I don't fully understand my essay assignment. 4 parts, 10 pages?

I’d like a little help with this please.

My topic is what should be done with youth offenders.
I chose to be pro rehabilitation for young offenders.

It’s a four part paper; one paper each on:
Definition
cause and effect
values
policy
(about 2.5 pages each, put all together to make one paper)

How do I describe youth offenders for 2 pages? I’m confused and the teacher isn’t clearing this up for me.

Anyone know how to structure this paper?