ACTIVITIES 9 dacatonal Policies Commission LC8o° wll eres iruitied by the National Gilucatin Association of the United States and the American Association of School Administrators 1201. Sixteenth Street, Northwest, Washington, D.C. PR Or tly 1939 : Federal Activities in Education Educational Policies Commission National Education Association of the United States and the American Association of School Administrators 1201 Sixteenth Street, Northwest, Washington, D. C. Copyright, 1939 NATIONAL EDUCATION ASSOCIATION OF THE UNITED STATES Washington, D. C. Price Fifty Cents per Copy rh FOREWORD IMPORTANT CHANGES in federal educational activities have re- cently been effected. In order to keep itself, its Consultants, and the public generally, informed concerning this area of educational policy, the Commission directed that a study be made of the purposes, scope, administration, and organization of certain fed- eral activities in education. The Commission is indebted to Litoyp E. BLAUCH for conducting the study and for drafting this document. To this task Dr. Blauch brought an extended experience in several federal educational agencies, including serv- ice on the staffs of the Employment Service, the Office of Edu- cation, and the Advisory Committee on Education. This statement emphasizes current conditions with no attempt at this point to offer further recommendations with reference to policy or procedure. The relation of the federal government to schools and other agencies of education has already been treated by the Commission in The Structure and Administration of Edu- cation in American Democracy and The Effect of Population Changes on American Education. Publication of this document was authorized by the Commis- sion on May 8, 1939. Since that time it has been revised to take account of the recent reorganizations. The document is not a com- plete review of the multitudinous activities of federal agencies in education, but it is believed that it does cover those of the greatest importance to the conduct of education in the states and local communities. Under our form of school administration, federal activities in education are by no means exclusively a federal problem. These activities take effect largely through local and state educational agencies and thus become a matter of local and state concern. For this reason, this summary should prove useful to the increasingly large group of students and workers in education who need to have available a concise, up-to-date review of the educational work of the federal government. iii The Educational Policies Commission Appointed by the National Education Association of the United States and the American Association of School Administrators Appointed Members ALEXANDER J. STODDARD, Chairman CORNELIA S. ADAIR JOHN K. NORTON Lotus D. COFFMAN* AGNES SAMUELSON GEORGE S. COUNTS JOHN A. SEXSON EDMUND E. DAY PAYSON SMITH J. B. EDMONSON GEORGE D. STRAYER FREDERICK M. HUNTER WILLIS A. SUTTON EMILY A. TARBELL Ex-Officio Members MYRTLE HOOPER DAHL BEN G. GRAHAM WILLARD E. GIVENS S. D. SHANKLAND REUBEN T. SHAW Advisory Members J. W. STUDEBAKER GEORGE F. ZOOK William G. Carr, Secretary 1201 Sixteenth Street, N. W. Washington, D. C. * Deceased September 22, 1938. iv Table of Contents PAGE BR aha a ee aes ae cds UATE REN date aC Sede cata z PT RO aE iss axhdan pes ili CHAPTER WME RECOCL LICE OLB ene ricacciee ie renea ero cniecae eecacans tis Coa vosns teeweot vanes cnaastares atedadousesentne 1 a heskederals Constitutions and pauCcatOtlus 1c esseaeeceree een eee are 1 Grants of Land for Schools and Higher Education ...............s0ssseccceceees 2 Early Monetary Grants Benefiting Schools ........c.ccc.cciescescsesesesereeeeeeee 3 Management and Results of the Land and Money Grants ................ 4 Further Evolution of Federal Policy Regarding Education .................. 4 Biplioetaphicalauin Oteu ede coeaccetaeeee: Bran tee as ce tecest ee Ceres EAR SEW MG 04s Lida 6 iiead hesand-Grant: Colleges and: Universities se. .caactisccsssss ent tetaeseeincesteces aces 7 Peer ale LE SiSlAriOn ae eecanc enews cyiccemte et aeet eee occ Meee ieee ee eM ea eax cgensn ave ri PNdOWMment atid) SUDPOLLLOL Che COLLESOScaceresesestnanens: nennen sores sees y/ PQUICIItU Fale xX Pet lINeNG StALLONS peel eee ert tee eee tees tenis eos 8 OO Pelatl ye. CXCENSIOIs WOK ty cede cwut sec cte-. sceeem ene conv eon sec crkics 9 Legislation for the territories and insular possessions ...............0066 10 Ate LOle COCR ELOSTAID Ge ae Ree eta hsereehe eet ee een TeA NE nse as 10 ENstrucrion LOL students ANA LesIdeENCOd at ciactise bariatric iicistys sa Researchaitstoe experimen tystanlons ee ee terete ene tc t es 12 CEOGDELALIV Gx CXCENSIODILWOLK Wr .cecesteraseee eee ay ee eae en en eaaat en gay tess i PY CHTISTISCEAUIC Memete es eae ee ee ee eta tes ene NT on gotel Ua ads UME Sees A Ke & 14 Staterancdscoumtyr admMiMiStLatiOniw weacciescecsck cheer ete tyescase tenes avtc ees 3s 14 MEGELAlSAGMINIStPAtlOMa cee seseace etter aca Tetan TEM ee calceckarscces 16 Extentyjou thes nstitntions and ys LNeifeW Ofkusre a. carescieeereeitevesexss35ee 17 TR STO SELON Tels. ceo lee ema ee mre ere eR yer ikecctohen eos ts oy Heep 18 BS piosea pn ical mINOLe mercies welch etioce Mesaaes hoch eeneetr sere tel tant ye 20 III. Occupational Training, Placement, and Rehabilitation .........0..0..0c000008 21 MN ATILICA BE ECUCALLON Wat ee eee ce ete ee eT ee ee ea ee che ce 21 DEALER TIAULICALESCOOOLS Eerie cee tircaes occ lee ocreavs terete ities avinbera Mikes Me Zh Cadet system under the United States Maritime Commission........ 23 hesUnited estates, Maritimes Service rd. tiiicscrsiieeeceritswsseeeteestncss 2) raining tby other-schools and agencies .......1y.csecstccasceeee etree ccssescoce 26 NV OCAUON AN BCUCAUON Mies: ctccscatuice: ate aes ue ne OMEPEF PE. ee 24 Lepislationy ges cs tccene tests corre teehee ECE ee Se Ma ea Ue: 2 IN atiferOfsthes DrOStaM Mawar ne he eer icc eee eee ee en 29 PA INILLISCLALL ONG crete tenet ceca Seeaey Seer d, Aenea ee CETTE tris cece Livers 42 CODE Ree er rete ccreetecn ite ere cane Soee teen erect td ester a een con it, 33 BuciresrarmerstorsAmerica naan hee eee eee ees eee os 34 PA DDIENtiCeshl peOeLViCeli-.shesseeesccessestndcaeene er meee ere ree sone 36 MCEISLATION MET checett sc tres cocest ieee nea TET TL ee TNs elas 36 Nature: or theractivities ecm, sersrs ce tec oe evens 2 er een tee 37 PACMIMIStratiOnineceteees tera carters tere TTR ee eet ene 38 Scope oteapprenticeship acti viticstss see eee ee a2 Aviation Education ......... RRL Ges PEPE ee VAT SAREE TS IS cy aa et oP EP . - 40 he-ttainin oe: oflaviation: mechanics r,s ee ie 40 Era nin cvOrsplulotse. cee cit cece coe te ee 40 ADDLOV al nO! SCHOOLS po tostset sets edee tl coneert sa teers eae than PS 42 Employment Service ........ PPT h Shinra esther eet ssu in wi PArce cota OEE 42 He cislarign yen hs ic store ssedc ices cece eee Le Ee ehals aq oe Watitecottherservice @. nrc te ee ee ee ef REY .. 44 AGM nistrationy Of, theuserviCeas cris sara Wee te ecole: 45 Scope of the service .............. LR AIRRAN REE AN PR DORA LA th Ak? OO 47 TABLE OF CONTENTS (Continued) CHAPTER PAGE Vocational Rehabilitation of the Physically Disabled .............ceee 48 Legislatiotis) Wecverdk rcheevacetsdsbinvcncosnsvavncseneednoresindatce sis; tic, Matt. aan 48 Nature, of the ‘service iii. csscspisdsssciasvoveuncbSeccss saveece¥steegtesbesq agen 50 Adiministrationy | s70.icciiccsdasovasaans side sens sendevestemeenasend etete realest tte ima 50 Scope’ of ‘the Service ..2issel.iseseswsees csessey poteteo 184,203 358,015 | eee ures given because those counted more than once are not known. For maintaining the vocational education program, almost forty- five million dollars was spent, as follows: (a) total, $44,994,537; (b) federal money, $17,737,118; (c) state money, $9,446,752; and (d) local money, $17,810,667. The appropriation to the Office of Education for administra- tion of the legislation and for making studies and reports on vocational education during the fiscal year 1938 was $425,000. Future Farmers of America——In 1928 a number of local clubs and organizations of vocational agriculture pupils formed a na- tional organization known as the Future Farmers of America. This organization consists of affiliated state associations, which in turn consist of local chapters in schools giving instruction in vocational agriculture under the Smith-Hughes and George-Deen {34} Acts. The national headquarters are in the United States Office of Education, and state headquarters are with the state boards for vocational education. Membership in the Future Farmers of America is voluntary and somewhat selective. It is limited to pupils regularly enrolled in all-day, part-time, or day-unit classes in vocational agriculture, but boys may retain active membership for three years after com- TABLE 2. NUMBER OF INSTITUTIONS AND OTHER TEACHER-TRAINING AGENCIES PREPARING VOCATIONAL TEACHERS UNDER THE FED- ERALLY AIDED PROGRAM, NUMBER OF ‘TEACHERS OF THE COURSES, AND NUMBER OF STUDENTS ENROLLED, FISCAL YEAR 1938 EEA OD Teachers of Enrolments in ; or other gee Field of teacher- teacher-training teacher- ES RG ESE fe preparaiton a training courses im msit- AS courses tutions agencies BY MHCIAS onc. seteesecene a5 180 1,366 31,4444 PPTIGUICUTE ,.....0..820205- 110 3.40 5,606 Trades and industries 104 446 11,269 Home economics ...... 131 526 12,634 Distributive occupa- SS ee ee 35 62 1,935 a Not including 26,041 persons in in-service training. pleting their systematic study. Associate and honorary member- ship is provided for. The organization has grown rapidly. In June 1938 it had a membership of approximately 171,000 in 5,648 chapters, which were scattered through all the states, Hawaii, and Puerto Rico. Alumni chapters have been formed in some of the states. The Future Farmers of America hold their annual national convention in Kansas City in October at the time of the Royal Live Stock Show. A national speaking contest, judging contests of various kinds, and other events are a part of the program, which is participated in largely by those who have won in dis- trict, state, and regional contests. [35] A similar but separate organization, the New Farmers of America, is being developed for Negro boys in classes in voca- tional agriculture. In June 1938 the 692 chapters, concentrated largely in the southern states, had approximately 20,000 members. APPRENTICESHIP SERVICE For yeats apprenticeship has been an important method of training for many occupations. It has not been as general in the United States as in some other countries, but in a number of trades it has been employed extensively. Recently there has de- veloped a renewed interest in this form of occupational train- ing, and the federal government has taken steps to promote it. Legislation ——The Federal Committee on Apprentice Training was created by Executive order on June 27, 1934,” for the pur- pose of maintaining an apprentice training program under the National Recovery Administration codes. After the National In- dustrial Recovery Act was declared unconstitutional, the func- tions of the Committee were transferred to the National Youth Administration, but the Committee continued to operate from offices in the Department of Labor. This Committee brought to- gether trade associations and labor organizations to formulate apprenticeship programs acceptable to both groups, cooperated with state and local groups interested in apprenticeship, and served in an advisory capacity to both employers and employees in set- ting up practical programs for training skilled workers. By the Fitzgerald Act, approved August 16, 1937, the Secre- tary of Labor was “authorized and directed to formulate and pro- mote the furtherance of labor standards necessary to safeguard the welfare of apprentices, to extend the application of such standards by encouraging the inclusion thereof in contracts of apprenticeship, to bring together employers and labor for the formulation of programs of apprenticeship, to cooperate with state agencies engaged in the formulation and promotion of standards of apprenticeship, and to cooperate with the National 10 No. 6570-C. {36} Youth Administration and with the Office of Education of the Department of the Interior.’'* The Act relieved the National Youth Administration of direct responsibility for the promotion of labor standards of apprenticeship as conducted through its Division of Apprentice Training. It also authorized the Secre- tary of Labor to appoint national advisory committees, which should include representatives of labor, educators, and officials of other executive departments. A group of five persons has been appointed and is known as the Federal Committee on Appren- ticeship. The administration of two important acts involves some rela- tions to the functions of the Committee. Under regulations pub- lished by the Administrator of the Fair Labor Standards Act of 1938” it is required that, as regards apprentices employed at wage rates below the established minimum, the employer and the apprentice mutually shall have entered into an apprenticeship agreement approved by the Federal Committee on Apprentice- _ ship or by a state apprenticeship authority that has been approved by the Federal Committee on Apprenticeship. In accordance with wage determinations for the steel and the aircraft industries made by the Secretary of Labor under the Walsh-Healy Act,’* ap- proved June 30, 1936, an apprentice may be employed at wages below the minimum if his employment conforms to the standards of the Federal Committee on Apprenticeship. Nature of the activities —The Department of Labor promotes indentured apprenticeship to the end that youth employed in the skilled trades and those entering such trades will receive the benefits of broad training on the job, supplemented by education in subjects related to the trade. Specifically, it promotes the adop- tion of labor standards necessary to safeguard the welfare of apprentices, encourages the inclusion of such standards in con- tracts of apprenticeship, brings together employers and employees for the formulation of standards of apprenticeship in their trade, Taso Star 1.664. 12 52 Stat. L. 1060. 13 49 Stat. L. 2036. [37] cooperates with state agencies engaged in the formulation and promotion of standards of apprenticeship, cooperates with the National Youth Administration and with the United States Office of Education in matters relating to vocational education and ap- prentice training, conducts research concerning the labor stand- ards of apprenticeship in various trades, acts as a clearinghouse for information on apprenticeship, and serves in a technical, con- sulting, and advisory capacity to all agencies concerned with ap- prenticeship. The term “apprentice” has been defined by the Federal Com- mittee on Apprenticeship to mean a person at least 16 years of age who is covered by a written agreement with an employer, or with an association of employers or employees acting as agent for an employer, and approved by the state apprenticeship coun- cil or other established authority, the apprentice agreement pro- viding for not less than 4,000 hours of reasonably continuous employment for such person, and for participation in an ap- proved schedule of work experience through employment, and for at least 144 hours per year of related supplemental instruc- tion. This definition has been accepted by various government agencies, trade groups, and state legislatures. Administration —The administrative unit in the Department of Labor which deals with apprenticeship matters is the Federal Apprenticeship Service in the Division of Labor Standards. Its influence is exerted through promotional activities and through assistance rendered to groups desiring it. There are no federal grants-in-aid to promote apprenticeship training. The relationship between the Department of Labor and the United States Office of Education in the field of apprenticeship has been worked out by agreement under which the responsi- bilities of both agencies to the apprenticeship program are de- fined. The responsibilities designated as appropriate to the fed- eral and state departments of labor have to do with labor stand- ards and the supervision of conditions of apprenticeship, includ- ing such matters as quotas of apprenticeship for various trades, age of entrance into apprenticeship, selection of applicants, ap- [38 } proval of agreements, remuneration, hours, length of apprentice- ship, and schedule of operations to be learned. The group of responsibilities designated as appropriate to the United States Office of Education and state departments of education has to do with the educational phase of apprenticeship: (1) providing the apprentice with related instruction; (2) the analysis of various trades in order to determine the content to be taught; (3) the training of occupationally competent workers to be teachers; and (4) the organization of part-time and evening classes for apprentices. Extensive use is made by the apprenticeship service of joint trade apprenticeship committees, equally representative of em- ployees and employers, in attempts to set up the proper conditions of employment on the job, including the apprentice indenture, which will meet the needs of apprentice workers. Scope of apprenticeship activities—The Federal Apprentice- ship Service is not authorized to require reports from the states. It does not, therefore, have complete information on apprentice- ship activities throughout the country. It reports, however, that ten states—Arkansas, California, Louisiana, Massachusetts, Min- nesota, Nevada, North Carolina, Oregon, Virginia, and Wis- consin—have laws on apprenticeship administered by the state department of labor or its equivalent, and that in seventeen states, state apprenticeship councils, or corresponding apprenticeship agencies, have been established. In some of the states the councils are set up under state laws, while in others they are appointed in accordance with the organic acts establishing the state de- partments of labor. At present there are on record 285 joint trade apprenticeship committees in 24 states, representing 21 trades. In its capacity as a clearinghouse for apprenticeship the Fed- eral Apprenticeship Service has distributed widely certain pub- lications prepared for the guidance of local and national trade groups in their attempts to deal with apprenticeship problems. It has held conferences of leaders in various trades and has pro- moted apprenticeship legislation in the states. [39 ] AVIATION EDUCATION Aviation education with federal aid has two aspects: the train- ing of aviation mechanics and the training of pilots. A third aspect of aviation education—training in aeronautical engineer- ing—treceives no federal aid except as it may be carried on as a part of engineering education in the land-grant colleges and universities, which receive federal appropriations that may be used for engineering education. Prior to 1938 the interest of the federal government in civil aeronautics was maintained through the Bureau of Air Com- merce of the Department of Commerce, established in 1934. In 1938 Congress created the Civil Aeronautics Authority and provided for promoting the development and safety, and for the regulation, of civil aeronautics."* The Authority, an independent government agency, consists of five members appointed by the President, by and with the advice and consent of the Senate. The training of aviation mechanics—A considerable amount of training for aviation mechanics is available through the trade and industrial education receiving federal aid under the Smith- Hughes and the George-Deen Acts. The Office of Education has promoted this form of vocational training, and approximately half of the time of one member of the staff is given entirely to aviation education. During the year 1937-38 a total of 53 schools under the federally aided program of vocational education offered courses in aviation mechanics, and about $53,000 of federal funds was provided for the salaries of the teachers giving this instruc- tion. The state and local funds expended for these salaries were probably about twice the amount from federal funds. Training of pilots—In December 1938 the Civil Aeronautics Authority presented to President Roosevelt its plans for a large- scale flight training program, and in the same month he an- nounced a proposal to train 20,000 pilots a year in the schools and colleges of the country. In his national defense message, January 12, 1939, the President suggested to Congress an ap- 1452 Stat. L. 973. [ 40 } propriation of $10,000,000 a year, to be used by the Civil Aero- nautics Authority for this training. The initial phase of a pilot training program was put under way in February 1939. The Civil Aeronautics Authority selected thirteen schools and colleges of the country to give the program a practical tryout. The institutions were chosen on the basis of pioneer work they had done in aeronautical engineering and in actual flight training of their students, as well as on the basis of their interest in participating in the project. The equipment to be used was inspected in all of them, and the instructors par- ticipating in the project were all flight-checked by federal of- ficials. A total of 330 students between the ages of eighteen and twenty-five years were selected for the training, and the Presi- dent allotted $100,000 of National Youth Administration funds to support the work. Courses of instruction have been prepared for the schools. Each student is given a classroom course on ground school sub- jects, covering the Civil Air Regulations, navigation, and meteor- ology. The minimum classroom time required on this work totals eighty hours. The flying course calls for an initial period of eight hours of dual instruction plus nine hours of dual check time by the instructor, and eighteen hours of solo flying time for the student. The training of each student is paid for by the federal government on the basis of fifty hours of flight instruction, with the understanding that only thirty-five hours of training need be given if the student at the end of this time passes his examination for a private pilot’s certificate. Students pay a fee, averaging about $35, to cover laboratory fees, insurance, and some other expenses. For the flight instruction the federal government pays from $150 to $250 per student, these sums having been agreed upon through contracts with private operators. The basic purpose of this effort is to extend vocational train- ing in the colleges to include aviation. The program has a two- fold objective: (1) to provide a reservoir of pilots who can be called upon in time of emergency to supplement the trained per- sonnel of the Army and Navy Air Corps; and (2) to stimulate Legh the growth of private flying. It is not expected that students par- ticipating in the program necessarily will enter the commercial aviation industry, but the hope is entertained that they will con- tinue their interest in private flying and, through the training acquired, will be able in the future to aid in the development of private flying. By an Act of Congress, approved June 27, 1939, * the Civil Aeronautics Authority was authorized to train civilian pilots or to conduct programs for such training, including studies and re- searches as to the most desirable qualifications for aircraft pilots. Appropriations were authorized for these purposes, as follows: (a) $5,675,000 during each of the fiscal years 1939 and 1940, and (b) $7,000,000 during each subsequent fiscal year up to July 1, 1944. It is contemplated that with these appropriations 15,000 pilots can be trained during the fiscal year 1940, and 20,000 an- nually in subsequent years. At least five percent of those selected for the training shall be from applicants other than college stu- dents. Students may be required to maintain appropriate insurance and to pay such fees for ground school training as the Authority may deem necessary or desirable. Approval of schools—Prior to 1938 the Bureau of Air Com- merce had begun to set up standards for the training of pilots and aviation mechanics. The Civil Aeronautics Authority has continued this development of standards. There are now 33 ap- proved flying and ground schools, and letters of temporary recog- nition have been issued to 20 schools training aviation mechanics. EMPLOYMENT SERVICE At times during the past thirty-two years some efforts were made by the federal government to place workers in jobs. Since 1933 there has been developed a permanent public employment system on a nationwide scale. Through its assistance to youth — and inexperienced workers the service has a significant relation- ship to education, particularly to vocational training. 15 Public No. 153, 76th Cong. [ 42 } Legislation——The United States Employment Service was es- tablished under the Wagner-Peyser Act, approved June 6, 1933, and since then amended several times.’® It was charged with the responsibility of promoting the development of a national system of employment offices for men, women, and juniors legally qualified to engage in gainful occupations. It was also charged with maintaining a service devoted to securing employment for vet- erans, a farm placement service, and a public employment service for the District of Columbia. The Act requires that state plans for carrying out its provisions, in states where a state agency exists for vocational rehabilitation of physically disabled persons, shall in- clude provisions for cooperation between the employment service and the vocational rehabilitation service. The Wagner-Peyser Act provides for federal appropriations to be apportioned to the several states for the purpose of establish- ing and maintaining systems of public employment offices. As a condition for participating in the federal appropriations, such amounts as a state receives must be matched equally with state or local funds for the purpose of maintaining public employment offices. Under the program of social welfare established through the Social Security Act, the public employment offices have had placed on them important responsibilities for the administration of un- employment compensation. For the discharge of these responsibili- ties the Social Security Board provides additional funds for the employment offices. The United States Employment Service was formerly a bureau in the Department of Labor. On July 1, 1939, its functions were consolidated with the unemployment compensation functions of the Social Security Board, which had formerly been administered by the Bureau of Unemployment Compensation of the Board. The Social Security Board in turn became a part of the new Federal Security Agency. At present (July 10, 1939) the name of the consolidated bu- reau has not been determined, and the details of the consolidation 16 48 Stat. L. 113. [ 43 } and the organizational structure are still in the formative stage. The functions and general plan of operation of the United States Em- ployment Service have been transferred intact, subject to a gradual integration of the consolidated services. The following sections describe the activities of the Employment Service prior to July 1, 1939, which in the main are being carried on as they formerly were. Nature of the service—The local offices operated under the state employment services place jobless persons in employment. No charge is made for the service, either of workers or of em- ployees. Placements are with private employers, in public em- ployment, and on work-relief projects. At the beginning of the United States Employment Service under the Wagner-Peyser Act, the employment offices in the states registered juniors, that is, youth between the ages of 16 and 21 years, or youth who were inexperienced workers, but this service was not then separately organized in most of the offices. By 1936 a few states had provided a special organization for the placement of juniors. In 1936 the National Youth Ad- ministration, in cooperation with the United States Employment Service, began a junior placement program, the National Youth Administration supplying funds to staff junior divisions for young applicants in a number of state employment service offices. It was anticipated that the state employment services would eventually take over the personnel in these junior divisions and provide for their support. This has been done in a number of states and is being done in others. The service to juniors consists of vocational counselling and placement. In many cities a form is sent to the schools when the youth registers in the employment offices. On this form is obtained information regarding his schoolwork, including available data on tests, all of which is incorporated on the registration card. In a number of cities placement reports are sent to the schools, indicating the pupils placed and the jobs into which they have gone. In a well-organized junior division, cooperation is established with psychological clinics, vocational training agencies, and other community organizations established for the benefit of youth. (aed During the fiscal year 1938 the American Youth Commis- sion and the Employment Service, in cooperation with the schools and employers in four cities—Baltimore, Providence, St. Louis, and Dallas—joined in cooperative experiments and demonstra- tions to develop community counselling and placement services for young people. Job descriptions were made for most of the occu- pations in the community. Studies were made of the occupational abilities required of workers in leading occupations. Some effort was given to measuring occupational trends and the number of job Opportunities in various fields of work. A counselling and place- ment service for youth was set up, using all of the materials men- tioned, in an effort to relate the training and guidance programs to the occupational needs and possibilities of the community. Similar rural experiments and demonstrations have been estab- lished in two counties in Maryland and two counties in Missouri. All of this work is to be completed during the summer of 1939. Administration of the service—The federal administration of the employment program is under the United States Employment Service. Each cooperating state is required, through its legislature, to accept the provisions of the Wagner-Peyser Act and designate or create a state agency vested with authority to cooperate with the United States Employment Service. The state agency submits plans to the Director of the United States Employment Service, which are approved if they are found in accordance with the Act, and on the basis of these plans cooperation goes forward. The Director determines and certifies to the Secretary of the Treasury the amount of federal payment to which each state is entitled. A federal advisory council, composed of men and women rep- resenting employers and employees in equal numbers, and the public, advise the Director. The law makes mandatory the or- ganization of similar state advisory councils. The Washington office of the United States Employment Ser- vice has a junior placement representative, and several of the state employment services have supervisors specializing in junior placement activities. Special junior divisions exist in 180 employ- ment offices in 46 states and the District of Columbia. In all [ 45 ] other offices services for juniors at present are generally provided through the adult divisions rather than through independent di- visions. Plans are under way for expanding the junior placement service activities of the United States Employment Service during the fiscal year 1940 through the appointment of twelve regional representatives charged with the responsibility of establishing ad- ditional services for juniors in the several states and developing and coordinating the work of the public employment offices and the school systems. Special attention is to be given to the de- velopment of methods by which the placement of juniors can be increased. The representative of the Handicapped Placement Sery- ice in the Washington office of the Employment Service renders additional service to state employment offices in devising plans and methods of placing physically handicapped juniors. Although no formal agreements have been entered into with state departments of education, in a number of cities working relations have been established between the employment offices and the schools. At present there are formal agreements in Providence and Philadelphia. In both of these cities the school systems provide the junior placement service, and they receive both federal and state employment service funds for it. Formerly a similar arrangement was in effect in Los Angeles. In this city the public schools continue to operate the placement service for juniors, but they receive no federal or state funds for it. The cooperative agreements between the employment service and the school systems in Philadelphia and Providence require that the junior employment agency shall operate as a part of the state controlled employment service under the general direc- tion of the state director, that it shall be under the general super- vision of the local employment office, and that the personnel paid by funds made available by the state employment service shall be selected jointly by the junior agency and the director of the state employment service, and in accordance with personnel stand- ards of the United States Employment Service. In three other cities there are working relationships between the schools and the employment service. The city schools of St. [ 46 J Louis furnish vocational counsellors on a full-time basis to the junior division of the St. Louis public employment office. In Chi- cago the employment service sends itinerant counsellors into the schools to counsel with the pupils and to register those desiring jobs, but all the junior placement is conducted in the employment offices. In Seattle the school employment service carries on the junior placement work under a delegation of authority from the Washington State Employment Service. For this work the schools receive grants from state social security funds, but not from state or federal employment service funds. Scope of the service—The United States Employment Service maintains cooperative relations with each of the 48 states, the District of Columbia, Alaska, and Hawaii. The system in Jan- uaty 1939 had 1,647 public employment offices, which placed 2,701,000 persons in jobs during the fiscal year 1938 and at the close of the year had on file 7,831,000 registrations. The expenditures for public employment service in the United States during the fiscal year came to $27,679,560. This amount was distributed as follows: (a) Wagner-Peyser administrative expenses, $770,452; (b) Wagner-Peyser grants to states, $3,737,782; (c) state and local funds, $4,032,404; (d) Nation- al Reemployment Service funds (federal), $6,418,498;"" (e) So- cial Security Board grants, $12,720,424. The 180 employment offices having specially organized junior units are as follows: 102 units, in 10 states and the District of Columbia, operated with state employment service personnel only. 44 units, in 18 states, operated with National Youth Administration personnel only. 10 units, in 10 states, operated with a combination of state employment service and National Youth Administration personnel. 17 The National Reemployment Service was a temporary federal agency estab- lished in 1933 primarily to register and refer workers to public works and relief projects. It was conducted as a division of the United States Employment Service. Its operations in the states ceased on July 1, 1939, at which time the services formerly rendered by the National Reemployment Service were absorbed by the state employ- ment services. [ 47 ] 24 units, in 8 states, operated with varying combinations of state, National Youth Administration, Work Projects Administration, and school personnel. Data are not available showing how many youth have been placed in jobs by junior divisions of employment offices, but the total number under 21 years of age placed by all offices during the fiscal year 1938 was 424,163. The total number of juniors placed from July 1934 to March 1939 was 1,929,100. VOCATIONAL REHABILITATION OF THE PHYSICALLY DISABLED The program of vocational rehabilitation of the physically disabled provides assistance needed to restore to, or place in, re- munerative employment persons who have become permanently disabled through accident and disease or who have been born with serious physical defects. Legislation—The attention of the federal government was first directed to the problem of vocational rehabilitation for phys- ically disabled persons after the United States entered the World War. Under the Smith-Sears Act (1918)** provision was made for the vocational rehabilitation and return to civil employment of disabled persons discharged from military and naval forces of the United States. This service was entirely a federal project, the states having no part in it. In the Vocational Rehabilitation Act (1920) Congress ap- propriated $796,000 to the states for the fiscal year 1921 and $1,034,000 for each of the three succeeding years, for the pur- pose of cooperating with them in the vocational rehabilitation of physically disabled persons and their return to civil employ- ment. These appropriations were apportioned to the states on the basis of their total population, with a minimum of $5,000 to each. Among the conditions for participation in the appropria- tions were that a state was required to accept the provisions of the 18 40 Stat. L. 617. 19 41 Stat. L. 735. [ 48 ] Act, to match the federal funds expended in the state for the service, and to designate as its cooperating agency the state board for vocational education. The latter agency was required to sub- mit its plan annually to the Federal Board for Vocational Educa- tion for approval. The Attorney General ruled in 1923 that the Vocational Re- habilitation Act, with the exception of the sections making ap- propriations, was permanent legislation. In 1924 the Act was amended and appropriations were authorized for a period of six years;”’ in 1930 it was further amended and appropriations were authorized for three years;”* and in 1932 it was amended again and appropriations were authorized for four years, ending in 1937." From October 1933 to July 1937 relief funds amount- ing to somewhat more than $1,800,000 were also used for the vocational rehabilitation service. When the social security bill was under consideration in Con- gress, provision was included for vocational rehabilitation of the physically disabled. The Social Security Act (1935),”* therefore, authorized an appropriation of $841,000 in addition to the ap- ptopriations previously authorized, for the fiscal years 1936 and 1937, and for each fiscal year thereafter an appropriation of $1,938,000. The program of vocational rehabilitation was extended to the Territory of Hawaii in 1923, and to Puerto Rico in 1931.” In 1929 Congress provided also for the vocational rehabilitation of disabled persons in the District of Columbia and vested the Fed- eral Board for Vocational Education with authority to organize and administer the service.”* Annual appropriations of $15,000 (increased to $25,000 in 1937)*" and equal appropriations of Dis- trict funds for matching federal appropriations were authorized. 20 43 Stat. L. 430. 2146 Stat. L. 524. 22 47 Stat. L. 448. 23 49 Stat. L. 620. 2443 Stat. L. 18. 25 46 Stat. L. 1489. 26 45 Stat. L. 1260. 2750 Stat. L. 69. [ 49 } The Vocational Rehabilitation Act appropriated $75,000 to the Federal Board for Vocational Education for administration and for making studies and reports. In 1930 the annual appro- priation authorized for this purpose was increased to $80,000, and under the Social Security Act it was increased further to $102,000. Nature of the service—Vocational rehabilitation of physically disabled persons is carried out by the case-work method. Each person is dealt with on an individual basis. A complete service for the restoration of disabled persons to gainful employment includes finding the persons who need service; selecting those for whom rehabilitation is feasible; in some cases securing medical care for physical reconstruction; providing artificial limbs and other ap- pliances when needed; arranging for suitable vocational training for a selected occupation; providing or securing living expenses for needy rehabilitants under some circumstances; securing the placement of rehabilitants in suitable gainful employment; and following up the rehabilitant until there is reasonable assurance that employment is satisfactory and permanent. Administration —The federal administration of vocational re- habilitation is a responsibility of the United States Office of Education. The Office is charged by law with important duties relating to the approval of state plans for vocational rehabilita- tion and to the allotment and certification of federal funds for the states. It is authorized to make rules and regulations to carry into effect the federal vocational rehabilitation legislation. The Office is also responsible for making investigations and reports regarding vocational rehabilitation of physically disabled persons and their placement in suitable occupations. It cooperates with the employment service carried on under the Social Security Board in occupational research and in the formulation of plans for the participation of the state employment services in the placement of physically handicapped persons. All the states cooperate with the federal government in voca- tional rehabilitation. The program in each state is usually under the direction of the state board for vocational education. The only two exceptions are Pennsylvania and New Jersey, but in [50 } both of these the rehabilitation agency is legally responsible to the state board for vocational education with respect to state co- operation with the federal government. The federal vocational rehabilitation legislation requires that each state provide a plan of cooperation between the state board for vocational education and the state workmen’s compensation commission or agency. In most states, the vocational rehabilitation services have a number of formal written agreements with numbers of agencies, as well as many informal, but effective, agreements with others. Agree- ments with public school systems are usually of the informal type. The state board for vocational education employs a techni- cal staff for the administration of the vocational rehabilitation service. The head of the staff is generally designated as director or supervisor of vocational rehabilitation. In 25 states the head of the service reports direct to the chief state school officer or to an assistant chief state school officer; in 14 of these states the chief state school officer is also the state director for vocational education. In 20 states the service is administered by the state director of vocational education. In the other 3 states having vocational rehabilitation programs, the arrangements differ some- what from the 2 most common types. The total number of pro- fessional and administrative employees in the states in March 1938 was 319; it ranged from one (9 states) to 32 (Pennsy]l- vania) persons. Vocational rehabilitation service is not, in general, rendered through public schools. The smaller states maintain one office for it, located in the capital city, and the larger states maintain, in addition to the central office, one or more district offices in ap- propriate centers. The case workers operate from these offices. Scope of the service——The federal appropriations to the states for vocational rehabilitation for the fiscal year 1938 were $1,795,000, and a total of $50,000 was appropriated to the Dis- trict of Columbia, Hawaii, and Puerto Rico. For each dollar of federal funds for vocational rehabilitation expended in a state, there must be expended in the state, under the supervision of the state board for vocational education, at least an equal amount [51] of state and local funds for the same purpose. Federal and match- ing funds may be used for practically all aspects of the service, except for physical reconstruction and for living expenses of rehabilitants. The total amount spent in the states, the District of Columbia, and. outlying areas for the fiscal year 1938 was $3,820,391, as follows: (a) federal funds, $1,769,989; (b) state and local funds, $2,050,402. The appropriation to the Office of Education for the same year for administration of, and for research and reporting on, vocational rehabilitation was $95,000. During the fiscal year 1938 vocational rehabilitation was com- pleted for 9,725 persons. About 68 percent of these persons rfe- ceived training of some kind, as follows: (a) training in an in- stitution, 4,223; (b) training in employment, 1,756; and (c) other training, 649. Appliances were provided for 2,587 per- sons, and physical reconstruction was arranged for 640. The aver- age cost of rehabilitation per person receiving the service is about $300. At the close of the fiscal year 47,465 persons were in process of rehabilitation. Special service for the blind—A special feature of the voca- tional rehabilitation service is the effort made to provide employ- ment for blind persons, enlarge their economic opportunities, and stimulate them to greater efforts toward self-support. This is car- ried on under the Randolph-Sheppard Act, approved June 20, 1936." The service is rendered in part by authorizing properly licensed blind persons to operate vending stands in federal build- ings and by promoting the establishment of such stands in non- federal buildings and their operation by blind persons. The federal administration of the Act is carried out by the United States Office of Education through the vocational rehabili- tation service. In each cooperating state the Office of Education designates the state commission for the blind, or, if there is no such state commission, some other public agency, to issue licenses to blind persons to operate vending stands in federal and other buildings in the state. The cooperative relationship is approved by the governor of the state. 28 49 Stat. L. 1559. [52] Since the Randolph-Sheppard Act has gone into effect, the Office of Education has designated cooperating agencies in 38 states, the District of Columbia, and Hawaii. During this period 221 blind persons have been established as operators of vending stands in federal buildings and 663 in nonfederal buildings. Their net earnings average about $900 a year. The Act authorizes the appropriation of such sums as may be necessary to carry out its provisions, but no special appropriations have been made for this purpose. The appropriations to the Office of Education have been increased slightly to care for the expenses of administration. BIBLIOGRAPHICAL NOTE 29 The section on nautical education is based on three published sources (32), (36), and (47), and on information obtained from E. Henkel, Administrative Assistant and Chief Clerk, Bureau of Navigation, Navy Department, and from Telfair Knight of the staff of the United States Maritime Commission. Mr. Henkel read a draft of the statement on the state nautical schools and Mr. Knight a draft of the entire section from which the final copy was prepared. Most of the historical and descriptive material for the section on vocational education is from Blauch (4), the information on the George-Deen Act is from Russell (29), and the statistics and some descriptive material are from the digest of annual reports of state boards for vocational education (46). The draft from which the final copy was prepared was read by Ronald V. Billington, Executive Assistant in Vocational Education, Office of Education. The principal published sources of information used in the prepara- tion of the section on apprenticeship service ate the report of the Sec- retary of Labor for the fiscal year 1938 (40) and the study by Russell (29). Use was also made of: (a) two mimeographed statements on apprenticeship information issued by the office of the Federal Commit- tee on Apprentice Training, October 25, 1937, and April 6, 1938; (b) a mimeographed statement on apprenticeship information issued by the Federal Committee on Apprenticeship, February 1939; and (c) a mimeo- graphed statement, Special Release No. 3, February 1939, entitled “Au- _29 The numbers in parentheses refer to the numbers of the titles in the Bib- liography. . [53 ] thorization, Objective, Functions, and Minimum Standards of the Federal Committee on Apprenticeship.” Some of the information was obtained from the Federal Apprenticeship Service through Oswald L. Harvey, Technical Analyst, who read the draft from which the final copy was prepared. The section on aviation education was prepared from two printed sources (31) and (38) and from: (a) a number of mimeographed news releases issued by the Civil Aeronautics Authority in 1939; (b) a news release dated December 27, 1938, from the Office of Education; (c) a memorandum on federal agencies participating in aviation educa- tion programs extending to the states and local communities, prepared by the Office of Education; (d) Air Commerce Bulletin, issued monthly by the United States Civil Aeronautics Authority, Vol. 10; Nos. 2, 7, 8, and 9; (e) miscellaneous materials, and (f) other information ob- tained through conferences with A. G. Norwood and W. S. Robb, consult- ants in the Private Flying Division, Civil Aeronautics Authority. Mr. Robb read the draft from which the final copy was prepared. The principal published sources of information for the section on the employment service are the works by Palmer (23); Atkinson, Oden- crantz, and Deming (55); and the Secretary of Labor (40). John F. Conley, Junior Administrative Assistant, United States Employment Serv-_ ice, supplied much of the information on the service for juniors. The draft from which the final copy was prepared was read by R. S. Ward, Head, Junior Placement Service, and by William H. Stead, Acting Direc- tor, United States Employment Service. Most of the information for the section on vocational rehabilitation of the physically disabled was obtained from Blauch (5) and from the digest of annual reports of state boards for vocational education for the fiscal year 1938 (46). John A. Kratz, Chief, Vocational Rehabilitation, Office of Education, supplied information on current developments and read the draft from which the final copy was prepared. A draft of the section was also read by K. Vernon Banta, Head, Handicapped Placement Service, United States Employment Service. [54] IV. CHILD HEALTH AND WELFARE ACTIVITIES RELATED TO EDUCATION HE FEDERAL GOVERNMENT engages in several activities aimed at promoting the health and welfare of children. These activities center chiefly in the Children’s Bureau of the United States Department of Labor. At a number of points they come in contact with state and local systems of public education. LEGISLATION The Children’s Bureau was established by an Act of Con- gtess approved April 9, 1912, to investigate and report upon all matters pertaining to the welfare of children and child life, and particularly infant mortality, the birth rate, orphanage, juvenile courts, desertion, dangerous occupations, accidents and diseases of children, employment, and legislation affecting children in the several states and territories." At first a part of the Department of Commerce and Labor, the Bureau was transferred to the United States Department of Labor at the time of its creation in 1913. Since 1912 the functions of the Children’s Bureau have been materially increased. It was given administrative responsibilities in connection with the first federal Child Labor Law (1917-18) and the Maternity and Infancy Act (1922-29). At present it is responsible for the administration of the maternal and child wel- fare provisions of the Social Security Act, approved August 14, 1935,” and the child labor provisions of the Fair Labor Standards Act of 1938.° 37 -stat. L.. 79. 249 Stat. L. 629. 352 Stat. L. 1060. [55] The maternal and child welfare provisions of the Social Security Act authorize appropriations for grants to states, the District of Columbia, Alaska, and Hawaii for several types of services, including: (1) maternal and child health services; (2) services for crippled children; and (3) child welfare services for the protection and care of homeless, dependent, and neglected children, and children in danger of becoming delinquent, espe- cially in predominantly rural areas. The programs developed un- der these provisions rest upon the principle of federal aid to the states granted on the basis of plans developed and adminis- tered by state agencies but subject to federal review and approval. The Fair Labor Standards Act of 1938 placed upon the Children’s Bureau responsibility for administering the child labor provisions of the Act, which establish minimum standards for the employment of children in the manufacture of goods that enter interstate commerce. The “oppressive child labor” provi- sions of the Act in effect exclude children under 16 years of age from employment in or about establishments producing goods for shipment in interstate commerce, except that children 14 and 15 years of age may be employed at work, other than manufacturing or mining, which has been determined by the Chief of the Children’s Bureau not to interfere with their school- ing, health, or well-being. Children 16 and 17 years of age are excluded from employment in occupations found and declared by the Chief of the Children’s Bureau to be particularly hazard- ous or detrimental to their health or well-being. Child actors in motion pictures or theatrical productions, and children em- ployed in agriculture during periods when they are not legally required to attend school, are exempt from these provisions. Thus, the functions of the Children’s Bureau now extend be- yond research, consultation service, and dissemination of infor- mation to include, through the Social Security Act, the develop- ment, with the state agencies of health and welfare, of joint under- takings for the advancement of the well-being of children and youth and, through the Fair Labor Standards Act of 1938, the enforcement of federal regulations governing child labor. [56] NATURE OF THE ACTIVITIES The investigational work of the Children’s Bureau falls rough- ly into three categories: health, social welfare, and employment. Its studies relate to the growth and health of the child from the prenatal period through adolescence; the causes of maternal and child morbidity and mortality; maternal and child health services and their administration; problems of employment of young people in factories, in stores, in agriculture, in street trades, and in other occupations; child labor laws and their administra- tion; community provision for dependent, neglected, delinquent, and handicapped children; the methods of caring for children in institutions and foster homes; special problems associated with dependency, neglect, illegitimate birth, mental deficiency, and physical handicaps affecting the social welfare of children; com- munity provision for recreation; the organization of state and county departments of public welfare; causes, treatment, and prevention of juvenile delinquency; and the compilation and analysis of various types of statistics related to child welfare. Reports are published, and bulletins are prepared and dis- tributed. A special series of pamphlets relating to the care and training of children from birth through adolescence is published primarily for parents, and more than a million and a half of these pamphlets are sold or distributed free each year. The monthly bulletin, Te Child, issued by the Bureau, currently reports ac- tivities affecting children. The Children’s Bureau, through its research and accumulation of data concerning children, provides information and advice to public officials, private agencies, professional groups, and indi- viduals. It cooperates with officials and groups in other countries in the exchange of information and suggestions on various phases of child welfare. Several activities of the Children’s Bureau may be singled out as examples of particular interest in relation to public schools and school systems. These relate primarily to health work, service for crippled children, service to school children by child welfare foul workers, programs for the treatment and prevention of delin- quency, and the promotion of higher child labor standards. Under the maternal and child health program the state and local health agencies conduct a health promotion program for in- fants and preschool children. Most of the state departments of health as a part of the maternal and child health program assume some responsibility, especially in rural areas, for school health service, and cooperate with the state departments of education in developing programs of school health education. School health service includes the provision of a health-permitting school environ- ment, making the health resources of the community available to school children, the encouragement of periodic health supervision by physicians and dentists, and the services of public health nurses in interpreting the health needs of the pupil to the teachers and parents. In all but 3 of the maternal and child health programs the state health agencies are cooperating with state departments of education in school health education activities. The contribution of the health department is directed chiefly toward supplying the teachers with subjectmatter and stimulating their interest in teaching health. Fifteen state health agencies employ health education coordinators or consultants who include school health education in their programs. It is the function of these co- ordinators to bring about active cooperation between the health departments and the schools on state and local levels in the teach- ing of health. Progress reports on these activities for the year ending June 30, 1938, showed assistance in the teaching of health in teacher-training colleges in 29 states, assistance in the teaching of health in the schools in 47 states, and assistance in teaching prenatal and infant care to high-school classes in 28 states. The program for medical diagnosis, treatment, and aftercare of crippled children is of special importance to school children. The federal funds administered by the Children’s Bureau for services for crippled children are used for the physical restoration and social readjustment of the crippled child but are not available for educational services. A number of school systems make special provision for the education of these children. {58 ] In the counties or local districts where demonstration child welfare services have been established under the Social Security Act, the services of the child welfare worker are frequently avail- able to the school authorities for assistance in the investigation of home and other conditions affecting school children adversely and for assistance to the family and school in the treatment of such conditions. In a few local areas services are given to children through child guidance clinics. The Children’s Bureau has made studies of treatment programs of state training schools for juvenile delinquents, including the educational features. A statement of the function and objectives of training schools was issued in 1938 by an Advisory Commit- tee to the Children’s Bureau on Training Schools for Socially Maladjusted Children. Recently statistical data were obtained from the training schools showing the number of children under their care on January 1, 1938, by sex and age. A community project in the prevention and treatment of juvenile delinquency, known as the Community Service for Children, has been operating in St. Paul, Minnesota, under the Children’s Bureau since late in 1937. Cooperation between the schools and the project has been developed through the services of a visiting teacher. Through various bulletins and in its consultation service the Children’s Bureau has emphasized the importance of play and recreation in the life of a child and the value of recreation as a preventive of delinquency. The research and consultative service of the Children’s Bureau in the field of child labor has had a part, along with other forces, in steadily raising the standards in child labor and compulsory school attendance laws. Its studies of employment of young workers and of junior placement services have also had a close relationship to the development of vocational guidance. ADMINISTRATION The Children’s Bureau is under the direction of a Chief and an Assistant Chief. It carries on some of its research independently and [59] some of it in cooperation with federal, state, and other agencies. The administration of the grants for maternal and child welfare includes consideration of state plans submitted by state adminis- trative agencies, approval of such plans by the Chief of the Children’s Bureau if they conform to the terms of the Social Security Act, and consultation service on the development of state programs, given by the headquarters staff and by regional con- sultants. In the states the grants for maternal and child health services are administered by state health departments; the grants for child welfare services, by state welfare agencies; and the grants for serv- ices for crippled children, by a state agency designated by state law. In 25 states the program for crippled children is administered by the department of health; in 15 by the department of welfare; in 5 by a crippled children’s commission; in 4—Alabama, Jowa, Mississippi, and Texas—by the department of education; and in 2 by other agencies. In the administration of the Fair Labor Stan- dards Act the Children’s Bureau has obtained the cooperation of state departments of labor and education responsible for ad- ministering state child labor laws and issuing employment certifi- cates under the state law. It accepts as proof of age under the federal Act state employment or age certificates, which are usually issued by local school officials. SCOPE OF THE SERVICE All the states, the District of Columbia, Alaska, and Hawaii cooperate in the three programs administered by the Children’s Bureau under the Social Security Act, except that Wyoming has no program for child welfare services. | The annual appropriations authorized by the Social Security Act for grants to the states and other cooperating areas for maternal and child health and welfare services total $8,150,000, and pay- ments to the states and other cooperating areas amount to ap- proximately the same sum (see Table 3). Among the health services rendered to children during the [60 } calendar year 1938 were: (1) health examinations by physicians, 1,853,196 school children; (2) dental inspections, 1,640,007 pre- school and school children; and (3) home and office visits by public health nurses, 3,364,328 school children. Additional serv- ices were rendered to infants and preschool children and mothers. By the end of 1938, the state crippled children’s agencies had 171,563 crippled children on their state registers. During 1938, 268,786 visits were made by crippled children to clinics for medical service (diagnosis and treatment); 49,308 children TABLE 3. ANNUAL APPROPRIATIONS AUTHORIZED BY THE SOCIAL SECURITY ACT FOR GRANTS TO THE STATES AND OTHER COOPER- ATING AREAS FOR MATERNAL AND CHILD HEALTH SERVICES, SERVICES FOR CRIPPLED CHILDREN, AND CHILD WELFARE SERVICES, AND PAYMENTS MADE, FISCAL YEARS 1938 AND 1939. Payments to the states Annual ap- and other cooperating areas Service propriation a authorized Fiscal year Fiscal year 1938 19398 PEPESELVICCS.«...00ceessesese+ee $8,150,000 $7,775,245 $8,234,026 Maternal and @buidwhealth .....,.......... 3,800,000 apf make ik Soho ty Crippled children ........ 2,850,000 2,694,676 a2,997,915 Retidiwe fare .'.......03..+00 1,500,000 1,351,638 @1,520,894 aThe excess over the annual appropriation is from balances available from previous appropriations. wete given 1,631,866 days of hospital care; and approximately 8,000 children were given over 600,000 days of care in convales- cent homes and foster homes. More than 50,000 children were given aftercare services, including, in addition to medical services, medical-social and public health nursing service and_physical- therapy treatments. Annual data are not reported for child welfare services, but reports from states indicate that during June 1938 more than 42,000 children were given service by workers whose salaries were {61} paid in whole or in part from federal child welfare service funds. Included in this group were children who presented conduct prob- lems in school or in the community; children in need of treatment or special training because of physical handicaps; mentally de- fective children for whose care plans had to be made; and children whose home conditions threatened their physical or social well- being. In addition to the service given children in the selected local areas, the service in the state departments of public welfare financed in part with funds for child welfare services extends the benefits of the program to children in other areas in the states. BIBLIOGRAPHICAL NOoTE?# The principal published sources of information used in this chapter are two pamphlets on the Children’s Bureau, (41) and (42), and the annual report of the Secretary of Labor for the fiscal year 1938 (40). A considerable part of the information used was obtained from the Children’s Bureau through Edith A. Rockwood, Specialist in Child Welfare, who read the draft from which the final copy was prepared. 4The numbers in parentheses refer to the numbers of titles in the Bibli- ography. [62 ] V. EDUCATION FOR NATIONAL DEFENSE B* FAR the greater part of the program for training both officers and enlisted men for the Army, the Navy, and the Marine Corps is carried on in the armed forces and in special schools maintained for the purpose. A smaller part of the program is carried on in cooperation with civil schools, colleges, and uni- versities. Elsewhere mention is made of the requirement in the Morrill Act of 1862 with respect to instruction in military tactics. This chapter explains the training provided through the Reserve Of- ficers’ Training Corps, aid given to military training units not af- filiated with the Reserve Officers’ Training Corps, training through the Naval Reserve Officers’ Training Corps, and special training for the volunteer Marine Reserve Corps. RESERVE OFFICERS’ TRAINING CORPS : . : | The Officers’ Reserve Corps is organized for the purpose of providing a reserve of officers available for military service when needed. There are a number of sources from which appointments are made to the Corps, the most important, measured by the number of appointments, being the Reserve Officers’ Training Corps. Legislation—The National Defense Act of 1916 was amended in 1920 to provide for training reserve officers 4n secondary and higher schools.’ It authorized the President to establish in civil educational institutions a Reserve Officers’ Training Corps, which should consist of: (1) a senior division organized at institutions granting degrees, including state universities, land-grant colleges and universities, and specially designated military schools not con- 141 Stat. L. 759, sec. 40-55c. { 63 } ferring academic degrees; and (2) a junior division organized at all other public and private educational institutions. The Presi- dent was authorized to detail officers and enlisted men of the Army for duty at educational institutions having units of the Reserve Officers’ Training Corps, and the Secretary of War was authorized to prescribe courses of military training for the units and to furnish to the institutions the necessary supplies and equip- ment. Nature of the program.—Each division of the Reserve Officers’ Training Corps consists of units of the several arms, corps, or serv- ices in such manner and such strength as the President may pre- scribe. At present the junior division consists of infantry units only, but the senior division has nine types of units. Departments of military science and tactics are set up in institutions in which units of the Reserve Officers’ Training Corps are established. The course of the senior division is four years long and is divided into the basic course (first two years, corresponding to the freshman and sophomore years) and the advanced course (last two academic years). The minimum amount of instruction in the basic course is an average of three hours a week and in the advanced course five hours a week, except that for medical units it is 90 hours a year in both the basic and the advanced courses. In some institutions students are required by the insti- tution to take the basic course, in others they may elect it. Admis- sion to the advanced course is governed by application, selec- tion, and the funds appropriated by Congress. Junior division training in essentially military school units con- sists of a four-year course, and in high school and other junior units it consists of a three-year course, except that where the pub- lic school system extends beyond the twelfth grade and military training is included in the higher grades, enrolment is limited to the four upper classes of the entire system. Credit for training in a junior division unit may be given to students toward eligibility for the advanced course. Reserve Officers’ Training Corps camps are established annual- ly for periods not exceeding six weeks in any one year, and at- {64} tendance at one advanced-course camp is required of all students enrolled in the advanced course. This training is also required of students in certain junior division units who aspire to appoint- ment as reserve officers of the Army of the United States. Eligibility to membership in the Reserve Officers’ Training Corps is limited to students at institutions in which such units of the corps are established, who are citizens of the United States, who are not less than fourteen or more than twenty-six years of age, and who meet certain physical requirements. Upon satisfactory completion of the course of training, gradu- ates of the senior division and graduates of certain junior division units who have completed the courses prescribed for the senior division and such further training as is provided and have reached the age of twenty-one years may be appointed by the President as reserve officers of the Army of the United States. Other students of junior and senior divisions upon the termination of their in- struction therein receive military training certificates. Administration —The program is under the direction of the War Department, the Adjutant General handling the adminis- tration, including fiscal matters, and the General Staff handling the training. Standard courses of military training are prescribed by the Secretary of War, and these must be used in the institu- tions in which units of the Reserve Officers’ Training Corps are maintained. The War Department has divided the United States into nine corps areas. In addition, there are four departments for outlying areas: the Hawaiian, the Puerto Rican, the Panama Canal, and the Philippine. In all the corps areas and in the first two named departments, Reserve Officers’ Training Corps units are main- tained. Each corps area and each of three departments is under the command of a major general; the Puerto Rican Department is under the command of a brigadier general. To each of these corps area and department commanders are delegated the super- visory powers of the War Department over the Reserve Officers’ Training Corps in all matters except those which have been ex- pressly reserved to the War Department. The corps area and [65 } department commanders are the immediate representatives of the Department in all relations with educational institutions maintain- ing Reserve Officers’ Training Corps units. Annual inspections of all Training Corps units are made under the direction of the corps area or department commander. Each essentially military school of the junior division is also inspected by a War Depart- ment board to determine whether it is to be designated as an Honor School for that year. An institution receiving this designa- tion is entitled to appoint one honor graduate for entrance to the United States Military Academy. With the important exceptions noted above, the control of the operation of Reserve Officers’ Training Corps units is vested in the authorities of the institutions. Civilian heads of these insti- tutions exercise the same general control over the department of military science and tactics as they ordinarily do over other de- partments. Units are established on application of the institution and agreement to meet the requirements and give support to the department of military science and tactics. The War Department furnishes to the institutions the supplies and equipment needed for military instruction, and, except at es- sentially military schools, it furnishes to the men equipment and uniforms. In the essentially military schools the government pays commutation in lieu of issuing uniforms—nine dollars a year during the basic course and eighteen dollars a year during the ad- vanced course. College students who have completed two years of service in the senior division and who pursue advanced courses in the division receive stipends direct from the federal government, provided they meet certain conditions. Scope of the program.—The obligations incurred for the main- tenance of the Reserve Officers’ Training Corps during the past three fiscal years have been: (a) 1937, $4,067,396; (b) 1938, $4,119,570; (c) 1939, estimated, $4,825,842. During the fiscal year 1938, 366 units were maintained at 274 institutions—226 senior units and 140 junior units.? The total 2 An institution may have more than one senior unit. A junior unit may repre- sent more than one school in a school system. [66 J enrolment on June 30, 1938, was 154,523 (see Table 4). The enrolment at the beginning of the school year 1937-38 was 167,818. A total of 6,337 graduates of the training courses were com- missioned in the Officers’ Reserve Corps during the fiscal year 1938. TABLE 4. NUMBER OF UNITS AND ENROLMENT IN THE RESERVE OFFICERS’ TRAINING CORPS, DISTRIBUTED BY DIVISION AND TYPE OF UNIT, JUNE 30, 1938. Division and a SO TAD Number Enrolment Senior division: "FL Ea] * pasa ln SERS Saye aaa RAI Sa i 90 45,855 PUPtMAriillery Manet eal ka ee 28 18,822 Seg? vel gala 26) get ee mas Perea pee ee top 24 10,998 DOE OCMOM EN OUCETS Wee. coe eta tcaiers ee eeces 28 9,109 ACA 96s sa Sie ee 8 le ieee er REET re renee atl 4,194 BereCTICCOL DS aati. ee rele sccttseeier esi eboc bcs 2 1,655 eee COLD Steen tn eed, Wen tae Pas oe 11 1,761 BreCe me partmienty .cisc.c-- es craneeesenre. y 631 Refemiical WW artare ServiCe -.t..yt.ceeoccdecsstie ees 2 283 TRO IELD geheahed saat deals aap ie ean ape et ae 226 93,308 Junior division: OL ACU, Aga etl pai ae Say ep ee pede Rie ean 140 6i215 LEE) ROTEL A SEE 5 ete 366 154,523 MILITARY UNITS Not AFFILIATED WITH THE RESERVE OFFICERS’ TRAINING CORPS Section 55c of the National Defense Act as amended author- izes the loan of military equipment to schools and colleges which maintain military units not affiliated with the Reserve Officers’ Training Corps, provided such schools follow a prescribed course of training and maintain a minimum enrolment of 100 students over fourteen years of age. Within these limits the control and supervision of the units is in the hands of the school authorities. The President is authorized to designate regular commissioned [67 } and noncommissioned Army officers as instructors at these schools, but this is not generally done because of the lack of available personnel. Annual inspections are made by the corps area or de- partment commanders. The aid furnished to these schools and colleges is very limited and is confined to rifles, belts, and small grants of rifle ammunition. In 1937-38 there were 37 of these institutions with a total en- rolment of 9,923 in military training. NAVAL RESERVE OFFICERS’ TRAINING CORPS The United States Naval Reserve and the United States Marine Corps Reserve have been organized to provide for rapid expansion of the Navy and the Marine Corps during national emergency. The Naval Reserve as now constituted consists of four classes: the Fleet Reserve, the Organized Reserve, the Merchant Marine Reserve, and the Volunteer Reserve. The Marine Corps Reserve consists of three classes: the Fleet Marine Corps Reserve, the Or- ganized Marine Corps Reserve, and the Volunteer Marine Corps Reserve. Among the sources from which appointments of officers are made to the Naval Reserve and the Marine Corps Reserve is the Naval Reserve Officers’ Training Corps, which in some respects is patterned after the Reserve Officers’ Training Corps of the Army. Legislation.—The National Defense Act of 1916 was amend- ed in 1925° to authorize the establishment and operation of a Naval Reserve Officers’ Training Corps, the regulations to con- form, so far as practicable, to the provisions of the Act relating to the Reserve Officers’ Training Corps. The powers conferred upon the Secretary of War with regard to the Reserve Officers’ Train- ing Corps were conferred upon the Secretary of the Navy with regard to the Naval Reserve Officers’ Training Corps. The gradu- ates of the Corps were made eligible for appointment as Naval Reserve officers or as Marine Reserve officers. Nature of the program.—The Naval Reserve Officers’ Train- 8 43 Stat. L. 1276. {68 } ing Corps consists of all naval training units established in civil educational institutions of the United States. Its purpose is to pro- vide systematic training and instruction in essential naval sub- jects at civil educational institutions in order to further the plan for national defense. The Corps qualifies selected students for ap- pointment as ensigns in the Naval Reserve or second lieutenants in the Marine Corps Reserve. The students learn seamanship, gunnery, ordnance, nautical astronomy, and navigation, and they gain knowledge of law, com- munications, tactics, naval history, and administration. To a lesser degree they familiarize themselves with naval aviation and with marine and electrical engineering. The course of training con- sists of instruction covering four academic years, and it is divided into a basic course of the first two academic years and an ad- vanced course of the second two academic years. A student first elects the two-year basic course, upon the completion of which, if he is acceptable for further training, he may elect the advanced course. The minimum amount of time of instruction and training in the basic course is three hours for each week and in the ad- vanced course five hours for each week, not including time de- voted to preparation for instruction. Credit for the course is usual- ly given by the institutions on practically the same basis, hour for hour, as is given for laboratory and classroom work in other de- partments. A number of the courses in naval science at the in- stitutions maintaining training units may be taken by students not registered in the Naval Reserve Officers’ Training Corps. Practice cruises, usually lasting for twenty four days, are made to afford the students opportunity to gain experience at sea in the practical application of their studies. All advanced course students are required to make a cruise of from two to three weeks in a combatant ship during the summer following the junior year in college. Opportunities are given to Corps students to make addi- tional cruises. Membership in the Naval Reserve Officers’ Training Corps is limited to male students at educational institutions where units of the Corps are established, who are citizens of the United States, [69] who are not less than fourteen years old, and who meet the speci- fied physical requirements. The students are required to pass the Naval Academy physical examination. While the training is intended primarily to fit students for membership in the Naval and Marine Reserves, some, upon grad- uation, pursue maritime occupations as a means of livelihood. Under the cadet system the graduates can qualify as cadet officers in the merchant marine when they obtain licenses, and, after suf- ficient service at sea, they are an additional source for officers in the merchant marine. Administration —Supetvision, direction, and control of the Naval Reserve Officers’ Training Corps is administered by the Navy Department through the Bureau of Navigation. Subjects and outlines of courses of study for the training are prescribed by this Bureau. The Navy Department has divided the United States into eleven naval districts and the outlying areas into three naval districts, each of which is under a commandant. To these commandants are delegated the supervisory powers of the Bureau of Navigation over the Naval Reserve Officers’ Training Corps in all matters except those which ! ave been expressly reserved to the Navy Department and the Bureau of Navigation. They are responsible for seeing that the law and the regulations relating to the Corps ate effectively carried out. At least once each academic year the commandant of the naval district inspects the Corps units within his area, and officers from the Bureau of Navigation also make occasional inspectiors. | With certain important exceptions, civilian heads of educa- tional institutions where Naval Reserve Officers’ Training Corps units are established have the same general authority of super- vision and control over the departments of naval science and tactics as they exercise over other departments. Units are established on application of institutions and agree- ment to meet certain stated requirements. In addition to class- rooms, the institutions provide adequate housing space for the exclusive use of the naval units. The number of units that may be {70 } established is governed by law and the appropriations made by Congress for this purpose. The Navy Department issues to the educational institutions the equipment and supplies required for the naval instruction of the Corps. For the students it provides the uniforms, textbooks, equipment, a small compensation for juniors and seniors, and transportation to and from the cruising ships, with subsistence while on board. Scope of the program.—The obligations and expenditures for the maintenance of the Naval Reserve Officers’ Training Corps during the past three fiscal years have been: (a) 1937, $79,265; (b) 1938, $84,400; (c) 1939, allocation, $133,009. These ex- penditures do not include the salaries of the naval personnel de- tailed to the institutions as instructors. During the fiscal year 1938, units were maintained at six in- stitutions: Yale University, Harvard University, Northwestern University, Georgia School of Technology, University of Cali- fornia, and University of Washington. During the fiscal year 1939 units were established at Tulane University and the Uni- vetsity of California at Los Angeles. One new unit is to be es- tablished during the summer of 1939 at the University of Min- nesota. A unit typically consists of six officers and 200 students. The total enrolment in the units for the year 1938 was 1,200, the number of graduates was 228, and the number of these gradu- ates who received commissions in the Naval Reserve was 219. The total authorized enrolment of the Corps is 2,400, but, according to present plans, this number will not be attained for some years. TRAINING FOR THE VOLUNTEER MARINE CORPS RESERVE The Marine Corps has not established reserve officers’ train- ing units in colleges or universities. However, from a selected list of accredited colleges throughout the United States, it has since 1935 enlisted students in the Volunteer Marine Corps Re- serve. Quotas which will be accepted are assigned to colleges, eee and the colleges recommend students. Those who are accepted are assigned to two six-week periods of active-duty training, each following their sophomore and junior years at college. Upon graduation from college and the successful completion of the two periods of training, these men are commissioned as second lieutenants in the Volunteer Marine Corps Reserve for duty as platoon leaders in time of national emergency. A very small number may be commissioned in the regular Marine Corps. The present objective of the program is 1,000 commissioned officers. Since 1935 a total of 172 men have been commissioned as second lieutenants, and 322 others who have completed the training periods will be commissioned as soon as they receive their degrees from the colleges. The number who reported for training during the year 1938 was 240. This training is related to the colleges only in that the men selected must be students in accredited colleges and be recom- mended by the institutions. Students are so chosen that a minimum come from colleges in the central part of the United States, this being done to save the cost of transportation. BIBLIOGRAPHICAL NOTE?! Much of the description of the Reserve Officers’ Training Corps and the military training units not affiliated with the Reserve Officers’ Train- ing Corps is based on the Army Regulations (50 and 51) and on the hearings on the Military Establishment Appropriation Bill for 1940 (35). The statistics were obtained from the hearings and from the report of the Secretary of War for the year 1938 (49). Information on military units not affiliated with the Reserve Officers’ Training Corps was ob- tained from a pamphlet issued by the Civilian Military Education Fund (63). Major Ralph C. Bishop, Secretary of the Civilian Military Educa- tion Fund, supplied some of the information on the Reserve Officers’ Training Corps. Major F. M. Smith, Office of Adjutant General, War De- partment, and Major R. O. Baldwin, General Staff, War Department, sup- plied some of the information and read the draft from which the final copy was prepared. The description of the Naval Reserve Officers’ Training Corps and the training for the Volunteer Marine Corps Reserve is largely based 4The numbers in parentheses refer to the numbers of the titles in the Bibli- ography. [72] on the regulations for the administration of the Naval Reserve Officers’ Training Corps (48) and on the hearings on the Navy Department Ap- propriation Bill for 1940 (36). Some information was obtained from the report by the United States Maritime Commission on training met- chant marine personnel (47). Commander F. V. Lake, U.S.N., read the draft from which the final statement on the Naval Reserve Officers’ Training Corps was prepared, and Major W. B. Onley, US.M.C, read the draft from which the final statement on the training for the Volun- teer Marine Corps Reserve was prepared. R/d:) VI. EMERGENCY EDUCATION ACTIVITIES HE depression of the 1930’s gave rise to extensive federal activities for the social and economic welfare of the people. A number of the federal agencies established to administer various phases of relief programs engaged in educational activities which involved large numbers of people. In general the primary ob- jective of these agencies has been relief, and educational objec- tives have been secondary or incidental. Nevertheless, the edu- cational service rendered, the experience acquired, and the ad- ministrative procedure established are of considerable importance. EMERGENCY RELIEF AGENCIES AND ACTIVITIES The development of federal relief activities may be considered under four categories. It began with federal assistance in 1932-33 through loans made to the states and local governments by the Reconstruction Finance Corporation for direct relief and for work relief through construction and repair of public buildings and other public works. These loans were to be repaid from future federal grants-in-aid for highways by annual reduction of one- fifth until repayment was completed. This policy of making loans was not intended to be a federal program of relief; it was merely a method whereby state and local authorities were en- abled temporarily to finance their relief activities. However, in 1934 the states were relieved of repayment of $280,026,000 originally received by them as loans, and this amount may there- fore be regarded as an outright grant. From 1933 to 1935 the federal government gave aid to the states for both direct relief and work relief, and it supplemented these joint programs by other relief activities administered by [75 ] federal agencies. The Federal Emergency Relief Administration was established in May 1933, primarily as an agency for support- ing rather than directing state relief operations.’ In the allotment of federal relief appropriations to the states the Administration had practically complete discretion. In general the states estab- lished their own relief organizations and administered the relief funds received from the federal government and from state sources. In November 1933 the Civil Works Administration, es- tablished by Executive order, began a federally administered pro- gram of work relief which was financed almost entirely from federal funds, the object being immediate employment for a large number of persons most of whom were without jobs. With some minor exceptions, this particular program ceased in March 1934. Thereafter the Federal Emergency Relief Administration, in its allocation of relief funds to the states, placed greater emphasis on work relief and less on direct relief. Among the relief measures established and directly operated by the federal government dur- ing these two years was Emergency Conservation Work conducted with the Civilian Conservation Corps. The National Industrial Recovery Act (1933)* authorized an appropriation of $3,300,000,000 for the construction of works for federal departments and for grants and loans to states for public works. To administer these funds the Federal Emergency Administration of Public Works (commonly known as the Pub- lic Works Administration) was established. It aimed at the con- struction of works of permanent value, preferably self-liquidating projects, and through this construction it hoped to stimulate in- dustry and employment. A radical change was made in 1935 when the federal govern- ment gave up the support of direct relief and began to devote funds to work relief or to works construction. The Works Prog- ress Administration was established as both an operating and a co- ordinating agency for the program of work projects. In this re- organization state agencies were abandoned and a complete federal LAR State L535: 248 Stat. L. 195. {76} organization was established throughout the country. The projects were designed to assure a maximum of employment in all localities and in general were of the type which required relatively small expenditure for materials and large expenditure for labor. They were different from those under the Public Works Administra- tion, which were generally large construction projects requiring large outlays for materials in proportion to the direct employ- ment provided. The grant-in-aid program of relief under the Federal Emergency Relief Administration came to an end on De- cember 31, 1935, although the liquidation of its activities was not completed until later. A number of other emergency agencies were established, but the only one of major concern in this study is the National Youth Administration. Two emergency projects have been administered by the United States Office of Education, and recently certain func- tions formerly carried out by the National Emergency Council became an administrative responsibility of the Office. CIVILIAN CONSERVATION CORPS The oldest of the federal emergency agencies engaged directly in work relief activities is the Civilian Conservation Corps, now in its sixth year. In its work on conservation projects and in the care of its enrollees in camps the Corps has provided an educa- tional program which reaches almost 300,000 youth each six months. | Legislation —On March 31, 1933, there was approved an Act of Congress “for the relief of unemployment through the performance of useful public work, and for other purposes.” The law was enacted “for the purpose of relieving the acute con- dition of widespread distress and unemployment now existing in the United States, and in order to provide for the restoration of the country’s depleted natural resources and the advancement of an orderly program of useful public works.” 3 48 Stat. L. 22. The President gave effect to the Act through Executive Order No. 6101, April 5, 1933. . bards Under the Act the President was authorized to provide for housing the persons so employed and for furnishing them with necessary subsistence, clothing, medical attendance and hospitali- zation, and cash allowance, and to provide for the transporta- tion of these persons to and from the places of employment. The project was known technically as Emergency Conservation Work. In his message to Congress requesting the establishment of this project, the President referred to the proposed organization as a civilian conservation corps, and from the beginning it has been known by this name, or more popularly as the CCC. Under the original Act, the authority of the President to provide for the Emergency Conservation Work extended for a period of two years following March 31, 1933. In the Emergency Relief Appropriation Act of 1935, the authority of the President with respect to the Emergency Conservation Work was continued to and including March 31, 1937,* and in the First Deficiency Ap- ptopriation Act for 1937 his authority in this matter was extended through June 30, 1937.° After efforts were made by the Admin- istration in 1937 to provide for the work on a permanent basis, Congress established the Civilian Conservation Corps for a period of three years, beginning July 1, 1937.° In the language of the Act of 1937, the Corps was established “for the purpose of pro- viding employment, as well as vocational training, for youthful citizens of the United States who are unemployed and in need of employment, and to a limited extent .. . for war veterans and Indians, through the performance of useful public work in con- nection with the conservation and development of the natural resources of the United States, its territories and insular pos- sessions.” , The Civilian Conservation Corps was an independent agency of the federal government until July 1, 1939, but under the plan of reorganization transmitted to Congress by the President on April 25, 1939, it has been included in the Federal Security Agency. 449 Stat. L. 115. din OeStat Les. 650 Stat. L. 319. L7Se Camp life-—Enrolment in the Civilian Conservation Corps (other than war veterans, enrollees in the territories and insular possessions, and Indians) is limited to unmarried male citizens of the United States between the ages of 17 and 23 years, who at the time of enrolment are unemployed and in need of em- ployment. Enrolment is for a six-month period, and the youth may enrol for three additional periods of six months. Upon arrival at camp the men are furnished complete clothing outfits both for work hours and for off-duty hours, assigned places in the barracks, vaccinated, and inoculated. From one to three weeks they undergo a process of “conditioning,” which consists of performing light duties around the camp, eating good food, following a regular schedule, and having medical observations made. After this physical hardening has been completed, the men are assigned to work on projects such as planting forest trees, building trails, constructing bridges, constructing telephone lines, building dams, and treating areas for erosion control. A typical camp provides for between 180 and 200 men. Five days a week—a total of forty hours, including lunch time and travel time to and from work—are spent on the proj- ects. No project work is done on Saturdays unless it is necessary to make up lost time due to bad weather during the previous week, or in cases of emergency. Each enrollee is required to spend a part of his time in duties connected with the general care of the camp. For his labor the youth receives $30 a month, his board, cloth- ing, living quarters, medical care, and an opportunity to learn, both on the work projects and in camp during off hours. As- sistant leaders—about 9 percent of the enrolment—receive $36 a month, and leaders—about 5 percent of the enrolment—re- ceive $45 a month. Of the monthly pay, each enrollee is required to send to needy dependents a minimum of $22; if he has no dependents he deposits $22 with the Civilian Conservation Corps fiscal officer, and this is returned to him when he leaves camp. The educational program.—tThe Act of 1937 establishing the Civilian Conservation Corps includes vocational training as one io of the major objectives, and it states that “at least ten hours each week may be devoted to general educational and vocational train- ing.” The statement has been made recently that “from the begin- ning the basic underlying principle of all educational activities has been to return to the normal work-a-day world citizens better equipped to earn a living.” As far as possible the educational program for each camp is organized and conducted to fit the needs of the young men in that particular camp. The enrollees range from boys who have never attended school to others who have graduated from col- lege. The average school grade completed is 8.7. The vocational interests and attainments of the enrollees also show great diver- sity. To meet the needs presented by this group of youth several types of educational opportunity and training are offered. For the large number of enrollees who have not completed the work of the elementary grades, instruction is provided in ele- mentary-school subjects leading to the granting of eighth-grade diplomas. This instruction is built around six workbooks in language usage, and six workbooks in arithmetic, with the use of graded supplemental reading. More advanced academic instruc- tion is also available. Courses in the usual secondary-school sub- jects are offered, and professional work, including teacher training, foreman training, and leader training, may be taken. A considerable amount of occupational training is given, some of it on the work projects and some on jobs in running the camp, and some of it is provided during leisure time. It is reported that the typical work project includes approximately 65 different jobs, and that the camp has from 9 to 12 different jobs, which may be made the basis of training for occupations outside the Corps. The training on the project is carried on by the project supervis- ing personnel and in the camps by the camp officers. The occu- pational training during leisure time consists of instruction di- rectly related to the training on the projects and on camp jobs, as well as of instruction in other occupations. Included among 7 76th Cong., 1st sess. House of Representatives, Committee on Labor. Hearings on H. R. 2990, February 9, 23, and 24, 1939. p. 54. [80 } the more common leisure-time offerings are commercial courses, building trades, electrical work, auto mechanics, and agriculture. A variety of other miscellaneous instruction, some of it in- formal in character, is also provided. Arts and crafts, dramatics, and music activities are carried on. Regular instruction is pro- vided in personal hygiene, safety, and first aid. Citizenship activi- ties of various types constitute a part of the program. Lectures by outside speakers and organized library activities are generally found in the camps. Much use is made of visual aids in the camp teaching. Central film libraries make available to all the camps a large assortment of sound and silent motion picture films and film strips, which are used for instruction. Lantern slide machines and opaque projectors are used extensively. Entertainment films paid for by the en- rollees also reach most of the camps. One of the most important phases of the educational program is the counselling and guidance of young men on all types of problems—personal, social, educational, and vocational. An edu- cational adviser counsels with the enrollees, talks with officers and project superintendents, studies the records of the men, ob- serves the men at work and, when possible, gives them achieve- ment and aptitude tests. The men are assisted in selecting voca- tions, and training is then provided for those vocations that can be taught in camp. Each camp has a library and reading room, and the typical camp has a book stock of more than 1,000 volumes. The camp library is supplemented by a traveling library of 100 volumes of modern fiction, biography, and other types of books which are circulated among the camps on a regular schedule, usually about every 60 days. A total of 51 magazines is furnished each camp, and from 5 to 8 daily newspapers are also supplied. Many enrollees attend schools in nearby communities during regular sessions in the day (such enrollees take night jobs) or during evenings and Saturdays. Communities in many cases con- tribute these services or make only nominal charges for janitor service, heat, and light. [81] Both private and public institutions offering instruction by correspondence have offered special rates and special courses for enrollees of the Civilian Conservation Corps. Some of these courses may be had for as low as 50 cents or $1 for a semester of work. A total of 53 institutions are offering correspondence courses which are being taken by enrollees. Through the cooperation of local school systems, state depart- ments of education, and colleges and universities, arrangements have been made in many camps whereby instruction received by enrollees leads to eighth-grade diplomas, high-school diplomas, and college diplomas. During the year 1937-38, elementary- school certificates or diplomas were given to 3,517 enrollees, high-school diplomas to 634 enrollees, and college degrees to 13 enrollees. Some of the instruction was given to men at the camps by teachers who met the standards of the cooperating school or state department, and some of it was given to men in the camps who attended schools or colleges nearby. Administration—At the head of the Civilian Conservation Corps is a Director, who is appointed by the President, by and with the advice and consent of the Senate. He has “complete and final authority in the functioning of the Corps, including the al- lotment of funds to cooperating Federal departments and agen- cies, subject to such rules and regulations as may be prescribed by the President” in accordance with the provisions of the Act establishing the Corps. Among his important functions are those of coordinating the activities of the departments of the govern- ment concerned with the camps and selecting enrollees other than veterans, Indians, and residents of the territories and outly- ing possessions. A large administrative responsibility with respect to the Civilian Conservation Corps falls upon the War Department. It is charged with examining, inoculating, and conditioning the men and trans- porting them to the camps. In the camps it is responsible for the feeding, clothing, housing, and disciplining of the enrollees, and for maintaining their general welfare. Conservation work on Indian lands is carried out by the Civilian Conservation Corps, Indian Di- [82 ] vision, and is under the Office of Indian Affairs, Department of the Interior, which office is responsible for the camps. The camps in Alaska and Puerto Rico are a responsibility of the Depart- ment of Agriculture, the one exception being the camp in the Mount McKinley National Park in Alaska which is in charge of the National Park Service, Department of the Interior. The National Park Service manages all the Civilian Conservation Corps activities in Hawaii and the Virgin Islands. The War De- partment disburses the funds for the Indian and territorial Corps activities, but it has no other responsibilities for them. Two departments of the government handle the work projects. The Department of Agriculture, mainly through the Forestry Serv- ice and the Soil Conservation Service, has in charge approximately 70 percent of the work projects, while the Department of the Interior, mainly through the National Park Service, has in charge approximately 30 percent of the work projects. Many state agen- cies also participate in the direction of the work projects. The De- partment of Agriculture and the Department of the Interior have men in their Washington offices especially designated to assist in developing systematic instruction on the work projects and to see that the enrollees become familiar with the program for the conservation of national resources. The administrative activities of the War Department in con- nection with the camps, as in the case of other activities of that Department, are largely carried on through the corps areas of the United States, each of which is under a corps area commander. For purposes of administration of the Civilian Conservation Corps, most corps areas are divided into districts each having from thirty to fifty camps. Each district has a district commander. Prior to July 1, 1939, each camp was administered by an officer of the Army Officers’ Reserve Corps, the Naval Reserve, or the Marine Corps Reserve, or a Coast Guard warrant officer, acting as camp commander. He usually had the rank of captain in the Army Officers Reserve Corps or the equivalent rank in the case of the other services. He had been called from civilian life by the corps area commander for a tour of duty as camp com- [83 } mander. Assisting him was a junior officer, usually a first or second lieutenant in the Army Officers’ Reserve Corps, or the equivalent rank in one of the other services. On July 1, 1939, the War Department began to appoint civilians to replace gradually these reserve and warrant officers serving with the Civilian Conservation Corps, and the replace- ment program will be completed in six months. However, any civilian employed in a position held by a reserve or warrant officer must, with some exceptions, hold a commission in the Army Officers’ Reserve Corps, the Naval Reserve, or the Marine Corps Reserve and be eligible for active duty and promotion, or must be a warrant officer of the Coast Guard not on the active list, although under certain circumstances suitable persons not in these categories may be employed. In reality, then, the only change is that these employees now serve in a civilian rather than in a reserve officer capacity. Under new pay schedules the camp commander receives from $2,300 to $3,200 a year. The civilian head of the camp is known as “company commander,” and his assistant as “subaltern.” | In each camp, or attached to it, are a project superintendent and an educational adviser. An average of two physicians are as- signed to every three camps. The project superintendent directs the work on the projects, and in this he is assisted by technicians and foremen. The camp physicians look after sanitary condi- tions and render medical service to the men. The Adjutant General of the War Department is charged with conducting the welfare and educational activities of the Civilian Conservation Corps. The technical details of the edu- cational program are formulated and recommended to the War Department by the United States Commissioner of Education. In determining educational policies for the camps he is assisted by an advisory committee consisting of himself as chairman, and a representative of the Director’s office, the War Department, the Department of Agriculture, and the Department of the Interior. The Director of Civilian Conservation Corps Camp Education, under the general supervision of the Commissioner of Education, [84] carries out the educational program. He is responsible for select- ing all educational personnel and recommends to the War De- partment the outlines of instruction, teaching procedures, and supplies and equipment. This official was appointed by the Presi- dent, by and with the advice and consent of the Senate. He and his assistants and clerical force are paid from Civilian Conserva- tion Corps funds allotted to the War Department. Each corps area commander is advised by a corps area educa- tional adviser, and each district commander is assisted by an edu- cational adviser with respect to the educational program. These officials supervise the work of the camp educational advisers, train them in conferences before they go into their camps, meet them in district conferences at frequent intervals, visit the camps and observe the educational work, send out monthly bulletins to the advisers, recommend appointment or dismissal of advisers, and assist in the selection of materials for instruction. _ The camp educational advisers are civilians appointed by the United States Office of Education on the recommendation of the corps area educational adviser. They are paid $2,000 a year. Usually they live in the camps and pay $3 or $4 a week for board and $5 a month for quarters. A basic requirement for appoint- ment to this position is the possession of a college degree. The educational adviser is in charge of camp educational activities under the direction of the company commander. In a typical camp there are six or seven men from a technical staff, such as foresters, engineers, landscape men, and wildlife experts, who assist the educational adviser by giving their own time after work hours to instruction. The camp may also have instructors from among the advanced enrollees, a part-time teacher from a nearby com- munity, and several Work Projects Administration or National Youth Administration teachers. Each camp has an average of about 17 instructors although, of course, most of these have other duties. eee Scope of the service-—The number of enrollees of the Civilian Conservation Corps authorized is 300,000 in the continental United States, plus an additional 7,000 Indians, and 5,000 youth [85 ] in Alaska, Hawaii, Puerto Rico, and the Virgin Islands. In June 1938 the number of commissioned officers and enlisted men on duty with the Corps in continental United States, not including the work on Indian reservations, were: (a) regular Army, 119; (b) Officers’ Reserve Corps, 4,561; (c) Naval Reserve, 115; (d) Marine Corps Reserve, 26; (e) enlisted men of the regular Army, 34; (f) total, 4,854. In February 1938 the Civilian Conservation Corps had 1,505 companies and an official enrolment strength of 270,323, and in February 1939 the official enrolment strength was 288,334. Of TABLE 5. ENROLLEES IN THE CIVILIAN CONSERVATION CORPS RECEIVING INSTRUCTION, CLASSIFIED BY TYPES OF INSTRUC- TION, FEBRUARY 1938 AND FEBRUARY 1939.2 Enrollees Type of instruction February February 1938 1939 Praning Ong thesfODN a. ius ate eee ree Dice 190,803 | NOCAtIONAlCOULSES Meee rte ee sera eee 116,493 139,287 PCACCIICE SUD |CCUS ie taeieen ean sienna te aes 91,564 111,655 Informal eactivities eee et ee 44.166 49,406 Foreman, teacher, and leader training............ 34,285 39,439 Totaltexcludingsduplicates ie remtteeeeees 238,170 263,801 @ Excluding the enrollees in the territories and insular possessions and on Indian reservations. the total enrolment in February 1938, 88 percent participated in some form of educational activity, and in February 1939, 91 percent were so engaged (see Table 5). In February 1939 about 25,600 persons gave instruction in more than 44,000 sub- jects (see Table G). _ The total obligations incurred by the Civilian Conservation Corps for the fiscal year 1938 were $308,598,890 (see Table 7). The cost per enrollee, charging all costs for materials, equipment, administration, and other items, for the fiscal year 1938 was $1,189. For the fiscal year 1939 it will be approximate- [86] ly $1,000. About 23 percent of the total cost may be charged to relief of enrollees’ dependents, and the rest can be charged to conservation and education. For the year 1938 a total of TABLE 6. NUMBER OF PERSONS GIVING INSTRUCTION AND NUMBER OF SUBJECTS TAUGHT TO ENROLLEES OF THE CIVILIAN CONSERVATION CORPS, CLASSIFIED BY TYPES OF INSTRUCTORS, FEBRUARY 1938 AND FEBRUARY 1939.2 February 1938 February 1939 Number Subjects Number Subjects Members of technical staff........ 10,171 12,496 9,603 13,979 Instructors na ESOS eR A 4,333 4,853 5,631 O52 Members of military staff ........ 2,905 4,199 3,194 4,664 Educational advisers ..........0.00. 1,471 7,407 1,469 7,007 PNP AMACACIEIS.....5.0c0ccgcoccescevsoevone 1,403 4,349 1,834 6,007 Assistant educational advisers.... 1,346 2,951 1,321 2,832 iE LCACIICIS) 2.0.0; -¢dcoceevesssacee 1,302 1,668 1,633 22.16) MPGPAMCCACIICTS. 2,0 .cccssceccossscsvossooeece 121 209 94 190 OTS 2 ee 832 1,164 813 1,015 “PSTIEET LA og i a i 23,884 39,296 25,592 44.163 @ Excluding the territories and insular possessions and the Indian reser- vations. TABLE 7. OBLIGATIONS INCURRED BY THE CIVILIAN CONSERVATION Corps, FISCAL YEAR 1938.3 liem Amount BM ATICE TO MINCINIDETS .codccs cesses loos concevicecestacocsessscessiccthacsdede $ 102,411,087 BEM OLDCLACIViLiall \CMDIOVEES © <.-.scerss cone sacensserceracteresaseensees 53,823,607 Te ICOM rr ceri ia Fee ee ied arn Tense pals 43,515,975 Ome ema RIN ACCTIAIS oe cert ses, cocks eccshcatony sn ncdnrtaiesotctee veooth ioe: 36,405,006 Pay of Reserve officers, Coast Guard warrant officers, civilian Beteeons FdcChtists and) ClErQyMeN ys .cs.ccr.--..-0ccrt cvonevesteenee> 19 199.2497 Costu) ANTENE Scop he C8 SMe tee ent cea 53,243,998 TEOTEEI ow pehstealpiann baad Is oA Conn ve ascent eae Seen are inp ibey Alot tyare rhe $ 308,598,890 @ Including the territories and insular possessions and Indian reserva- tions. $4,361,919 was the direct strictly educational obligation. An addi- tional $691,000 was represented by the pay of assistant educa- tional advisers. These figures do not represent a true or full [ 87 ] statement of educational obligations, because they do not take into account the value of the educational services of company officers, superintendents, volunteer teachers, Works Progress Ad- ministration teachers, and other persons assisting in the edu- cational program, nor do they include funds spent from camp exchange profits for educational purposes, the cost of the serv- ices rendered by nearby cooperating schools, and other important donations. WorRK PROJECTS ADMINISTRATION Among the early activities of the Federal Emergency Relief Administration was the authorization of the expenditure of re- lief funds in the employment of needy unemployed teachers or other persons competent to teach who were assigned to elemen- tary schools in rural counties where the schools were closed or partially closed because of lack of funds. At the same time au- thorization was given to pay work-relief wages in cities as well as rural counties to needy unemployed persons competent to teach adults to read and write English. Beginning with these initial steps in August 1933, the educational activities of the relief program were extended to include vocational training of unem- ployed adults, vocational rehabilitation of unemployed physically handicapped adults, general education of unemployed and other adults, workers’ education classes, nursery schools under the con- trol of public school systems, adult education in prisons, resident schools and camps for unemployed women eligible for relief, part-time employment of college students in need of aid, and parent education. By 1935 the foundations of the educational pro- gram had been laid and the principal fields of work had been determined. Legislation.—Apptopriations made under the Emergency Re- lief Appropriation Acts of 1935, 1936, 1937, and 1938 were de- signed to provide relief and particularly work relief and thereby to increase employment. The funds were made available for a variety of work projects, as follows: [88 } (1) Highways, roads, and streets. (2) Public buildings; parks and other recreational facilities, in- cluding buildings therein; public utilities; electric transmission lines or systems to serve persons in rural areas, including projects spon- sored by and for the benefit of nonprofit and cooperative associations; sewer, water supply, and purification systems; airports and other transportation facilities, flood control, drainage, irrigation, and con- servation; eradication of insect pests; and miscellaneous construction projects. (3) Educational, professional, clerical, cultural, recreational, pro- duction, service, including training for domestic service, and miscel- laneous nonconstruction projects.® Under authority of the relief appropriation acts a works pro- gtam was inaugurated and operated which included projects con- ducted by more than sixty units of the federal government, relief funds being allocated from time to time to those agencies to carry on work projects. The Works Progress Administration was established by Execu- tive order in May 1935, under authority of the Emergency Relief Appropriation Act of 1935. From time to time its powers and functions were continued by Executive orders, and by the Emer- gency Relief Appropriation Act of 1939 it was extended until June 30, 1940. The function of the Works Progress Adminis- tration was twofold: (1) to operate a useful program of work projects, and (2) to schedule and coordinate such projects with the work project activities of other governmental agencies so as to provide maximum continuous employment. The program estab- lished is fundamentally a federal work relief program, and it is operated by federal agencies. The Works Progress Administration was an independent agency of the government until July 1, 1939. On that date it and its functions (except the National Youth Administration and _ its functions) were transferred to the Federal Works Agency. At the same time the name was changed to Work Projects Administra- tion. 8U. S. Government Manual, p. 341. (August 10, 1938.) [89 } Educational activities —Almost every section of the Work Projects Administration is engaged directly or indirectly in edu- cational activities, but the principal activities in education are carried out under the Section of Education and Training Proj- ects. Other sections concerned with educational activities are the Section of Recreation Projects, the Section of Production and Service Projects, the Section of Research and Records, and the Section of Operations. The education projects include the following activities: literacy and naturalization classes; workers’ education; public affairs edu- cation; education for home and family living, including home- making, parenthood, home nursing, home hygiene, and health education; vocational education, including training for trade and industrial occupations and commercial occupations, agricultural education, vocational guidance and adjustment, and other forms of vocational training; education in avocational and leisure-time activities, including arts and crafts, literature and language, public speaking and dramatics, and music; academic and cultural educa- tion on the college level; correspondence instruction; nursery schools; public schools for children of employees on certain fed- eral projects; and a number of other types of education. These educational activities are carried on through forums, dis- cussion groups, panels, lectures, classes, educational tours, and laboratory and shop exercises. They use public schools, libraries, museums, radio stations, and other agencies. Books, periodicals, pamphlets, and mimeographed materials are employed when available, and new materials particularly adapted to the needs and purposes of the persons receiving the instruction are pre- pared. Attention has been given to the in-service training of Work Projects Administration teachers for the particular types of work they have to do. During the summer of 1938, 72 summer training institutes and schools extending from two to six weeks were held for this purpose in colleges and normal schools. In many cases the teachers received credit which continued their teachin certificates. is The Work Projects Administration engages in construction [90 } projects, which include the construction and repair of school buildings and libraries, and the construction of recreational facili- ties. In connection with these projects it conducts a foremanship training program whose purpose is to provide instruction to fore- men and supervisors employed on construction projects, so as to insure a better understanding of responsibilities, to facilitate the management of personnel, and to prepare men for employment in private industry. The research and records projects cover a wide range of sub- jects, such as unemployment, public health, family incomes, cost of living, taxation, population, and education. Among the projects directly related to education are statewide testing programs, and studies of school building adequacy, transportation of pupils, problem children, effectiveness of counselling, school records, school population, school failures, and promotion and grading practices. The recreation projects include arts and crafts, drama, music, lecture and discussion groups, literary and cultural appreciation, athletics and sports, game room activities, dancing, and recrea- tional therapy. The purpose of these projects is to promote the use of leisure for purposes of physical development, esthetic enjoy- ment, mental exploration, and participation in civic life. The line between education and recreation is not sharply drawn. The age and the education of the project worker determine to a large extent the nature of the activity. The older and the better educated groups are offered programs which place more emphasis on social or cultural recreation than on physical recreation. Administration —A federal Commissioner of Work Projects and his Deputy Commissioner are at the head of the Work Projects Administration, subject to the general direction and supervision of the Federal Works Administrator. Five Assistant Commissioners and 9 field directors, one for each of the 9 regions into which the country is divided, are immediately responsible to the Commis- sioner of Work Projects. Directors of the Sections of Recreation Projects, Education and Training Projects, Production and Service Projects, and Research and Records Projects are immediately sub- LOG ordinate to an assistant Commissioner for the Division of Profes- sional and Service Projects (“nonconstruction”) and their rela- tions with the regional and other officers and state administrators ate determined by him. The director of the Section of Education and Training Projects is a member of the staff of the United States Office of Education, on loan full time to the Work Projects Ad- ministration. He is assisted by specialists, acting primarily as con- sultants, in several of the principal fields included in the program. The office of each regional administrator has subordinate of- ficials with functions corresponding to those of the heads of the divisions in the Washington office. In each state there is a federal Work Projects administrator who has charge of the work relief program. He is assisted by a staff which includes a director of emergency education for the state, who is appointed jointly by the state administrator and the state department of education and is administratively responsible to the state administrator. The appointment of the state director, as of other administrative and supervisory educational personnel, is approved by the national director of the Section of Education and Training Projects. The educational personnel in the state is approved by the state department of education. The details of the administration of the education program vary a great deal from state to state. The degree of cooperation between the state department of education and the Work Projects Ad- ministration ranges from almost complete identification of the emergency education program with the state education program, through a cooperative agreement, to almost complete separation of the responsibility of the two agencies concerned. The aim of the national director of education and training projects in the Work Projects Administration is to have the state director of these proj- ects Operate as an agent who, with respect to administrative matters, is responsible to the Work Projects administrator in the state and, with respect to educational supervision and educational prac- tices, is responsible to the state department of education. The state director is expected to be in constant touch with the state department of education and to use its staff as it may be avail- {92} able. Most of the state directors of education and training proj- ects are compensated by the Work Projects Administration, but in a few states they are members of the staff of the chief state school officer and are paid out of state funds. Thus both the program and the administrative personnel of the emergency education projects in each state are approved by the state department of education, the Work Projects administrator for the state, the regional Work Projects administrator, and the national director of the Section of Education and Training Projects. Usually the state director of the emergency education program is assisted by a number of supervisors appointed by the Work Projects administrator for the state and approved by the chief state school officer and the national director of the Section of Education and Training Projects. In a few states these supervisors are employees of the state department of education and give only a part of their time to the emergency education program. These supervisors are the links between the state director and the local teachers employed on the education program. In every state except one the state department of education is the sponsor of the statewide emergency education program. The local superintendent of schools is the local sponsor. Local supervisors of the program are sometimes taken from relief rolls, and the teachers are practically always from this source. The teachers are not required to have teaching certificates or to have had teaching experience, but in lieu thereof they must have had training or experience sufficient to qualify as teachers on the program. The teachers are appointed by the Work Projects ad- ministrator for the state, after approval by the local superintendent of schools and the appropriate state supervisor. National, state, and local advisory committees, usually for spe- cific aspects of the emergency education program, have been ap- pointed in some states. The national director of the Division of Education and Training Projects has a general advisory commit- tee.° 9The members of this committee are: Ben Graham, chairman, Willard E. Givens, Sidney Hall, Edwin Lee, Floyd W. Reeves, George Stoddard, Edna White, Doxey Wilkerson, and George F. Zook. [93] The initial statement of an emergency education project is pre- pared by the project sponsor—any legally recognized public edu- cational organization, but usually the state department of edu- cation—in cooperation with the director of emergency education. In the form of an application it is submitted for approval to the state Work Projects administrator and his technical advisers and to the national director of the Education and Training Projects Section. Approval by these officials is intended to assure that the projects are in accordance with federal regulations and to provide such technical advice as may improve the quality and effective- ness of the projects when established. States are not required to present their plans for the fiscal year or to report currently, other than in brief statistical form, on the development of their programs. Enrolments and employees—In March 1938 a total of 1,416,307 persons were enrolled in classes in adult education, as follows: (a) general adult education, 353,503; (b) leisure-time and avocational classes, 315,282; (c) literacy classes, 278,440; (d) vocational classes, 202,891; (e€) homemaking, 133,526; (f) public affairs classes, 56,754; (g) workers’ education, 38,424; (h) correspondence courses, 30,502; and (i) “emergency col- leges,” 6,985. During the same months 44,190 young children were enrolled in about 1,500 nursery schools, and 903,912 persons were reported as attending meetings other than regular classes, such as forums, lectures, and special programs of all kinds. During the same month 34,097 persons were employed on educational projects in the states. Of these, 95 percent were cer- tified by relief agencies as in need of relief. Over 80 percent of the total were employed as teachers, about 5 percent were in supervisory positions, and the remaining 15 percent were prin- cipally maintenance and clerical workers. These data are only for the Education and Training Projects Section; similar data for other sections are not available, except for the recreation projects, which employed over 32,000 persons in April 1938. [94 } Library program.—tThe library program will serve as another example of the educational work carried on by the Work Projects Administration. This extensive activity has expanded from the original projects of taking inventories of book collections, put- ting shelves in order, and repairing books, to a comprehensive plan of promoting and rendering library service in all states. Besides the so-called individual projects, in which the service is confined to one library, the Work Projects Administration has in operation with federal funds statewide library projects. The essential purpose of the statewide library service projects is to demonstrate accepted plans for the development of library service on a statewide basis, which resolves itself largely into a problem of reaching the unserved rural population of the state. The hope of the Work Projects Administration is that its demonstrations will stimulate the appropriation of local and state funds for permanent service. The program worked out includes a comprehensive plan to organize libraries within the states; to operate traveling libraries, pack-horse libraries in inaccessible regions, and bookmobile ser- vices; to provide rural schools with libraries; to carry on library publicity; to prepare library manuals; to organize citizen groups; and to promote library service generally in areas without it. For the projects which meet the required conditions and are duly approved, Work Projects Administration funds provide the work- ers, books, supplies, and certain equipment such as bookmobiles. The administration of the library program is under the gen- eral direction of the Assistant Commissioner of the Division of Professional and Service Projects, assisted by a library consultant, a trained librarian. In a state the complete organization is about as follows: a state technical director assisted by several district directors, each of these latter officials having control over a group of technical advisers who have definite fields of activity, thus forming a network of supervision over the field workers. Through this staff, contact is maintained with the state sponsors of the projects and with the established local agencies for library service. {95} According to the most recent reports, there are more than 30,000 library workers on these 35 statewide library proj- ects, and they are supervised by a staff of 88 fully trained librarians and at least 50 persons who have had some library training. At least 75 bookmobiles, begun and subsidized by Work Projects Administration funds, and in addition at least an equal number that have been stimulated and partly supported by funds from the same source, are in operation. NATIONAL YOUTH ADMINISTRATION The program of the National Youth Administration has been directed specifically to assisting the group of young people who have not been absorbed into employment and who have not been able to continue their education because of their parents’ economic difficulties. It provides help for a large group similar to the one for which the Civilian Conservation Corps was established, but it assists also another and larger group whose principal immedi- ate purpose is to attend schools and colleges. Legislation The National Youth Administration was estab- lished by the President by Executive order, June 26, 1935.” Its purpose was to initiate and administer a program of approved projects which should provide relief, work relief, and employment for persons between the ages of sixteen and twenty-five years who were no longer in regular full-time attendance at a school and who were not regularly engaged in remunerative employment. Originally the National Youth Administration was set up under the Works Progress Administration, but the two agencies were administratively separate. Separation from the Works Prog- ress Administration was effected in December 1938. Legislation recently enacted has made the separation statutory and extended the National Youth Administration until June 30, 1940." By the terms of the President’s reorganization plan transmitted to Con- 10 No. 7086. 11H. J. Res. 326, 76th Cong. {96} gress April 25, 1939, the National Youth Administration was placed under the Federal Security Agency on July 1, 1939. In accordance with its major objectives, the National Youth Administration carries on a student aid program, a work projects program, and a guidance and placement program. Student aid.—The student aid program provides part-time em- ployment for needy students sixteen to twenty-four years of age to enable them to continue their education. Three groups receive aid: (1) pupils in elementary and high schools; (2) under- graduate students in college; and (3) graduate students. Aid may not be given to youth to displace workers paid from other funds. In order to qualify for student aid, an applicant must present satisfactory evidence that he could not enter or remain in school without employment in the student aid program, that he is a citizen of the United States or has filed declaration of intention to become a citizen, and that he is of good character and possesses such ability as to give assurance of doing good work in school. Only pupils and students who carry at least three-fourths of the normal load in school are eligible for aid. The maximum amount that any elementary- or high-school pupil may earn in a month is $6; a college student, $20; a gradu- ate student, $40. College students may not receive more than an average of $15 a month and graduate students are restricted to an average of $30 a month. The hourly wage rates for the various forms of aid vary, since they are based on the rates prevailing in the respective institutions or localities for the same type of work. The maximum hours of work for a pupil in elementary or high school is 20 per week and for college and graduate students 30 per week, except that during vacation periods within the academic year it may be 40 per week for college and graduate students. The National Youth Administration stipulates that the work to which pupils and students are assigned shall be practical and useful and that emphasis shall be placed on work which is in keeping with the abilities and major interests of the youth re- ceiving the aid. The work to be performed must be classified and [97] described under the following twelve categories: clerical, con- struction, departmental service, library work, duplication, grounds and building maintenance, research and surveys, home economics, art, laboratory assistance, recreation, and miscellaneous. Institutions, to be eligible to participate in the student aid pro- grams, must be tax-exempt, nonprofit making, and bona fide edu- cational institutions. Both public and private institutions, includ- ing parochial schools, may participate. Quotas are assigned to schools and colleges, depending on their enrolments on October 1, 1936. Negro students who cannot be assisted under an insti- tution’s quota for aid to college and graduate students may apply, through the institution they wish to attend, for assistance from a special Negro Graduate Aid Fund which has been set up on a national basis. Work projects—The work projects program is designed for young men and women eighteen to twenty-four years of age. It provides part-time employment on work projects of youth from relief families and is intended to give young people work experi- ence as well as to benefit the communities in which they live. Preference in employment is given to youth whose relief need has been certified by public relief agencies. The intention is that at least 90 percent of all workers on a youth project shall be youth having relief status; the remaining 10 percent, whether supervisors or regular employees, may be youth and adults of non- relief status. Enrollees are required to maintain active registra- tion with public employment offices designated by the Employment Service, operated under the Social Security Board, and they are encouraged to accept employment in private industry. Except for supervisory and administrative employees, the work- ing hours of youth on work projects may not exceed 8 per day, 40 per week, and 70 per month. Without special authorization no relief youth employees may earn more than $25 a month. Most of the work projects are sponsored by some public or nonprofit making agency in cooperation with the Youth Admin- istration, the sponsors making various types of contributions, such as supervision, services, funds, equipment, and materials. {98 ] The construction work includes highway, public building, recre- ational facilities, and conservation projects. In the nonconstruc- tion group are nursery schools, clerical and stenographic work, school lunches, library service, sewing, museum work, and many other types of work. In general the youth on Youth Administration work projects live with their families, although an increasing number of resi- dent projects are being established. The majority of them are located at land-grant colleges, teachers’ colleges, vocational schools, experiment stations, conservation areas, and hospitals. These resident projects provide work experience and related in- struction in agriculture, shop work, construction, and homemak- ing. The young people live on the site of the project for periods varying from three to six months and earn wages by performing work. Monthly earnings are slightly higher on resident projects than on others in the same state. A portion of each youth’s wages is used to pay for his subsis- tence, and the balance is available to him for his own use. At most resident projects the young people provide their subsistence through a cooperative arrangement under which a given amount is pooled each month. In some instances where resident projects are operated in cooperation with educational institutions, the youth pay the institution for their subsistence. Subsistence costs vary from project to project, depending on the arrangement the youth make for themselves. Related instruction is provided in classes in which subjects are taught having a definite bearing on the work the youth are per- forming. For example, a boy working on a conservation project might learn blueprint reading, or a girl on a clerical project might learn business English. The related training classes are most fre- quently conducted by the educational institutions sponsoring the projects, often as a part of their regular work. Others are con- ducted by National Youth Administration instructors and teach- ers employed on Work Projects Administration education projects. The National Youth Administration has not outlined a definite policy for the education of work projects youth. Such education [99 } is left to local requirements, facilities, and initiative. Where pro- vision has been made for the continued education of these youth, it consists principally of: special courses at trade schools, courses in opportunity schools, class work under the auspices of state de- partments of education, emergency education classes under the Work Projects Administration, and general and vocational in- struction in schools, colleges, and universities. Some vocational instruction is given by the foremen on the projects. Guidance and placement.—A vocational guidance and occu- pational service is carried on as a part of the work projects pro- gram. In each state there are specialists in vocational guidance who promote this work in connection with the projects. The Youth Administrations in a number of states have also produced occu- pational and industrial studies which have been distributed to youth. An industrial study seeks, in simple terms, to give a pic- ture of the industry, its growth or decline, its national distribu- tion, the skills required, and the conditions of work. A total of forty-six studies of industries and forty-two studies of occupations have been issued, and more than 400,000 copies have been dis- tributed. The National Youth Administration and the Employment Serv- ice under the Social Security Board cooperate in conducting a junior placement program, which is referred to in the description of employment service. Other programs.—At one time or another the National Youth Administration has taken over the financing and, to some extent, the administration of several programs other than those already mentioned. The apprentice training program, under the Federal Committee on Apprentice Training, has been transferred to the Department of Labor. A program of educational camps for un- employed women, established in the summer of 1934 under the direction of the Division of Education Projects of the Federal Emergency Relief Administration, and transferred to the Na- tional Youth Administration in July 1936, was discontinued in October 1937. Administration —The National Youth Administration has its { 100 } own federal, state, and local administrative organization, which determines policies and procedures in the execution of its pro- gram. The central office consists of: an administrator; a deputy ad- ministrator; an executive committee of six members from vari- ous federal agencies; a national advisory committee of thirty-one members who represent labor, business, agriculture, youth, and education; and a staff of approximately 120 employees. The country has been divided into five regions, and for each there has been appointed a regional representative. These officials serve as liaison and contact men for the central office with the states. They have no authority to employ or discharge personnel. Each of them maintains an office in the field. Youth Administrations have been established in every state, the District of Columbia, and New York City. The program for each of these areas is administered by an administrator and his staff. Each administrator has appointed an advisory committee to advise him as to the most desirable type of youth program for the area and to promote interest in it. The state, District of Columbia, or New York City administrator sets up the machinery for the ad- ministration of the program in his area and, with the approval of the national office, appoints his area and district personnel. With some few exceptions, he gives final approval to all Youth Ad- ministration projects in the area. Assisting him are various divi- sion heads or supervisors, one for each main division of the program. For example, usually there is a head for the division of work projects and one for the division of guidance and place- ment. The Youth Administration in a state has no formal and official relationship to the state department of education, except as that department may sponsor a project or activity carried on by the Youth Administration. Every state is divided into districts, each usually consisting of several counties, and for each district there is a supervisor re- sponsible to the state administrator. The project supervisors are responsible to the district supervisor. The major part of the ad- ministration of the student aid program is in the hands of the {101} state and college officials, the institution in each case being re- sponsible for the assignment of students to suitable work and for the supervision of the work that is done. Advisory committees, organized on a county and community basis, constitute a part of the administrative organization in localities. They assist the local officials of the National Youth Administration by sponsoring projects, obtaining contributions, and in other ways promoting the program. The National Youth Administration has cooperated with other federal, state, and local governmental agencies and with numer- ous nongovernmental agencies. TABLE 8. NUMBER OF PERSONS ASSISTED IN THE STUDENT AID AND THE WORK PROJECTS PROGRAMS OF THE NATIONAL YOUTH ADMINISTRATION, MAy 1938 AND MARCH 1939. Number assisted Program and group of persons May March 1938 1939 Student aid: Elementary- and secondary-school pupils............ 225,554 266,419 Undergraduate college students............cccccesseeeees 98,563 109,423 Csfaduiate sstudents wa tists tea oe ieee nee ee eee thes PE 2,850 dL Otal wets avis) coke Be nee, hee ee oe eke ae ie 326,644 378,692 Work projects: Met Bilin tiga OOUek, OTN Ne ar See, Sarena | 99,738 134,559 WOMICM i rcte ates Ot eg a a, 2 en 79,536 100,916 TOtal Poa Se ae eee 179,274 235,475 Grand ttotal Ryee hrs Oe ae ere Cepia 505,918 614,167 Scope.—The student aid program during the school year 1938- 39 was extended in 27,549 institutions—25,898 schools of less than college grade and 1,651 colleges and universities. In March 1939 it assisted 378,692 youth (see Table 8). The average monthly earnings were: $4.15 for school pupils; $11.74 for undergraduate college students; and $18.41 for graduate students. During the same month the work projects employed 235,475 youth, approximately 96 percent of whom had been certified as { 102 } in need of relief. Somewhat more than 500 resident camps, with a total enrolment of 26,243, were in operation in 44 states. During the fiscal year 1938 a total of $51,156,505 was ex- pended for the programs conducted by the National Youth Administration: $18,667,690 for student aid and $32,488,815 for work projects. The expenditures for these two programs from the beginning of the National Youth Administration through March 1939 totaled $224,161,126, of which amount $206,203,836 was from federal funds (see Table 9). TABLE 9. EXPENDITURES BY THE NATIONAL YOUTH ADMINISTRA- TION FOR STUDENT AID AND WORK PROJECTS FROM THE ESTABLISHMENT OF THE PROGRAMS THROUGH MARCH 1939. Purpose and source Expenditures erm RatG # TCCCTal) UNS. css losc les lessectecisccsoosslceslcvescomaghsoceals $ 84,485,103 Work projects: MR MTITICS Fee ee ee ee Lee $121,718,733 RMR mrss TINS Ce cos ANN co, 17,957,290 139,676,023 “2 a eG ibe eS Sp ieee ely aloe es es Sai $224,161,126 PUBLIC WORKS ADMINISTRATION During the period following the World War there was great need for the construction of new school buildings, and the states and local communities made large outlays for this purpose. When the depression came, the funds available for capital outlays were drastically reduced, and by 1933 there were indications that the construction of school facilities would soon be discontinued en- tirely. A revival of school construction was brought about by means of grants and loans made by the federal government through the Public Works Administration. Legislation—The Public Works Administration was estab- lished by the President in 1933 under authority of title II of the National Industrial Recovery Act.” Its chief aim was to reduce 12 48 Stat. L. 195. Prior to July 1, 1939, the official name of the agency was the Federal Emergency Administration of Public Works. { 103 } unemployment and restore purchasing power through the con- struction of public works. Subsequent legislation from time to time has continued this agency to June 30, 1941. Funds have been provided for it both by congressional appropriation and by sales of securities acquired by it. The Public Works Administra- tion was an independent office until July 1, 1939, when it was included in the Federal Works Agency. The Public Works Administration has not itself carried on construction work, except from 1933 to 1937 it was engaged in a program of low-cost housing and slum-clearance projects. It had two functions: (1) to make loans and grants to public bodies and (under the National Industrial Recovery Act) loans only to private corporations; and (2) to make allotments to the various departments and independent establishments of the government for federal projects. Thus it dealt with federal and nonfederal construction projects. Nature of grants and loans for educational buildings —For some years prior to January 1, 1939, it was possible for a school or school system to receive a grant of money from the Public Works Administration equal to 45 percent (at first 30 percent) of the cost of the building to be constructed. The school or school system was required to obtain the remainder of the cost of con- struction from some other source, or it could borrow some or all of the remainder, 55 percent (at first 70 percent), from the Public Works Administration, this agency purchasing the bonds issued by the school or school system."* The rate of interest on the bonds was 4 percent. Among the other general requirements which schools and school systems had to meet in order to obtain grants were that the project must be: (1) socially desirable; (2) legal under state legislation; and (3) approved by the Public Works Administration. Administration —The work of the Public Works Administra- tion is carried on by a central office in Washington, seven regional and two subregional offices in the continental United States, and 18 The bonds were placed with the Reconstruction Finance Corporation, which had authority to sell them through the open market. { 104} tepresentatives in Hawaii, Puerto Rico, and the Virgin Islands. Each regional office has a director and a number of appropriate divisions. No state offices are maintained. A school or a school system desiring a grant or a loan made application to the regional office, which made the necessary in- vestigations: (1) to determine whether the applicant was a public body duly representing the people and whether the project could be constructed in compliance with local, state, and federal law; (2) to see if the project was financially sound and whether the school or school system was in a position adequately to provide its share of construction costs; and (3) to determine whether the project was feasible from the point of view of engineering. The regional office reported to the Washington office, which had au- thority of final approval. After the grant was made, the project sponsor (the school or school system) had the building constructed by contract. The Public Works Administration supervised the construction to assure _ that it was properly carried out by the contractor, but exercised no control over the building after construction was completed. Funds for educational buildings—As of December 31, 1938, funds amounting to $2,337,354,534, including grants and loans, had been allotted for 16,709 nonfederal projects. The allotments for educational buildings and libraries (7,290 projects) amounted to $573,337,610, or almost one-fourth of the total allotted for all nonfederal projects (see Table 10). The allotments for this construction were larger than those for any other one purpose. The Public Works Administration has not been authorized to receive applications for grants and loans since September 30, 1938, but it had authority to make allotments for any projects applied for before that date which in the determination of the administrator could be begun not later than January 1, 1939. RECONSTRUCTION FINANCE CORPORATION Most of the federal loans to schools and school systems have been handled by the Public Works Administration, but a small {105 } number have been made by the Reconstruction Finance Corpora- tion. Establishment and function—The Reconstruction Finance Cor- poration was created in January 1932 by an Act “to provide emergency financing facilities for financial institutions, to aid in financing agriculture, commerce, and industry, and for other pur- poses.” * By subsequent legislation the powers of the Corpora- tion have been increased and the scope of its operations extended. It operates through a central office in Washington and loan agencies and representatives in various cities throughout the TABLE 10. ALLOTMENTS OF FEDERAL FUNDS MADE BY THE PUBLIC WORKS ADMINISTRATION FOR THE CONSTRUCTION OF EDUCA- TIONAL BUILDINGS AND LIBRARIES, SEPTEMBER 1933 TO DECEMBER 31, 1938. Nuwm- b. i Allotments Type of building of proj- Loan Grant Total ects Secondary schools.... 6,456 $62,971,754 $386,666,291 $449,638,045 Colleges and uni- VETSItIES Sysco 663 30,574,829 80,562,609 111,137,438 Other educational INStitutiONS 2.2... 65 188,000 7,307,961 7,495,961 Public libraries ...... 106 181,800 4,884,366 5,066,166 Totals 7,290 $93,916,383 $479,421,227 $573,337,610 United States. The Reconstruction Finance Corporation was an in- dependent agency until July 1, 1939, when it was placed in the Federal Loan Agency. The Corporation has made three types of loans which are di- rectly related to education. Self-liquidating loans, 1932-33.—Under the Emergency Relief and Construction Act of 1932 the Reconstruction Finance Cor- poration was authorized to make self-liquidating loans (loans re- 1447 Stat. L.'5. 15 47 Stat. L. 709. { 106 } paid out of earnings of the projects) to public projects constructed by state and municipal authorities. This authority lapsed on June 26, 1933. A total of 10 loans were made, the aggregate amount being $1,391,933. They were used for 6 dormitories, 2 stadiums, 1 gymnasium, and 1 cannery. Loans to public agencies —To aid in financing projects author- ized under federal, state, or municipal law, the Reconstruction Finance Corporation is authorized to make loans to, or contracts with: (1) states, municipalities, and political divisions of states; (2) public agencies and instrumentalities of one or more states, municipalities, and political divisions of states; and (3) public corporations, boards, and commissions. Such loans or contracts are made through the purchase of securities issued by the agencies and instrumentalities receiving the loans. Some of them are wholly or partly self-liquidating. For many, an appropriate state board or other agency issues a general authority bond which is paid off from such revenues as are obtainable from the projects, the de- ficiency being made up from other sources. Under this provision, and as of June 30, 1939, 76 loans agere- gating $109,760,136 were active, that is, they had been author- ized by the Corporation and had not been cancelled. Of these loans, 15, aggregating $3,642,900, were authorized for schools, colleges, and universities, mostly to construct schools and dormi- tories. Loans to public school authorities —By an Act approved June 19, 1934,'° the Reconstruction Finance Corporation was author- ized to make loans at any time prior to January 31, 1935, to public school districts or to other similar public school authorities for the purpose of payment of teachers’ salaries due prior to June 1, 1934. This provision was made primarily to care for the situa- tion in Chicago where public school teachers went without pay from November 15, 1933, to May 31, 1934. Under the provision of the Act a loan of $22,300,000 was made to the Chicago Board of Education in August 1934. 16 48 Stat. L. 1105. { 107 } An Act approved August 24, 1935,’” authorized the Recon- struction Finance Corporation to make loans in an aggregate amount not exceeding $10,000,000 to, or for the benefit of, tax- supported public school districts or other similar public school authorities, for the purpose of enabling them to refinance their outstanding indebtedness. The aggregate amount available is al- located equitably among the several states, territories, and the District of Columbia on the basis of demonstrated need. Two types of loans may be made: (1) refinancing loans, for the purpose of enabling the school district or school authority to reduce and re- finance outstanding indebtedness on obligations incurred prior to August 24, 1935, for the purpose of financing the construction, operation, and maintenance of public school facilities; and (2) rehabilitation loans made to applicants to whom refinancing loans have been authorized, to make such repairs, extensions, or im- provements to the public school facilities on account of which the refinancing loans were made as are necessary or desirable for the further assurance of the ability of the applicants to repay the refinancing loans. The loans are made only to school districts or school author- ities whose bonds are in default or where it is anticipated that default will occur due to failure to collect assessments. Under the law, no loan can be made unless a substantial reduction is made of the principal of the outstanding indebtedness and obligations. The Reconstruction Finance Corporation has defined this substan- tial reduction to mean a reduction of 25 percent or more, depend- ing on circumstances. The loans authorized prior to February 2, 1939, for refinancing indebtedness of school districts amounted to $2,086,800. Of this amount $1,067,300 was cancelled and $150,000 was disbursed. BIBLIOGRAPHICAL Notes 18 The materials for this chapter have been obtained from a large num- ber of published sources and from persons connected with government 17 49 Stat. L. 796. 18 The numbers in parentheses refer to the numbers of the titles in the Bibli- ography. { 108 } agencies. Two works—the United States Government Manual (21) and the study by Bitterman (56)—provided a considerable amount of general information on the various emergency agencies. The other sources relate to particular aspects of the emergency relief program. The principal published sources of the material in the section on the Civilian Conservation Corps are two official reports by the Director of the Corps (11) and (14), a special number of the Phi Delta Kappan (61), the handbook by Hoyt (62), the hearings on the bill to make the Civilian Conservation Corps a permanent agency (27), and a de- scription of the education program recently published in School Life (13). Some information was obtained from Kenneth Holland, who is in charge of the study of the Civilian Conservation Corps now being made by the American Youth Commission. Officials who supplied additional information are Granville E. Dickey, Chief Statistician, and Harold Stan- ley, Assistant Chief Statistician, Civilian Conservation Corps; Howard W. Oxley, Director of Civilian Conservation Corps Camp Education; and Silas M. Ransopher, Assistant Director of Civilian Conservation Corps Camp Education. Mr. Dickey and Mr. Oxley read the draft from which the final copy was prepared. The information for the section on the Work Projects Administra- tion was obtained from the most recent annual report by that agency (54), hearings on making appropriation for work relief and relief for the fiscal year 1940 (34), a monograph by Carothers (10), and a study by Campbell, Bair, and Harvey (9). Additional information on the library projects was found in an article by Chapman (58) and a study by Joeckel (18). Lewis R. Alderman, Director of the Education and Training Proj- ects Section, Work Projects Administration, supplied some information and read the draft from which the final copy was prepared. Edward A. Chapman, Library Consultant, Work Projects Administration, read a draft of the statement on the library projects and suggested several corrections, which were made. The principal published sources used in the preparation of the section on the National Youth Administration are a study by Johnson and Harvey (19), a report from the National Youth Administration (52), a report issued by the Works Progress Administration (54), and hear- ings on making appropriation for work relief and relief for the fiscal year 1940 (34). Information was also obtained from George Sanford Holmes, Director of Information and Publications, National Youth Ad- ministration, who read the draft from which the final copy was prepared. The three principal sources of the information for the section on the Public Works Administration are a popular bulletin giving the story of { 109 } this office (17), hearings on the independent offices appropriation bill for 1940 (32), and a pamphlet giving the terms and conditions of grants and loans (16). A draft of the section from which the final copy was prepared was read by C. Russell Shetterly, Counsel, Public Works Admin- istration, who suggested several corrections, which were made. The information for the section on the Reconstruction Finance Cor- poration was taken largely from three circulars (24), (25), and (26), a quatterly report (27), and a seven-year report (28) issued by that agency. Additional information was supplied by W. L. Drager, Chief, Engineering Section, Self-Liquidating Division, and Frank J. Keenan, Chief, Drainage, Levee, and Irrigation Division and Refinancing Loans to School Dstricts, Reconstruction Finance Corporation. { 110] VI. THE UNITED STATES OFFICE OF EDUCATION NUMBER of departments and independent offices of the fed- eral government have taken on educational functions, and this development has been especially marked since 1933 in con- nection with the emergency programs. The one federal agency, however, which has been established as the center for information on the progress of education throughout the United States is the Office of Education. In addition to serving as a source of informa- tion on education, it performs numerous other functions, some of which have been referred to elsewhere in this study. HISTORY The United States Office of Education was created by Congress in 1867 as a “Department of Education” under a Commissioner. By a provision in an appropriation act for the fiscal year 1869, the Department of Education ceased on June 30, 1869, and there was established an “Office of Education” in the Department of the Interior, the chief officer being the Commissioner of Education. In 1870 this agency was named the “Bureau of Education,” and it was known as such until 1929 when the title “Office of Educa- tion” was restored. In 1917 Congress established as an independent agency the Federal Board for Vocational Education, whose functions were to administer the Smith-Hughes Act and to make studies and reports to aid in the organization and conduct of vocational edu- cation. Similar functions with respect to vocational rehabilitation of the physically disabled were lodged in the Board in 1920. From 1918 to 1921 the Board administered also the program of voca- tional rehabilitation of disabled soldiers, sailors, and marines. Pils By Executive order in 1933, the functions of the Federal Board for Vocational Education were transferred to the Department of the Interior, and the Board was made an advisory body. In the same year the Secretary of the Interior assigned to the Office of Education the federal administration of the vocational education and the vocational rehabilitation functions. In the reorganization of government agencies on July 1, 1939, two changes affected the Office of Education. On that date the Office and its functions and personnel were transferred from the Department of the Interior to the Federal Security Agency. On the same day the functions of the Radio Division and the United States Film Service of the National Emergency Council, both sup- ported from emergency relief funds, were transferred to the Fed- eral Security Agency, and the administration of these functions, which is under the direction and supervision of the Federal Se- curity Administrator, was placed in the Office of Education. ORGANIZATION AND FINANCIAL SUPPORT The head of the Office of Education is the Commissioner of Education. The Office has one Assistant Commissioner of Educa- tion and one Assistant Commissioner for Vocational Education. Under the former are eight divisions: higher education, Ameri- can school systems, comparative education, special problems, sta- tistical, library, library service, and editorial. Under the Assistant Commissioner for Vocational Education there are two divisions. The Vocational Education Division includes six services: agri- cultural education, trade and industrial education, home eco- nomics education, business education, occupational information and guidance, and research and statistics; and the Vocational Re- habilitation Division includes vocational rehabilitation in the states, territories, and outlying possessions, vocational rehabili- tation for the District of Columbia, and the service for the blind. The Civilian Conservation Corps camp education office is or- ganized under a director and an assistant director. The appropriations for the Office for the fiscal year 1939 were: weld2s (1) salaries and general expenses, $292,300; (2) library service and library research, $25,000; (3) printing, $52,000; (4) ad- ministration of, and studies in, vocational education, $425,000; and (5) administration of, and studies in, vocational rehabilita- tion of the physically disabled, $104,650. At present 236 positions are provided in the Office on perma- nent status, 99 of which are in the Office of Education exclusive of the Vocational Education and the Vocational Rehabilitation Divisions, and 137 are in the last two named divisions. About half of each of these two groups are of professional grade. An addi- tional 25 positions are provided for supervisory work in the forum and radio projects supported from emergency relief funds. These figures do not include the positions in the services transferred to the Office on July 1, 1939. REGULAR ACTIVITIES OF THE OFFICE The original purpose of the Office of Education was to col- lect and disseminate information on education and “otherwise promote the cause of education throughout the country.” At first the Office was essentially a research agency, but from time to time numerous additional responsibilities have been placed on it. The present regular activities may be grouped under seven heads. Research and investigation.—The research work of the Office includes studies of problems made by members of its staff alone and studies made in cooperation with states, universities, local school systems, and other agencies. These investigations, which deal with practically all phases of the educational program in the United States, include questionnaire and field studies; documen- tary studies of legal and historical problems; and experimental, analytical, and statistical projects. Since 1911 the Office, in many instances with the assistance of outside experts, has engaged in surveys of state and local school systems, institutions of higher education, and programs of vocational education and vocational rehabilitation of the physi- cally disabled. The policy of the Office is to undertake a limited fils number of surveys of this type in such typical situations that the techniques and findings will be of general interest and ap- plicability. The Office has also conducted five extensive nationwide sur- veys: (1) land-grant colleges and universities, 1927-30; (2) Negro colleges and universities, 1927-28; (3) secondary edu- cation, 1929-32; (4) education of teachers, 1930-33; and (5) school finance, 1931-32, which was not completed because Congress made no appropriation for it after the first year. Other nationwide surveys had been planned, but owing to the de- pression they were not made. Statistical reporting—One of the principal functions of the Office is statistical reporting on education. In performing this function the Office is handicapped because it has no authority to require statistical reports from school systems and institutions, except of certain systems and institutions which receive federal grants of money (land-grant colleges, Howard University, and state boards for vocational education). Another handicap of the Office in collecting statistics on education is that the records kept — in various states do not always provide comparable data. During the past few years the Office has been engaged in a cooperative study with state departments of education to secure uniformity in recording and reporting educational statistics, continuing the work begun in 1909 to develop a better basis for nationwide statistics. The statistical reports are of several types. Annual reports ate prepared on the land-grant colleges, vocational education and vocational rehabilitation of the physically disabled, receipts and ex- penditures in colleges and universities, and per capita costs in city schools. Reports on state school systems, city school systems, and higher education are issued biennially, and reports are issued quad- rennially or less frequently on: (1) public high schools, (2) pri- vate elementary and secondary schools, (3) private commercial schools, (4) libraries, (5) subject enrolments in high schools, (6) education of exceptional children, and (7) Negro education. From time to time special statistical studies are also made. The Bienntal Survey of Education, issued by the Office in alternate { 114] years since 1918, is the only source of general nationwide school statistics. It includes an educational summary and statements of trends. The reports based on statistics supplied by the state depart- ments of education are complete, but those based on statistics collected by the Office direct from city school systems, schools, and institutions contain data from only 93 to 96 percent of the systems and institutions. Some statistics of private schools and in- stitutions are available only as estimates. Administration of federal grants-in-aid—The Office admin- isters grants-in-aid to education in the states, territories, and out- lying possessions. These grants include the appropriations for the land-grant colleges and for federal cooperation in vocational edu- cation and vocational rehabilitation of the physically disabled. For the year 1938-39 the total of these appropriations was $26,562,068. Service to other federal agencies—The Office renders direct services to other government agencies in relation to educational activities, among which in recent years have been: (1) Library of Congress, cataloguing all educational publications and as- signing classification numbers; (2) Government Printing Office, preparing the printed list of educational publications of the Gov- ernment Printing Office; (3) Public Works Administration, mak- ing studies of school building needs, making recommendations relative to construction of school buildings, and advising on ap- plications for allotments for rural school buildings; (4) Work Projects Administration, reviewing and making recommenda- tions on applications for educational projects submitted for grants; (5) Federal Communications Commission, assisting in the or- ganization of the Federal Radio Education Committee, of which the Commissioner of Education is chairman; (6) Federal Bureau of Investigation of the Department of Justice, assisting in or- ganizing and conducting training of groups of men selected from state and local police departments; and (7) Navy Department, cooperating in setting up an in-service training program for the Department’s civilian employees. Lost Library activities—Through its recently established Library Service Division, the Office has undertaken to make studies and reports on public, school, and college libraries; to foster coopera- tion among libraries and between public libraries and schools; to further library participation in the adult education movement; and to carry on a number of other library activities, including the promotion of library development generally. A program of tfe- search has been begun to obtain exact data on the cost of ad- ministering public library service and to study practices of public libraries and progress in the extension of library service. Both school libraries and public libraries come within the scope of the advisory service which the Office renders. Not the least of the services of the Office is that provided by the reference and inter-library loan services of the library. The collection of approximately 230,000 volumes on education is one of the most extensive on this subject in the world. During the fiscal year 1938 a total of 15,266 readers used the library. The library, in cooperation with specialists in the various fields of edu- cation, prepares bibliographical materials for a series of Good References on a large number of educational subjects. Miscellaneous activities —Through certain other regular activi- ties the Office provides educational service to the public. Staff mem- bers officially participate in educational meetings—more than one hundred during the fiscal year 1938—and many serve on policy forming committees outside the Office. Members of the staff pre- pare articles in addition to those written for its own journal— about thirty in 1938—which are published in educational journals. Through correspondence and visits in the field, advisory service is rendered to schools and school systems. The Office is called upon by colleges and universities for assistance in evaluating credentials presented by prospective foreign students desiring to enter educational institutions in the United States. Every year the Office brings many educational leaders together in conferences. Among the conferences held during the fiscal year 1938 were those on (1) educational problems of residential schools for handicapped children; (2) organization for clinical {116} adjustment of behavior problems of school children; (3) prob- lems of elementary education; and (4) school building problems. Regional conferences ate frequently held by the Vocational Edu- cation and the Vocational Rehabilitation Divisions of the Office. The Federal Radio Education Committee was established by the Federal Communications Commission to find ways of develop- ing cooperation between broadcasters and educators. Commercial broadcasting companies, through the National Association of Broadcasters, and several philanthropic foundations have con- tributed funds for its work. Two research programs financed from these sources and sponsored by the Committee have been under way for some time, one at Princeton University and one at Ohio State University. More recently another study has been inaugu- rated by the American Association for Adult Education. Prelimi- nary work has also been begun on a group of studies to be carried on in the Office of Education, and arrangements have been made to coordinate all the research work of the Committee. _ Members of the staff visit foreign countries to study their school systems, and representatives of the Office attend international con- ferences. Educational documents are regularly exchanged with other countries. The diplomatic offices both assist and request assistance from the Office. Publications —A large part of the influence of the Office is exerted through its publications, which include bulletins, pam- phlets, leaflets, circulars, and School Life. During the fiscal year 1938 a total of 83 publications were issued, 58 of them bulletins (usually 32 pages or more). Approximately 782,000 documents of the Office were distributed during the same year. School Life, official monthly (ten issues a year) journal of the Office of Education, makes available concise reports on current and original research conducted by the Office. It also publishes reports on conferences of national scope; presents news on out- standing federal, state, and local educational activities; announces availability of new government publications of interest in educa- tional fields; and presents other educational information. Paid and free subscriptions total about 13,000 and 2,000, respectively. ELT} PROJECTS FINANCED FROM EMERGENCY RELIEF FUNDS Since 1934 federal emergency relief funds have been allotted to the Office of Education to conduct certain educational investi- gations and to carry on several demonstration projects with the use of unemployed persons. Four studies have been made: (1) occupational problems of the deaf and hard of hearing; (2) organization of local school units in ten states; (3) research in universities, 40 studies; and (4) vocational education and guid- ance of Negroes. Two demonstrations, one on school-managed forums and the other on educational radio programs, are still being carried on. On July 1, 1939, the functions of two divisions of the National Emergency Council were added to the work of the Office. The relation of the Office to the Civilian Conservation Corps is described elsewhere. Forum project.—The Federal Forum Project has been in opera- tion since February 1936. Its purpose is to demonstrate practical ways of conducting forums on public affairs to increase political and economic understanding throughout the nation. A forum counselling service was begun in 1937 to make available to civic organizations and school districts the experience accumulated in the demonstrations. The heart of the program has been the management of demon- stration adult forums, operated under expert leadership for periods varying in length from five weeks to ten months, though they usually run from eighteen to twenty weeks. Some forum pro- grams have been citywide, others countywide, and a few have served entire states. Meetings are conducted as forums; with encouragement of participation on the part of the audience. They are supplemented by small neighborhood discussion groups, by cooperation with public libraries, and by radio broadcasts. The most frequently dis- cussed subjects are educational and economic questions. The project is administered by the Commissioner of Education and a professional staff. The Office of Education allocates funds to {118 } local communities, and acts as a promotional agency and clearing- house of information. Cooperative relationships are maintained with the American Association for Adult Education and _ the American Library Association in the publication and distribution of printed material. All activities of the project in the field are directly under the supervision of local agencies of public education. In most in- stances demonstrations are directed by superintendents of schools. In two cases state departments of public instruction, and in one instance a university extension division of the state university, have administered the local program. In every case the program has been supervised by the local superintendent of schools aided by a local citizens’ advisory committee. The selection of forum leaders, the employment of relief workers, the determination of discussion subjects, and decisions concerning the general program and policies are in the hands of the local authorities. As of February 28, 1939, approximately 250 certified relief workers and 15 forum leaders were employed in 34 local forum projects located in 25 states. Since February 1936 some 250 different persons have served as forum leaders in the employ of local superintendents of schools. Slightly more than $1,000,000 has been allotted to communities throughout the country in the conduct of these programs. During the period since February 1936, nine bulletins and numerous magazine articles have been prepared, based on the de- tailed reports of demonstration forum programs, state confer- ences, and personal field counseling by members of the project staff of the Office of Education. In 1939 the members of the project staff cooperated with state departments of education in 36 states in the planning and leading of state forum conferences to explore the resources, interests, and objectives involved in de- veloping adult civic education through forums. Radio project—rThe radio project was established in Decem- ber 1935. Its twofold objective is: (1) to provide employment for persons with radio and script-writing talent who are on re- lief, and (2) to discover ways in which radio can be used to pro- [119] mote education, both for organized instruction and for general enlightenment. The project uses radio facilities offered free to the Office of Education by commercial radio corporations for public service programs. The project is attempting to demonstrate that an educational agency can create and present radio programs of an informative and educational character which rival in quality the best com- mercial broadcasts. In promoting education by radio the project does two things: it engages in network or exchange broadcasting, and it gives aid and counsel to schools, colleges, and local radio stations. Series of half-hour programs are produced in cooperation with broadcasting networks and national organizations. During the cur- rent year (1938-39) three such series have been broadcast. “Wings for the Martins” is a program about modern thought and practice in education, particularly as reflected in family life. “Americans All—Immigrants All” dramatizes the contributions of many races and nationalities to the growth of the United States. “The World Is Yours” deals with the advances of science as evidenced in the research and exhibits of the Smithsonian In- stitution. The Educational Radio Script Exchange of the radio project, organized in 1936 to serve as a clearinghouse for radio scripts and production suggestions, offers scripts free of charge to high schools, college groups, workshops, and other local radio groups producing their own programs. The federal project has also de- veloped the use of supplementary visual aids designed to help listeners to understand the programs better, and it has distributed many copies of this material. The local development of radio has also been promoted by the allocation of emergency relief funds to school and college radio centers. The Office of Education has helped to establish a short-term radio workshop at New York University for educators interested in obtaining radio experience. The radio project is carried on under the Commissioner of Edu- cation, and is in immediate charge of a director. It includes a script division for writing programs, a production division (now {120} centered in New York City), an audience preparation division, and a business division. The National Broadcasting Company and the Columbia Broadcasting System and their affiliates cooperate with the Office of Education and contribute funds for the project. Funds have also been advanced by the Federal Radio Education Committee for the development of the Script Exchange, by the Rockefeller Foundation for scripts on local government, by the Smithsonian Institution for expenses incurred in preparing a series of scripts, by New York University for the radio workshop, and by the Com- mittee on Scientific Aids to Education for recordings. A number of private educational organizations, such as the Servicé Bureau for Intercultural Education and the National Congress of Parents and Teachers, have cooperated extensively in the production of certain series of programs. Something of the scope of the program is indicated by state- ments made in describing its nature and administration. The total number of employees on the project in April 1939 was 383, 16 of whom were supervisors. Of this number 103 worked in the field— in colleges and universities. For the fiscal year 1939 the federal government contributed $295,000. The combined “fan mail” on the three current series since July 1, 1938, is approximately 257,000 letters and postcards. United States Film Service-—The United States Film Service was established in 1938 as a division of the National Emergency Council, to effect net economies in government film work and to bring new standards of excellence to departmental films. The nucleus was the unit in the Farm Security Administration which had produced two films—‘The Plow that Broke the Plains” and “The River.” The Film Service has three principal functions. It acts as a production agency for government establishments which have funds available for producing motion pictures but do not have the equipment or personnel with which to produce them. It pro- vides consultation facilities for private business, trade associations, and commercial producers. The Film Service distributes govern- {121} ment films to theatrical agencies, schools, colleges, adult educa- tion groups, and other organized groups. To facilitate distribu- tion, particularly among schools and educational groups, it has compiled and maintains the Directory of United States Govern- ment Films which lists film producing and distributing agencies in the government, and all federal government films, about 400 of which are available for general distribution. The directory lists also all government agencies having film strips and lantern slides for distribution. As an additional service to schools, the Film Serv- ice has prepared special study guides on “The Plow that Broke the Plains” and “The River”; published the United States Govern- ment Film Chart, listing federal motion pictures, for use in visual education; and has prepared bibliographies, lectures, and other materials on motion pictures. Radio Division of the National Emergency Council—The Ra- dio Division of the National Emergency Council was established in 1938. It acted as a liaison between broadcasting companies and federal agencies and officials and provided advisory service to all federal agencies. The Radio Division has presented weekly broad- casts entitled “United States Government Reports,” the purpose of which was the dissemination of factual information concerning government operations. The broadcasts have all been on local stations, with few exceptions, in which cases state networks were used. | BIBLIOGRAPHICAL NOTE? Much of the information for this chapter was obtained from a report on the research activities of the Office of Education prepared by Bess Goodykoontz, Assistant Commissioner of Education for the Advisory Com- mittee on Education. Published sources used include a study by Judd (20), a monograph by Smith (65), a bulletin of the Office of Education (45), and two annual reports of the Secretary of the Interior (43) and (44). Memoranda from the Office of Education on the forum project and the radio project and a number of mimeographed news releases supplied information on those two activities. The statements on the United States 1 The numbers in parentheses refer to the numbers of titles in the Bibliography. {122} Film Service and the Radio Division of the National Emergency Council are based on the hearings on the appropriation for work relief and relief for the fiscal year 1940(35). Miss Goodykoontz read a draft of the chapter from which the final copy was prepared. {123} VIII. SPECIAL CONFERENCES AND COMMITTEES Mc: OF THE federal activities in education are carried on by regular agencies of the federal government, but occa- sionally special committees and conferences, continuing for a limited time only, are created to consider educational and related problems. During the past 25 years at least four such conferences have been held and three special committees have been appointed. WHITE HOUSE CONFERENCES ON CHILDREN The White House Conferences, held at intervals of about ten years to consider problems related to children and their welfare, appear to have become an established tradition. There have been four of them, including the most recent one, which has had only its first session. First conference—On Christmas day, 1908, President Theo- dore Roosevelt invited some two hundred child welfare workers in various parts of the United States to attend a conference in Washington on dependent children, which was held in January 1909. The conference, officially known as the Conference on Care of Dependent Children, was addressed by the President. It re- sulted in fifteen definite recommendations, one of which was that a federal children’s bureau should be created “to investigate and report upon all matters pertaining to the welfare of children.” Second conference.-—Soon after the United States entered the World War the Chief of the Children’s Bureau initiated a series of activities aimed at focusing attention on the needs of children during the war period, and the second year of United States par- ticipation in the war was designated as Children’s Year. President Wilson made an allotment of $150,000 from his war emergency fund for the Children’s Year activities, in the hope that the work [124] would result in “certain irreducible minimum standards for the health, education, and work of the American child.” As the concluding activity of Children’s Year, the second White House Conference, known as the Conference on Child Welfare Standards, was organized by the Children’s Bureau. The organiz- ing committee included the Chief of the Children’s Bureau, the Surgeon General of the United States Public Health Service, and the Commissioner of Education. The conference of two hundred delegates convened in Washington May 5-8, 1919. Especially in- vited guests from five allied nations attended and reported on experience in their countries. President Wilson was unable per- sonally to participate because he was engaged in the Paris Peace Conference. The conference was divided into five sections: (1) economic and social basis for child welfare standards, (2) child labor, (3) health of children and mothers, (4) children in need of special care, and (5) standardization of child welfare laws. The meeting in Washington was followed by eight regional conferences with large attendance. Tentative child welfare stan- dards were agreed upon at the close of the Washington conference and later revised in the light of the discussions in the regional con- ferences and suggestions received from other sources. Third conference.-—The call for the third of these conferences, known as the White House Conference on Child Health and Pro- tection, was sent out by President Hoover in 1929. A group of twenty-seven men and women, with Ray Lyman Wilbur, Secre- tary of the Interior, as chairman, and James J. Davis, Secretary of Labor, as vice-chairman, served as a committee to plan a com- prehensive survey of the progress and future needs of the health and well-being of children. The conference was financed by a grant of $700,000 from the American Relief Administration. Before it was held, sixteen months were devoted to preparatory study and research on the part of 1,200 experts organized in nearly 150 different committees and divided into four sections: (1) medical service, (2) public health service and administration, (3) education and training, and (4) the handicapped. {125 } The conference assembled in Washington November 19-22, 1930, with an attendance of 3,000. It was addressed by President Hoover, and it heard preliminary reports from the various com- mittees. At the closing session nineteen points embodying the main recommendations of the committee were presented and adopted as the Childen’s Charter, which expressed the aims toward which the conference hoped to lead public thought and action for the children of the country. The publications included a volume of preliminary commit- tee reports, a volume of addresses and abstracts of committee re- ports, three series of leaflets, and a series of thirty-seven reports of committees, many of which were comprehensive and detailed. Fourth conference-—On February 17, 1939, the Secretary of Labor, by direction of President Roosevelt, invited some seventy persons to serve on a committee to plan and conduct a conference on Children in a Democracy. The President, in authorizing the invitations, stated that he was calling the conference because of his conviction “that a society founded upon democratic principles finds both its aim and its security in the happiness and well-being of its people, and especially its children, and in recognition of the primary claim of children for those essentials of life upon which their growth and development depend.” The Secretary of Labor is the chairman and the Chief of the Children’s Bureau is the execu- tive secretary of the conference. For use of the conference the Gen- eral Education Board has made a grant of $47,000 to the American Council on Education, which acts as a disbursing agent in the expenditure of this sum. The total membership of the confer- ence numbers 585 men and women representing major aspects of child life, civic groups, some twenty professions. Some are state representatives appointed by the governors. The first session, with an attendance of about 500 members was held at the White House on April 26. It heard an address by the President, which was broadcast. Four section meetings were held on: (1) objectives of a democratic society in relation to children, (2) economic foundations of family life and child wel- fare, (3) the development of children and youth in presentday {126} American life, and (4) the child and community services for health, education, and social protection. The final session of the conference is to be held early in 1940, at which time there is to be presented to it “a single coordinated report on children in a democracy” prepared by the committee on report after consultation with individuals and groups within the conference membership. COMMISSION ON NATIONAL AID TO VOCATIONAL EDUCATION After efforts had been made by a number of groups for seven years to obtain federal aid for vocational education below college grade, Congress in January 1914 authorized the President to appoint a commission of nine members to consider the sub- ject of national aid for vocational education and report their find- ings and recommendations to Congress not later than June of the same year.’ An appropriation of $15,000 was provided to meet the expenses of the commission. The members appointed consisted of two senators, two congressmen, and five other persons who were particularly interested in vocational education. The report, in two volumes, was a statement of the case for federal aid for vocational education and the issues involved in such provision. It was a comprehensive summary of the favorable thought on the question. The commission prepared a proposed bill, which, with some amendments, was passed by Congress in 1917 and became the Smith-Hughes Act. NATIONAL ADVISORY COMMITTEE ON EDUCATION At various times during the discussions of federal policy re- garding agricultural extension work and vocational education after 1914, suggestions were made that a commission should be ap- pointed to study in a broad way the relationship of the federal 138 Stat. L. 767. { 127] government to education. The National Advisory Committee on Education was the first committee appointed to deal with this subject. In the spring of 1929 President Hoover, moved by “the con- siderable difference of opinion as to policies which should be pursued by the Federal Government with respect to education,” appointed a committee of fifty-two citizens engaged or interested in education to investigate and present recommendations on this question. The Secretary of the Interior, Ray Lyman Wilbur, who organized the committee, charged it to give the American people “the proper chart” with which to steer their course so far as the federal government was concerned with it. To finance the study the Julius Rosenwald Fund provided a grant of $100,000, and in November 1929 a staff was organized under a director to com- pile the information needed. The committee made its final report in October 1931. The report, entitled Federal Relations to Education, is in two patts, the first stating the committee findings and recommendations, and the second containing basic facts bearing on the committee’s con- clusions. It deals in a comprehensive way with educational policy in the states, territories, and outlying possessions, particularly with reference to participation of the federal government in educa- tion. The Committee adopted eight controlling principles and poli- cies which related to: (1) federal responsibility, (2) manage- ment of education, (3) decentralization of control of the social purposes of education and the techniques of educational pro- cedure, (4) federal taxation to aid education in the states, (5) types of federal grants to aid education, (6) the matching of federal funds with state and local funds, (7) educational research by the federal government, and (8) transition to a new policy. Recommendations were made regarding: (1) federal relations to education in the states, (2) education in special federal areas, (3) education of Indians and other indigenous peoples, (4) edu- cation in the territories and outlying possessions, (5) the train- ing of government personnel, (6) research and information serv- {128} ice, (7) international intellectual relations, and (8) govern- mental organization with respect to education. ADVISORY COMMITTEE ON EDUCATION The most recently appointed group to study federal policy specifically with respect to education is the Advisory Committee on Education, which has now been in existence for considerably more than two years. Apparently its major work has been com- pleted, although some of its publications have not yet been issued. The Committee and its work—On June 8, 1936, President Franklin D. Roosevelt approved the George-Deen Act, which au- thorized increased federal appropriations for vocational education. On the same date he addressed identical letters to several senators and congressmen, indicating his thought that a study should be made of the vocational education program. In accordance with the intention expressed in this communication, the President, in Sep- tember 1939, invited eighteen individuals, of whom five were officials of the federal government, to “study the experience under the existing program of Federal aid for vocational education, the relation of such training to general education and to prevailing economic and social conditions, and the extent of the need for an expanded program.” The group, known as the President’s Com- mittee on Vocational Education, was to make studies of these questions and to develop recommendations that would be avail- able to the Congress and the Executive. At its first meeting, November 6 and 7, 1936, the Committee concluded that its work would require the making of an extensive investigation. It therefore authorized the appointment of a director of studies and the employment of a staff to assemble, analyze, and interpret available data bearing on the questions under con- sideration. In the course of studies catried on and reported to the Com- mittee it became increasingly evident that the problems of voca- tional education were entangled with the larger questions involved in federal aid to education in general. Moreover, a number of {129} bills authorizing a large expansion of federal aid to education were introduced in the Seventy-Fifth Congress (1937-39) during its first session. In view of these developments the President on April 24, 1937, enlarged the Committee by appointing four additional members and requested it to give more extended consideration to the whole subject of federal relationship to state and local con- duct of education and to report thereon. In accordance with this request the Committee enlarged its staff and proceeded to deal with the larger questions of federal policy in education. It prepared a comprehensive report, which was trans- mitted to Congress by the President on February 23, 1938, and was printed as a House Document.” An indexed edition, differing in pagination but not in text from the House Document, was printed by the Committee for public use. The Committee edition, entitled Report of the Committee, has been widely circulated. In response to demand for a summary of those parts of the report which relate particularly to the situation in the schools, in- equalities of education, the national interest in education, and the proposed federal grants for educational purposes, a thirty-one-page pamphlet, entitled The Federal Government and Education, was prepared by the secretary of the Committee, in order to present briefly the relevant parts of the Committee’s findings and pro- posals. After the report of the Committee was made, much of the in- formation collected by the staff was prepared for publication in a series of staff studies which deal with the status and problems of education in the United States and its outlying areas. Fourteen studies have been published, and five others are in press. Recommendations.—The Advisory Committee on Education found that, although schools in all areas need improvement, the outstanding fact is the great need for the improvement of public schools in a number of broad geographical regions and in the rural areas generally, and its proposed program was aimed pri- marily at improving educational opportunities in those areas. The Committee recommended the continuation of the existing 2No. 529, 75th Cong., 3d sess. { 130 } grants to the states for vocational education, vocational rehabili- tation of the physically disabled, and the land-grant colleges and their associated services. It also recommended that new federal grants to the states for certain types of educational services be instituted beginning July 1, 1939. The proposals for new grants were confined to the period up to July 1, 1945, in the belief that TABLE 11. AMOUNTS OF NEW FEDERAL GRANTS FOR EDUCATIONAL SERVICES PROPOSED BY THE ADVISORY COMMITTEE ON EDUCATION {In thousands of dollars} Fiscal year 1938-39 1939-40 1940-41 1941-42 1942-43 1943-44 1944-45 General aid to ele- mentary and sec- ondary education .......... 40,000 60,000 80,000 100,000 120,000 140,000 Improved prepara- tion of teachers and other edu- cational personnel .......... 2,000 4,000 6,000 6,000 6,000 6,000 Construction of school buildings to facilitate dis- trict reorganiza- TEST) | ee 20,000 30,000 30,000 30,000 30,000 30,000 Administration of state departments GE EAUCAMION | o.c... | cecdoseeee 1,000 ~=1,500 2,000 2,000 2,000 2,000 Educational _ serv- eee TOL ACUICS....° seecessee> 5,000 10,000 15,000 15,000 15,000 # 15,000 Library service Tipe Ula) LALCAS.2..1.,,..00003 2,000 4,000 6,000 6,000 6,000 6,000 Cooperative edu- cational research, demonstrations, and planning 1,250 2,000 3,000 3,000 3,000 3,000 3,000 ee SEARS. Soesee-3 «20s 1,250 72,000 112,500 142,000 162,000 182,000 202,000 federal relations to state and local conduct of education should again be reviewed under appropriate auspices before the grants were enlarged or placed upon a permanent basis. The new grants proposed are shown in Table 11. The Committee recommended that the basic research needed for educational planning should, to a large extent, be carried on by educational agencies—federal, state, local, and private. It also {131} indicated that long-range planning for education, as distinguished from the research on which it should be based, should be regarded as an appropriate and major responsibility of all general planning agencies, although those concerned primarily with education should also give greatly increased attention to such planning. It was recommended that responsibility for leadership in bringing about this development should be assumed by the National Re- sources Committee, or by a permanent national planning board, if one is established. In the opinion of the Committee, the U. S. Office of Educa- tion should remain predominantly an agency for research and leadership, and its administrative duties should be confined pri- marily to the administration of grants. It should continue, how- ever, to administer a national program of education by radio to the extent to which such a program proves to be desirable. The establishment of an interdepartmental committee for the coordi- nation of the educational activities of the various agencies of the federal government was recommended. The Committee recommended also that, beginning July 1, 1938, a special federal fund should be established for cooperative — educational research, demonstrations, and planning, to be admin- istered by the U. S. Office of Education. The amounts recom- mended are shown in Table 11. The fund was to be available for expenditure under the direction of public and private nonprofit institutions or agencies approved by the Office of Education, on the basis of cooperative projects jointly agreed upon, and the Office of Education was to be given authority to expend directly up to 40 percent of the fund in carrying on its share of the re- search and planning. Other recommendations of the Committee dealt with: (1) the education and adjustment of youth, including vocational training, guidance and placement, occupational outlook service, student aid, and work camps and work projects; (2) vocational rehabili- tation of the physically disabled; and (3) education in special federal jurisdictions. Legislation —Before the Advisory Committee on Education eS Ze made its report, Senator Pat Harrison of Mississippi and Senator Hugo L. Black of Alabama had introduced in the Senate in 1937 a bill to authorize extensive grants in aid to education. The Com- mittee on Education and Labor had held extensive hearings and had made a favorable report on the measure, and the bill had been placed on the Senate Calendar. A similar bill had been in- troduced in the House of Representatives by Congressman Brooks Fletcher of Ohio, and the House Committee on Education had held extensive hearings but had made no report on it. This measure was vigorously promoted by the Legislative Commission of the National Education Association. Within a month after the report of the Advisory Committee on Education was transmitted to Congress by the President in 1938, the Legislative Commission of the National Education Asso- ciation held a conference with representatives of national organi- zations interested in federal aid for education, which was attended by representatives of the Advisory Committee on Education, to consider the provisions that should be contained in a federal aid bill in view of the report of the Advisory Committee. Substan- tial agreement was reached, and a draft was completed which was introduced in the Senate by Senator Pat Harrison and Senator Elbert D. Thomas of Utah as an amendment in the nature of a substitute to the Harrison-Black Bill, and in the House by Con- gressman Fletcher as an original bill. The Seventy-Fifth Con- gress (1937-39) adjourned without taking further action on the measure. Soon after the Seventy-Sixth Congress convened for its first session, in 1939, the draft of a revised bill was completed. It was introduced in the House by Congressman William H. Larrabee of Indiana, chairman of the Committee on Education, and, after further revision, in the Senate by Senator Elbert D. Thomas, chairman of the Committee on Education and Labor, for himself and Senator Pat Harrison, chairman of the Finance Committee.’ This bill follows the principal but not all the recommendations of the Advisory Committee on Education, whose chairman, upon 38H. R. 3517 and S. 1305, 76th Cong. { 133 } request of the education committee in each branch of Congress, advised the persons interested in drafting it. The Senate Committee on Education and Labor, in March 1939, devoted three days to hearings on the bill, at which the chairman and other members of the Advisory Committee and members of the Committee’s staff presented the factual evidence for federal aid to education and explained the provisions of the proposal. Representatives of the National Education Association and other educational organizations also appeared in behalf of the bill. Only three persons appeared in unqualified opposition. On April 3, 1939, the Committee on Education and Labor made a favorable report on the measure, and it is now on the Senate Calendar. To date the House Committee on Education has held no hear- ings and made no report on the proposed legislation. BIBLIOGRAPHICAL NOTE 4 The published sources used in preparing the section on the White House Conferences include several publications on the White House Conference on Child Health and Protection (67), (68), and (69), a pamphlet on the Children’s Bureau (41), and a number of mimeo- graphed press releases on the White House Conference on Children in a Democracy issued by the Children’s Bureau. Some of the information was supplied by Edith Rockwood, Specialist in Child Welfare, Children’s Bureau, who read the draft from which the final copy was prepared. The section on the Commission on National Aid to Vocational Educa- tion is based on the report of the Commission (12), the one on the National Advisory Committee on Education is based on the report of the Committee (64), and that on the Advisory Committee on Education is based on the report of that Committee (1) and the pamphlet sum- marizing the report (2). A draft of the chapter, from which the final copy was prepared, was read by Paul T. David, Secretary and Assistant Director of Studies, Advisory Committee on Education, who suggested a number of corrections and some reorganization of the material. 4The numbers in parentheses refer to the numbers of titles in the Bibliography. {134} IX. MISCELLANEOUS EDUCATIONAL ACTIVITIES | ADDITION to the educational activities described in the pre- ceding chapters, the federal government engages in many others, some of which are extensive and touch the life of many people. The most important of these will be described briefly. CURRICULUM MATERIALS Many government bureaus and offices publish materials which teachers find helpful as sources for teaching content. Materials are available in practically every field of current interest. Among the subjects dealt with are agriculture, industry, health, business, labor, immigration, education, conservation, travel, the home, de- scription of government and government activities, and national parks. The materials are issued in the form of bulletins and books, periodicals, maps, pictures, and sound and silent motion picture films. Traveling exhibits, available to schools, colleges, and uni- versities, have been prepared by some government agencies. Some of these materials have been prepared for teaching purposes, but the greater part of them have been prepared primarily for other uses. Much of this material is available free and can be had by writing to the various bureaus and offices. Some of it can be borrowed from the bureaus and offices by paying transportation costs. A considerable amount can be purchased from the Super- intendent of Documents, who issues lists of materials he has for sale. No complete inventory of the available materials is published, but a publication of the Brookings Institution * serves as a guide to the utilization of government publications, and the United States 1 Laurence F. Schmeckebier, Government Publications and Their Use. Brookings Institution, Institute for Government Research, Studies in Administration No. 33. Washington, D. C.: Brookings Institution, 1936. 446 p. { 135] Film Service of the Office of Education (q. v.) provides assistance in locating government motion picture films, film strips, and lan- tern slides, and materials relating to their use. Each issue of School Life, published by the Office of Education, contains a section of new government aids for teachers. An example of a more extensive curriculum service to schools is found in the Soil Conservation Service of the Department of Agriculture. This agency definitely provides for educational re- lations through its section on information. It issues materials on soil conservation for schools, colleges, and universities; gives information to organizations; and provides information to authors and publishers requesting it. A number of outlines suggesting curriculum materials on soil conservation have been prepared at the request of state and city departments of education. SPECIAL AID TO EDUCATIONAL INSTITUTIONS The federal government makes annual appropriations to three educational institutions which are privately controlled: (1) the American Printing House for the Blind, (2) Columbia Institu- tion for the Deaf, and (3) Howard University. American Printing House for the Blind—The American Printing House for the Blind was incorporated by the Legislature of Kentucky in 1858. This institution, which is located in Louis- ville, Kentucky, prints books and makes apparatus for the in- struction of the blind of the United States. Two appropriations are made annually by Congress for this institution.2 One amounts to $10,000 and is equivalent to 4 percent of a trust fund of $250,000. An additional annual appro- priation of $115,000 was authorized in 1937, and this amount has been included annually among the miscellaneous items ap- propriated to the Treasury Department. Under the reorganization of government bureaus and offices on July 1, 1939, the functions of the Secretary of the Treasury with respect to the administration of the appropriation for the 220 US.C., 101; 20 U.S.C., Supplement IV., 101. {136} American Printing House for the Blind (except the function re- lating to the perpetual trust fund) were transferred to the Federal Security Agency, and the annual report and vouchers required from the American Printing House for the Blind are now sent by the trustees to the Federal Security Administrator. Columbia Institution for the Deaf—The Columbia Institu- tion for the Deaf, located in the District of Columbia, was in- corporated by an Act of Congress in 1857. The next year Congress began to make appropriations to the school. The appropriations are for the support of the institution, including salaries and incidental expenses, books and illustrative apparatus, and general repairs and improvements, and for the fiscal year 1938 the amount was $145,000. The Institution is controlled by a board of ten directors, two of whom are Congressmen. The Secretary of the Interior is charged with the supervision of the Institution.® The Columbia Institution for the Deaf consists of: (1) Gal- laudet College and (2) Kendall School, a primary and gram- mar department. During the fiscal year 1938 the college enrolled 82 men and 52 women, and the primary and grammar depart- ment 32 boys and 41 girls. Of the pupils in the primary and grammar department, 70 were admitted as beneficiaries of the District of Columbia. During the fiscal year 1938 the Institution had an income of $47,289.71 in addition to the appropriation received from the federal government. Howard University—Howard University, located in the Dis- trict of Columbia, was incorporated by an Act of Congress in 1867. Originally planned for the education of colored youth for the ministry, it was afterward expanded to include nearly all branches of higher education. The University is controlled by a self-perpetuating board of 28 trustees. The president and board of directors are required to report annually to the Federal Security Administrator, and the Office of Education is required to inspect the University at least once each year and present a report to Congress on it. 35 U.S.C, 485. (eta Annual federal appropriations are authorized for the Univer- sity, but no part of these funds may be used for religious instruc- tion. The federal appropriation for the fiscal year 1938 for cur- rent expenses was $700,000. During the same year the income from other sources was approximately $424,000. The total enrolment during 1937-38, excluding duplicates, was 2,240. Of this number 328 were in the professional schools, and 326 were in the graduate school. EDUCATION IN SPECIAL FEDERAL JURISDICTIONS Within the United States, or belonging to it, there are a num- ber of areas over which the federal government has special juris- diction. These include the District of Columbia, Indian reserva- tions, the territories and outlying possessions, and special reser- vations of various types established for conducting the affairs of government. In these areas public education is provided only through instrumentalities established or authorized by the federal government. In the District of Columbia the school system was established under legislation enacted by Congress. It is operated by a board of education whose members are appointed by the Justices of the District Court of the United States for the District of Columbia. The schools are supported by appropriations made by Congress from a special fund in the United States Treasury, which is com- posed of local revenues collected in the District of Columbia and a contribution made by Congress. Schools for Indians and natives of Alaska are provided by the Office of Indian Affairs, Depart- ment of the Interior, and are supported by appropriations made by Congress. In the territories and outlying possessions, schools are maintained by the governments established in those areas, and are supported by the residents, usually with some aid from the federal government. With a few exceptions, schools have not been established on special federal reservations. Some children residing in these areas attend local public schools maintained by school districts nearby, { 138 ] some of which admit these children free, while others charge tuition. In a few instances where schools have been established on reservations, the federal government makes small appropria- tions for their support. Schools on reservations are not generally free. In the Canal Zone the federal government provides a system of free elementary and secondary schools. During the fiscal year 1938 these schools enrolled the following numbers of pupils: (a) District of Columbia, 101,777; (b) In- dians and natives of Alaska, 69,583; (c) territories and outlying possessions, 377,490; (d) Canal Zone, 6,155. It is estimated that about 30,000 children of school age resided on special federal reservations and foreign stations. Most of them attended school. NATIONAL RESOURCES PLANNING BOARD The National Resources Committee, whose functions were transferred to the Executive Office of the President on July 1, 1939, and have since then been administered by the newly created National Resources Planning Board, had some relations to educa- tion. It gave assistance to several state planning boards which made studies that included education as a function of state gov- ernment, and also assisted the federal Advisory Committee on Education in connection with studies of interest to both commit- tees. The National Resources Committee had a standing Science Committee composed of members designated by the American Council on Education, the National Academy of Sciences, and the Social Science Research Council. In 1938 the Science Committee made a report on research, which included a study of research in American universities and colleges. COLLECTION OF EDUCATIONAL DATA BY THE BUREAU OF THE CENSUS For a number of years the Bureau of the Census has included in the data collected in the decennial census information on school { 139 } attendance, illiteracy, and inability to speak English. The data have been published in the regular census reports, and they con- stitute an important source of information on the progress of education in the nation. IN-SERVICE TRAINING OF GOVERNMENT PERSONNEL For many years the federal government has made provision for training some of its employees. As early as 1802 the United States Military Academy was established at West Point to train officers for the Army, and eleven years later, with a similar pur- pose, the Navy began schooling midshipmen on shipboard. Ap- parently the first definitely organized training program in the civil service was put in operation in 1879 by the Bureau of Engraving and Printing, which established an apprentice school to train engravers. Two other early developments were the program of technical training instituted by the National Bureau of Standards in 1909 for its staff, and the Graduate School of the Department of Agriculture established in 1920. In recent years many other government establishments have instituted training activities, and since 1933 they have been greatly expanded. One of the largest of the newer training programs is that conducted by the Tennessee Valley Authority for its employees and their children. These educational activities of the federal government have not been coordinated. In general the training has been set up primarily for service to the several government agencies, rather than with the thought of making a contribution to education. BIBLIOGRAPHICAL NOTE 4 The information on curriculum materials was obtained principally from articles on new government aids for teachers published in recent issues of School Life and from a memorandum submitted by Helen M. Strong, in charge of Educational Relations, Section of Information, 4The numbers in parentheses refer to the numbers of titles in the Bibliography. { 140 } Soil Conservation Service, Department of Agriculture. The materials on special aid to educational institutions are from hearings on the Interior Department appropriation bills (30) and (33), the annual report of the Secretary of the Interior for the fiscal year 1938 (44), and a catalog of Gallaudet College (59). The section on education in special federal jurisdictions is based on four staff studies issued by the Advisory Com- mittee on Education (3), (6), (7), and (8). A recent study of reseatch (22) and a brief memorandum submitted by the Na- tional Resources Committee furnished the information for the statement on that agency. The information on educational data collected by the Bureau of the Census is from the Fifteenth Census reports on population (39). The facts regarding the training of government personnel were located in the report of the National Advisory Committee on Education (64) and a study by Brooks (57). { 141] ee ee ihe APPENDIX REORGANIZATION OF GOVERNMENT AGENCIES T HE Reorganization Act of 1939,’ approved April 3, 1939, authorizes the President of the United States, within certain prescribed limits, to submit to Congress plans for the grouping, consolidation, and reorganization of federal government agen- cies. A plan submitted to Congress becomes operative at the end of sixty days unless both houses by majority vote reject the plan. Congressional action is on the plan in its entirety. Pursuant to this Act, the President, on April 25, transmitted Reorganization Plan Number 1 to the Congress,’ and on May 9, 1939, Reorganization Plan Number 2.° Reorganization Plan Num- ber 1 had to do with over-all management, while Plan Number 2 was designed to improve the administrative management of the executive branch by a more logical grouping of existing units and functions and a further reduction in the number of indepen- dent agencies. By a resolution approved June 7, 1937,* Congress provided that the two plans should take effect on July 1, 1939. Under Plan Number 1 a number of functions were trans- ferred to the executive office of the President, including those of the National Resources Committee, which was abolished. The functions of the Committee were to be administered under the direction and supervision of the President by the National Re- sources Planning Board, composed of five members (later re- duced to three) appointed by the President. The plan created three new agencies—the Federal Security Agency, the Federal Works Agency, and the Federal Loan Agency. Each of these three agen- cies has as its chief official an administrator, appointed by the President with the advice and consent of the Senate, and he re- 1 Public No. 19, 76th Cong. 2 First Plan on Government Reorganization, 76th Cong., House Doc. No. 262. 3 Cong. Rec., Vol. 84, p. 7423 (daily edition). 4Pub. Res. No. 20, 76th Cong. { 143 } ceives an annual salary of $12,000. Each has also an assistant administrator, with an annual salary of $9,000, who is appointed by the administrator. The new Federal Security Agency includes: (1) the Social Se- curity Board, formerly an independent establishment; (2) the Office of Education, formerly in the Department of the Interior; (3) the Public Health Service, formerly in the Treasury Depart- ment; (4) the National Youth Administration, formerly in the Works Progress Administration; and (5) the Civilian Conserva- tion Corps, formerly an independent agency. The United States Employment Service, formerly in the Department of Labor, was transferred to the Federal Security Agency, and its functions were consolidated with the unemployment compensation func- tions of the Social Security Board. In submitting his Reorganization Plan to Congress, President Roosevelt made the following statement regarding the Office of Education: Because of the relationship of the educational opportunities of the country to the security of its individual citizens, the Office of Education — with all of its functions, including, of course, its administration of Federal-State programs of vocational education, is transferred from the Department of the Interior to the Federal Security Agency. This transfer does not increase or extend the activities of the Federal Government in respect to education, but does move the existing activities into a group- ing where the work may be carried on more efficiently and expeditiously, and where coordination and the elimination of overlapping may be better accomplished. The Office of Education has no relationship to the other functions of the Department of the Interior. Regarding the National Youth Administration and the Civilian Conservation Corps, the President said: The National Youth Administration is transferred from the Works Progress Administration to the Federal Security Agency since its major purpose is to extend the educational opportunities of the youth of the country and to bring them through the processes of training into the possession of skills which enable them to find employment. Other di- visions of the Federal Security Agency will have the task of finding jobs, providing for unemployment compensation, and other phases of 5 76th Cong., House Doc. No. 262, p. 6. { 144 } social security, while still other units of the new agency will be con- cerned with the problem of primary and secondary education, as well as vocational education and job training and retraining for employment. While much of the work of the National Youth Administration has been carried on through work projects, these have been merely the proc- ess through which its major purpose was accomplished, and, therefore, this agency under the terms of the act should be grouped with the other security agencies rather than with the work agencies. For similiar reasons the Civilian Conservation Corps, now an inde- pendent establishment, is placed under the Federal Security Agency be- cause of the fact that its major purpose is to promote the welfare and further the training of the individuals who make up the corps, important as may be the construction work which they have carried on so success- fully. The Civilian Conservation Corps is a small coordinating agency which supervises work carried on with the cooperation of several regu- lar departments and independent units of the Government. This trans- fer would not interfere with the plan of work heretofore carried on but it would enable the Civilian Conservation Corps to coordinate its policies, as well as its operations, with those other agencies of the Government concerned with the educational and health activities and with human security.® The Public Works Agency includes a number of bureaus and divisions, among which are two that have relationships to edu- cation: the Public Works Administration and the Work Proj- ects Administration. The Work Projects Administration consists of the former Works Progress Administration, except the Na- tional Youth Administration. Apparently the only one of the divisions of the new Federal Loan Agency which has a direct relation to education is the Reconstruction Finance Corporation. Three changes effected by Reorganization Plan Number 2 have some relation to education. First, the National Emergency Coun- cil was abolished, and some of its functions were transferred to the executive office of the President. The functions of the Radio Division and the United States Film Service were transferred to the Federal Security Agency to be administered in the Office of Education under the direction and supervision of the Federal Security Administrator. Second, the functions of the Secretary of the Treasury with 6 Ibid, { 145 } respect to the administration of the appropriations for the Ameri- can Printing House for the Blind, except the function relating to the perpetual trust fund, were transferred to the Federal Se- curity Agency to be administered under the direction and super- vision of the Federal Security Administrator. The annual report and vouchers formerly required to be furnished to the Secretary of the Treasury by the trustees of the American Printing House for the Blind are now furnished to the Federal Security Admin- istrator. Third, the board of trustees of the National Training School for Boys, including the consulting trustees, was abolished, and the institution and its functions, including the functions of its board of trustees, were transferred to the Department of Justice to be administered by the Director of the Bureau of Prisons, under the direction and supervision of the Attorney General. This school, a penal and correctional institution, has not been mentioned elsewhere in this report. In explaining Plan Number 2 the President said: I propose to transfer to the Federal Security Agency, for administra- tion in the Office of Education, the film and radio functions of the Na- tional Emergency Council. These are clearly a part of the educational activities of the Government and should be consolidated with similar activities already carried on in the Office of Education. Similarly, Gov- ernment participation in the work of the American Printing House for the Blind, except fiscal functions relating to trust funds, is transferred from the Secretary of the Treasury to the Federal Security Agency, in order that this work may be coordinated with the other work for the blind now being carried on in the Social Security Board." 7Cong. Rec., 84: 7424 (May 9, 1939). Daily edition. [ 146 } 10. a 12. BIBLIOGRAPHY GOVERNMENT PUBLICATIONS! . Advisory Committee on Education. Report of the Committee. Feb- ruary 1938. 243 p. . Advisory Committee on Education. The Federal Government and Education, 1938, 31 p. . Blauch, Lloyd E. Educational Service for Indians. The Advisory Com- mittee on Education, Staff Study No. 18. 1939. 136 p. . Blauch, Lloyd E. Federal Cooperation in Agricultural Extension Work, Vocational Education, and Vocational Rehabilitation. U. S. Depart- ment of the Interior, Office of Education, Bulletin, 1933, No. 15. 8 29] 2p: . Blauch, Lloyd E. Vocational Rehabilitation of the Physically Disabled. The Advisory Committee on Education, Staff Study No. 9. 1939. 101 p. . Blauch, Lloyd E., and Iversen, William L. Education of Children on Federal Reservations. The Advisory Committee on Education, Staff Study No. 17. 1939. 145 p. . Blauch, Lloyd E., and Powers, J. Orin. Public Education in the Dis- trict of Columbia. The Advisory Committee on Education, Staff Study No. 15. 1938. 99 p. . Blauch, Lloyd E., assisted by Reid, Charles F. Public Education in the Territories and Outlying Possessions. The Advisory Committee on Education, Staff Study No. 16. 1939. 243 p. . Campbell, Doak S.; Bair, Frederick H.; and Harvey, Oswald. Edz- cational Activities of the Works Progress Administration. The Ad- visory Committee on Education, Staff Study No. 14. 1939. 185 p. Carothers, Doris. Chronology of the Federal Emergency Relief Ad- ministration, May 12, 1933, to December 31, 1935. Works Progress Administration, Division of Social Research, Research Monograph tet 5 7.103) p: Civilian Conservation Corps. Annual Report of the Director of the Civilian Conservation Corps, Fiscal Year Ended June 30, 1938. 1938. 96 p. Commission on National Aid to Vocational Education. Report of the Commission on National Aid to Vocational Education, Together with Hearings Held on the Subject, Made Pursuant to the Provisions of Public Resolution No. 16, Sixty-third Congress (S.J. Res. 5). 63d Cong., House Doc. No. 1004. 2 vol. June 1, 1914. 1The printed publications were published by the United States Government Printing Office, Washington, D. C. The mimeographed publications were issued by the respective government agencies. { 147} 19; 14. Sy 16. de 18. 19, 20. 21% 22 22, 24. LO: 26. 24 “Education in the CCC Camps.” School Life 24: 103-109; January 1D. Emergency Conservation Work. Summary Report of the Director of Emergency Conservation Work, Embracing Activities from April 5, 1933, through June 30, 1935. 1936. 52 p. Farr, Maude. Land-Grant Colleges and Universities, Preliminary Re- port, Year Ended June 30, 1938. U. S. Department of the Interior, Office of Education, Circular 176. (Multilith.) 25 p. Federal Emergency Administration of Public Works. Terms and Conditions. September 15, 1939. 18 p. Federal Emergency Administration of Public Works. The Story of PWA: Building for Recovery. 1939. 16 p. Joeckel, Carleton B. Library Service. The Advisory Committee on Education, Staff Study No. 11. 1938. 107 p. Johnson, Palmer O., and Harvey, Oswald L. The National Youth Administration. The Advisory Committee on Education, Staff Study Now13) 1955512 1ep: Judd, Charles H. Research in the United States Office of Education. The Advisory Committee on Education, Staff Study No. 19. 1939. 13 /ep: National Emergency Council. United States Government Manual. Revised currently, revision as of April 12, 1939. 471 p. National Resources Committee. Research—A National Resource, I—Relation of the Federal Government to Research. Report of the Science Committee to the National Resources Committee. Novem- bers! 958232 )9_p: Palmer, Gladys L. “The History and Development of the United States Employment Service.” Social Security in America: The Factual Background of the Social Security Act as Summarized from Staff Re- ports to the Committee on Economic Security. 1937. p. 423-39. Reconstruction Finance Corporation. Information for Prospective Ap- plicants for Loans under the Provisions of Public, No. 325, Seventy- fourth Congress, Approved August 24, 1935, Relating to the Re- financing of Indebtedness Incurred in Connection with Public Schools. Circular No. 20. September 1935. 14 p. Reconstruction Finance Corporation. Information Regarding Loans to Public Agencies under Section 5d of the Reconstruction Finance Cor- poration Act, as Amended. Circular No. 22. April 1938. 3 p. Reconstruction Finance Corporation. Reconstruction Finance Corpor- ation: Its Powers and Functions. Circular No. 4 (revised). August 1938. 19 p. Reconstruction Finance Corporation. Report of the Third Quarter of 1938, and for the Period from February 2, 1932, to September 30, 1938, inclusive. December 22, 1938. 95 p. { 148 } 28. 29. 30. aL Be 33. 34. 5): 36. oes 38. abe e 40. 41. 42. Reconstruction Finance Corporation, Jesse Jones, chairman. Seven- year Report to the President and the Congress of the United States, February 2, 1932, to February 2, 1939. 28 p. Russell, John Dale, and associates. Vocational Education. The Ad- visory Committee on Education, Staff Study No. 8. 1938. 325 p. Seventy-fifth Congress, House of Representatives, Committee on Ap- propriations. Hearings before the Subcommittee ... on the Interior Department Appropriation Bill for 1939, Part I, Interior Department (Except the Bureau of Indian Affairs). 1938. 970 p. Seventy-sixth Congress, House of Representatives. Doc. No. 105. Na- tional Defense: Message from the President of the United States Transmitting a Message on National Defense. January 12, 1939. 4 p. Seventy-sixth Congress, House of Representatives, Committee on Ap- propriations. Hearings before the Subcommittee ... on the Inde- pendent Offices Appropriation Bill for 1940. 1939. 2077 p. Seventy-sixth Congress, House of Representatives, Committee on Appropriations. Hearings before the Subcommittee ... on the Interior Department Appropriation Bill for 1940, Part I, Interior Depart- ment (Except the Bureau of Indian Affairs), 1939. 1150 p. Seventy-sixth Congress, House of Representatives, Committee on Ap- propriations. Hearings before the Subcommittee ... Making Appro- priation for Work Relief and Relief, Fiscal Year 1940, 1939. 586 p. Seventy-sixth Congress, House of Representatives, Committee on Ap- propriations. Hearings before the Subcommittee ... on the Military Establishment Appropriation Bill for 1940. 1939. 727 p. Seventy-sixth Congress, House of Representatives, Committee on Ap- propriations. Hearings before the Subcommittee ...on the Navy De- partment Appropriation Bill for 1940. 1939. 928 p. Seventy-sixth Congress, House of Representatives, Committee on La- bor. To Make the Civilian Conservation Corps a Permanent Agency. Hearings before the Committee ...on H. R. 2990, February 9, 23, and 24, 1939, 1939. 114 p. Seventy-sixth Congress, Senate, Committee on Commerce. Training of Civil Aircraft Pilots. Hearing before a Subcommittee ... on S. 2119, April 20, 1939. 1939. 94 p. U. S. Department of Commerce, Bureau of the Census. Fifteenth Census of the United States: 1930. Population, Vol. Il. 1933. 1407 p. U. S. Department of Labor. Twenty-sixth Annual Report of the Sec- retary of Labor for the Fiscal Year Ended June 30, 1938. 1938. 163 p. U. S. Department of Labor, Children’s Bureau. The Children’s Bureau: Yesterday, Today, and Tomorrow. 1937. 57 p. U. S. Department of Labor, Children’s Bureau. The Children’s Bureau Today. 1939. 8 p. (Multilith.) {149 } 43 44. 45. 46. 47. 48. 49. 50. D1. 52. Die} 54. 55. 56. dle U. S. Department of the Interior. Annual Report of the Secretary of the Interior for the Fiscal Year Ending June 30, 1937. 1937. 410 p. U. S. Department of the Interior. Annual Report of the Secretary of the Interior for the Fiscal Year Ended June 30, 1938. 1938. 421 p. U. S. Department of the Interior, Office of Education. To Promote the Cause of Education. Bulletin, 1938, Misc. No. 2. 80 p. U. S. Department of the Interior, Office of Education, Vocational Division. Digest of Annual Reports of State Boards for Vocational Education to the Office of Education, Vocational Division, Fiscal Y ear Ended June 30, 1938. 1939. 111 p. (Mimeo.) U. S. Maritime Commission. Report to Congress on Training Mer- chant Marine Personnel. January 1, 1939. 123 p. U. S. Navy Department, Bureau of Navigation. Regulations for Ad- ministration and Training, Naval Reserve Officers’ Training Corps. 1935473": U. S. War Department. Annual Report of the Secretary of War to the President, 1938. 1938. 94 p. U. S. War Department. Army Regulations No. 145-10. Reserve Of- ficers’ Training Corps: Administration and Traiming. May 28, 1931. Al p. U. S. War Department. Army Regulations No. 145-10, Changes No. 2. Reserve Officers’ Training Corps: Administration and Training. Oc- tober 26, 1936. 6 p. Williams, Aubrey. Report of the National Youth Administration Submitted to the Subcommittee of the Committee on Appropria- tions, House of Representatives, Seventy-sixth Congress, May 16, 1939. 63 p. (Mimeo.) Works, George A., and Morgan, Barton. The Land-grant Colleges. The Advisory Committee on Education, Staff Study No. 10. 1939. 141 p. Works Progress Administration. Report on Progress of the WPA Program, June 30, 1938. 1938. 147 p. NONGOVERNMENT PUBLICATIONS Atkinson, Raymond C.; Odencrantz, Louise C.; and Deming, Ben. Public Employment Service in the United States. Chicago: Public Administration Service, 1938. 482 p. Bitterman, Henry J. State and Federal Grants-in-Aid. New York and Chicago: Mentzer, Bush & Company, 1938. 550 p. Brooks, Earl. In-service Training of Federal Employees. Chicago: The Civil Service Assembly of the United States and Canada, 1938. 74 p. {450 58. DD. 60. 61. 62. 63. 64. 65. 66. 67. 68. 69. Chapman, Edward A. “WPA and Rural Libraries.” Bulletin of the American Library Association 32: 703-709; October 1, 1938. Columbia Institution for the Deaf. Gallaudet College; Seventy-fifth Year 1938-1939. Washington, D. C. 90 p. Cubberley, Ellwood P. State School Administration: A Textbook of Principles. Boston: Houghton Mifflin Company, 1927. 773 p. “Education in the Civilian Conservation Corps.” Phi Delta Kappan 19: 297-392; May 1937. Hoyt, Ray. Your CCC; A Handbook for Enrollees. Washington, D. C.: Happy Days Publishing Co., Inc. 96 p. Military Training in High Schools of the United States; R. O. T. C. Third edition. Washington, D. C.: Civilian Military Education Fund, 1939. 15 p. National Advisory Committee on Education. Federal Relations to Education: Report of the National Advisory Committee on Educa- tion. Part I. Committee Findings and Recommendations. Part II. Basic Facts. Washington, D. C.: the Committee, 1931. 2 vols. Smith, Darrell Hevenor. The Bureau of Education: Its History, Ac- tivities, and Organization. Institute for Government Research, Ser- vice Monographs of the United States Government, No. 14. Balti- more: Johns Hopkins Press, 1923. 157 p. Swift, Fletcher Harper. Federal and State Policies im Public School Finance in the United States. Boston: Ginn and Co., 1931. 472 p. White House Conference, 1930. Addresses and Abstracts of Com- mittee Reports. New York: Century Co., 1931. 365 p. White House Conference on Child Health and Protection. Wash- ington, D. C.: W. F. Roberts Co. 48 p. White House Conference on Child Health and Protection. Prelim- mary Committee Reports. (Confidential—not for publication.) New York: Century Co., 1930. 593. p. T1510} ’ { - f ; on oe eee x. 0 =) a 2 = a)