8 to the
Florence Crittenden Home at Helena; 5 to the School for
Feeble Minded at Boulder; 4 to the School for the Deaf and
Blind at Boulder; 18 sent out of the State to relatives and
friends; 1 to the House of Good Shepherd at Helena; 1 to
the Montana Children's Home Finding Society, and 2 remain
wards of the District Court.
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"About 63 cases of neglect and abuse of dumb animals
were investigated, aggregating several thousand head of
stock, several cases comprising large flocks and herds. In a
number of instances animals were killed, it appearing that
there was nothing else to do but put them out of their
misery, here I might mention that a change in our statutes
would not come amiss, and the Colorado law be adopted thus
giving the Bureau authority to take up and care for neglected
stock.
"In most instances I have had the hearty support and co-
operation of the county officials in my district and the past
two years I shall look back upon, not only with a feeling
of service to the community but with pride and appreciation
for those with whom I have worked in this Bureau."
From Paul A. Ozanne, the deputy covering the Butte dis-
trict, we have received the following: —
My Dear Mr. Higgins:
"You have requested a brief summary of the activities of
the Butte distrcit of the Bureau, covering the fiscal period
ending November 30th, 1924. I am not unmindful that a
more extensive recital of operations in general is not within
the limits of your report, or the alloted space of your depart-
ment.
"Because of the complexity of Butte's population and its
incongruous customs, habits and temperament, the demands
upon the "Humane Officer" are at once varied and trying and
his activities and experiences are replete with acute condi-
tions, some of which beggar description.
"While a constant warfare is waged against the vicious
and cowardly who offend against childhood, many obstacles
are met, with which it is very difficult to contend.
"It is my candid belief, after four years of active service in
this department, that the most potent factor contributing to
the necessity of rescuing children from intolerable conditions
and vicious surroundings, who, by reason of age, are unable
to protect themselves, is the delinquency of parents — shift-
less and indifferent parents — whose own neglect brings about
conditions and circumstances making commitment to insti-
tutional care an absolute requisite.
"I am free to confess that in many families investigated, I
have found the crying need for a rehabilitation of the home,
and the establishment of a proper sense of responsibility for
the protection of the children's heritage.
"Against those who violate childhood, a system of relent-
less prosecution is demanded, and they should, in every in-
stance, be brought summarily to justice.
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"Estrangement between husband and wife, excessive in-
dulgence in intoxicants, the deadly narcotic, as alike desertion
and abandonment on the part of either parent, have con-
tributed their quota, yea, even their full measure to the piti-
ful experiences of children. It would seem that once the
deserting parent is outside the confines of our State, he or
she, apparently is. immune from punishment. This is a con-
dition which should not obtain. Prompted by the spirit of
human sympathy, the laws governing child protection should
be made more stringent, or their enforcement more effica-
cious, to the end that much of the abuse, neglect, cruelty,
destitution, desertion, abandonment, improper guardianship,
delinquency and kindred violations of child welfare will be
minimized.
"Instances of actual cruelty to animals in this community
are not of frequent occurence, and when committed, is gen-
erally by thoughtless and mischievous juveniles."
SUMMARY OF THE WORK FOR THE YEARS 1922-1924.
We recommend the careful and thoughtful perusal of the
following :
Dependent Children.
Investigations 2176
Sent to State Orphan's Home 129
Sent to Private Orphan's Home -. 58
Committed to the Bureau 159
Placed in Private Homes and Adopted 462
Returned to Parents or Other Relatives .— 152
Sent Out of the State 1.35
Mother's Pensions _ 69
County Aid Secured for _ 374
Delinquent Children.
Number of Children Investigated 613
Sent to State Industrial School ~. 35
Sent to Vocational School for Girls 31
Sent to the Crittenden Home 38
Placed in Private Homes 39
Sent to the House of Good Shepherd 9
Paroled 63
Sent Out of the State _ .^. 26
Other Dispositions .— .- *. 66
Defective Children.
Number Children Investigated ..- 158
Sent to Boulder 23
Sent to Warm Springs 6
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other Investigations.
Number Children Destitute 322
Number Children Neglected 522
Number Children Deserted — 188
Number Children Truant .' -- 58
Cruelty to Children - -,-— -'- ^3
immorality of Parents .' f- 39
Non-Support of Children 67
Statutory Rape -........„ 41
Incest 2
Cuelty to Animals 565
Number of Animals Killed 81
Prosecutions.
Cruelty to Children .- '. 13
Immorality of Parents - - 16
Non-Support and Desertion of Children 28
Statutory Rape 28
Incest 1
Cruelty to Animals 6
Convictions.
Cruelty to Children 8
Immorality of Parents 3
Non-Support and Desertion of Parents 11
Statutory Rape 6
Cuelty to Animals - — -- 1
Cases Pending in Court.
Cruelty to Children 3
Immorality of Parents 2
Non-Support and Desertion 8
Statutory Rape - - 16
Cruelty to Animals 2
Marriages.
Marriages 15
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