3. The proposed Capper-Reed Vocational Education Act would grant to the States under the same conditions as the Smith-Hughes Act, except as noted in point 6 following, a maximum of $4,000,000 additional annual aid to trade, industrial and commercial education based on the nonfarm population of the States.

4. The Smith-Hughes Act is a continuing act; the George-Reed Act runs for five years; and the proposed Capper-Reed Vocational Education Act would run for four years.

5. The trade and industrial education portion of the Smith-Hughes Act pro

vides for:

(a) Full-time day trade and industrial preparatory schools or classes. These are schools, or classes within schools, for youths 14 years of age or over, devoting for a school year at least half of the school day to training in the manipulative skills and usually about a quarter of the school day for training in the technical subjects of the specific occupation the youth is preparing to enter. Such schools require the full-time of the youth and usually concern themselves with the common skilled trades.

These classes are usually, though not necessarily, held in special vocational school buildings and sometimes in high-school buildings.

(b) Part-time schools or classes for working youths between 14 and 18 years of age, and designed "to enlarge" their "civic or vocational intelligence."

These are schools, or classes within schools, held during the regular working hours of the youth, devoting at least 144 hours a year to any or all of the following types of training:

1. General continuation subjects such as the common-school branches, health, citizenship or any other subjects or educative activities that will help train working boys and girls to make the most of their limited opportunities.

2. Occupational finding courses designed to give the employed youth and his teachers some indication of the occupation the youth would like, to which he is adapted, and through which he will find a profitable market for his services.

3. Vocational preparatory courses designed to prepare the employed youth for the occupation of his choice in which there is a reasonable chance he will find happy and profitable employment.

4. Vocational extension courses supplementary to the daily employment of the working youth, after he has gained employment in the occupation of his choice, and designed to "extend" or increase his technical knowledge of that occupation and to train him in such manipulative phases of it as he does not experience in his daily work and which are essential to his all-round efficiency in that occupation. These classes are held in special vocational school buildings, factories, business buildings, or any convenient places where the necessary space and equipment are available.

(c) Leisure-time (evening) trade and industrial extension classes supplementary to the daily employment of working people over 16 (attended almost exclusively by adults) and designed to "extend" or increase their technical knowledge or manipulative skills in the occupation in which they are earning their livings.

Under this head, although not specially mentioned in the act, foremanship training courses, designed to improve industrial foremen as the leaders and teachers of those under their supervision, have been carried on.

These classes are held in special vocational school buildings, regular school buildings, factories, business buildings, or any convenient places where the necessary space and equipment are available.

6. The Capper-Reed vocational education bill (sec. 4) merely increased the aid to trade and industrial education under the same conditions as the SmithHughes Act with the following exceptions which have grown out of 13 years of experience on the part of the States in administering the Smith-Hughes Act:

(a) Commercial education (sec. 3a). Under the Smith-Hughes Act no provision is made for commercial education except in the provision for part-time schools and then only such commercial subjects as may be designated to "enlarge the civic or vocational intelligence" of young workers from 14 to 18 years of age. The Capper-Reed bill provides that not less than one-fifth nor more than onethird of the total fund shall be reserved for training for specific commercial pursuits in part-time classes for working people over 14, in evening classes supplementary to the daily employment of working people over 16 and in full-time classes for young people over 16.

The reason for raising the entrance age into full-time specific commercial courses to 16 years, while retaining 14 as the entrance to trade and industrial full-time

courses, is obvious when the necessary academic preparation for commerical training is considered.

These provisions for training for specific commercial pursuits do not mean the use of Federal-aid to subsidize the usual commercial courses in high schools and night schools. Commercial courses coming under this provision will be subject to the same practical specific occupational standards as the Smith-Hughes Act and State boards have set for the corresponding types of trade and industrial courses and teachers.

(b) Full-time day trade and industrial preparatory schools or classes (Sec. 3b). Whereas under the Smith-Hughes Act two-thirds of the trade and industrial fund may be used for full-time day trade or industrial preparatory classes, under the proposed Capper-Reed bill only one-third of the total fund may be so used. The reasons for this limitation upon the use of funds for the full-time school are the growing demand for funds for the vocational training in part-time and evening schools of wage earners already employed and the growing assurance on the part of business, industry, labor, and vocatonal education administrators, that, except under certain very favorable practical conditions, the part-time and leisure-time classes supplementing daily employment are, from their very nature, more effective than the full-time preparatory schools or classes.

(c) Part-time schools or classes (secs. 3a, 3c, and 3d). Sections 3a and 3c of the Capper-Reed bill provide that the total fund may be used for any of the types of part-time classes (listed under 5b preceding) for persons engaged in trade and industrial and commercial pursuits. Section 3d provides that a parttime class which is supplementary to the daily occupation in which the pupil is earning a living (564 preceding) may operate for any number of hours per year and may admit any person over 14 who is working in that occupation. However, for part-time classes which are not supplementary to the daily employments of the pupils the standards of the Smith-Hughes Act, that the instruction shall cover at least 144 hours per year and shall be designed for 14 to 18 year old youths, is very wisely applied to the use of the funds under the proposed Capper-Reed Vocational Education Act.

The reasons for removing the upper age limit and the 144-hour requirement in the case of classes supplementary to the daily employments of the pupils are the growing demand for short specific courses during the regular working hours, designed to improve the vocational efficiency of wage-earning people, and the increasing desire of employers to cooperate by giving their employees of any age time off to attend them.

(d) Leisure-time (evening) trade and industrial extension classes supplementary to the daily employment (sec. 3c). The proposed Capper-Reed Vocational Education Act provides for evening classes under exactly the same conditions as the Smith-Hughes Act, except that under the proposed Capper-Reed Act fourfifths of the fund may be used for trade and industrial evening classes whereas under the Smith-Hughes Act only two-thirds may be so used.

(e) Supervision (sec. 2). The Smith-Hughes Act provides funds for the training of the types of teachers comprehended under the act, but does not provide specifically for greatly needed supervision. That is, the Smith-Hughes Act provides only for those phases of supervision which can legitimately be considered as the training of teachers. The proposed Capper-Reed Act provides specifically for supervision.

(f) Research. The Smith-Hughes Act does not provide for greatly needed vocational education research by the States and only inadequately by the Federal Board for Vocational Education. The Capper-Reed vocational education bill provides specifically for research by the States or local communities (sec. 2) and provides more adequately for research by the Federal Board for Vocational Education (sec. 5).

(g) Apprentice training (sec. 2.) The Capper-Reed vocational education bill provides specifically for apprentice training.

(h) Foreman training (sec. 2). The Smith-Hughes Act provides for foremanship training only through lesiure-time evening classes and through teacher training classes in the distinctly teaching phases of the foreman's job. The Capper-Reed vocational education bill provides specifically for foremanship training on any practical plan.

(1) Training for industrial technical pursuits (sec. 3b). Under the SmithHughes Act training for "specific industrial pursuits of a technical nature" has been considered under the same classifications as training for any trade or industrial pursuits, and aided as such. However, due to the increasing number of such specific technical pursuits not requiring college training and the opportunities for

employment in them the Capper-Reed vocational education bill names them specifically in the provision for full-time trade and industrial preparatory classes. Nothing in the Capper-Reed bill would prevent the use of Federal funds for aiding such training in part-time and evening classes, as in fact, is legitimately and wisely being done at present under the Smith-Hughes Act.

7. Flexibility. The flexibility of the Capper-Reed vocational education bill may be summarized as follows:

(a) The entire fund may be used for evening classes supplementary to the daily employment.

(b) The entire fund may be used for part-time education.

(c) In general it makes provision for many of the detailed needs of the States in the promotion of vocational education, which limited experience at the time of the passage of the Smith-Hughes Act did not foresee.

Mr. MILLER. We shall proceed as rapidly as possible. I would like to present to you a man who does not need introduction to this committee, because he appeared recently in behalf of another bill, Dr. John A. Lapp, head of the department of social science of Marquette University, Milwaukee, Wis., and a member of the Federal Commission which drafted the Smith-Hughes bill 16 years ago. He is with us this morning to speak to this bill.

STATEMENT OF DR. JOHN A. LAPP, HEAD, DEPARTMENT SOCIAL SCIENCE, MARQUETTE UNIVERSITY, MILWAUKEE, WIS.

Doctor LAPP. Mr. Chairman and gentlemen of the Committee. on Education, it was 16 years ago this month that the commission appointed by the President drafted the original Smith-Hughes Act. That commission was created by Congress after a considerable bit of agitation, and was composed of two Senators, Senator Hoke Smith, Senator Carroll S. Page of Vermont; two Representatives, Representative, now Senator, Fess, and Representative Hughes of of Georgia, and five others appointed by the President.

The commission worked, I think, as diligently as any committee ever did work, and completed its hearings. In fact, 16 years ago this week we held hearings in the Senate Office Building, at which representatives of labor, of capital, of commerce, of agriculture, of education, of vocational education, all appeared in unanimous support of the proposition that the National Government should take an active part in the promotion of vocational education. In fact, there was remarkably little dissent at that time on the promotion of vocational education through the support of the Federal Government.

The commission in its findings held that at that time, according to the best testimony they could get, that not one out of a hundred of the men and women in nonprofessional occupations had ever had any training for the work in which they were engaged. They found at that time a large portion of the skilled workers of this country had to be imported from foreign countries, if we had them at all. They found a fact that was commonly known, that we sent our raw materials abroad to be manufactured by the skilled workers of Switzerland and other countries, and shipped back to us in the form of finished products perhaps the most outstanding need that was discovered at that time. We found also that only five States had made a beginning-this was in 1914-in the promotion of vocational education, and most of those were just in the mere beginning and were set up in the expectation that sooner or later Federal aid would come to assist in the promotion of the project. Massachusetts, New York, New Jersey,

Indiana, and Wisconsin had made substantial beginnings. The other States had done very little either as States, nor had the cities or private organizations done very much.

The CHAIRMAN. Doctor Lapp, may I interrupt for just one question?

Doctor LAPP. Yes.

The CHAIRMAN. Was it the late revered William Howard Taft that appointed the commission that made that study?

Doctor LAPP. President Wilson was the one who appointed the commission. It was appointed in the winter of 1914.

The CHAIRMAN. What was the Taft commission? Did he appoint a commission on that?

Doctor LAPP. I don't know, Mr. Chairman. I haven't any record of that. I do not recollect that there was any commission appointed by him, but a bill similar to the Smith-Hughes bill had been introduced in the sessions as early as 1910, and when we came to formulate a plan we had much of a background. The bill was introduced some years before, sponsored by Congressman Wilson, later Secretary of Labor, and by a Senator, and it had been agitated in Congress. I do not recollect whether there was any commisson or not.

The CHAIRMAN. The reason I asked is I had a vague recollection that quite a number of years prior to that a considerable study had been given by individuals, which developed into certain private schools dealing with vocational education. Am I right about that? Doctor LAPP. A limited number of private schools, but very limited. There were comparatively few places where they were giving vocational training, and most of those were struggling under great defects at the time.

Mr. DOUGLASS. You mentioned Massachusetts, and I am from Massachusetts. These textile schools that are carried on by Massachusetts are in line with this work you are talking about, are they not? Doctor LAPP. I understand they are.

Mr. DOUGLASS. Can you state for the benefit of the committee just how much Massachusetts has done in the way of developing the textile and other vocational schools?

Doctor LAPP. I will have to ask others who are more familiar to do that later.

Mr. DOUGLASS. Well, if some one will do it later, that will be all right.

Doctor LAPP. Yes, sir.

We recommended as a result of these findings and hearings that national aid was essential, first to stimulate the States in the development of vocational education, and, secondly, and most important of all in the minds of the commission, to equalize the burden among the States.

It was obvious that a measure of such national importance ought not to be thrust upon a few States, and the States perhaps in the greatest need were the ones least able to financially carry the project, and, third, to supply a pressing national need, clearly recognized very soon after this commission made its study, national need for economic and social security. What avail is it that we have resources in this country, mines and forests and other natural resources, if we do not have the men qualified and trained to develop these resources as skilled workers would do.

Almost immediately after the passage of the act it was put to the test of war needs, and we had disclosed to us in a striking fashion the weakness of the nation in the face of war. We had not enough trained workers to man the necessary activities in the preparation for that war and the carrying on of the necessary things outside of the military preparations.

As a result, we recommended national aid for industrial education, national aid for home economics deucation, for agriculture, and for the training of teachers. Realizing that we could get nowhere unless we set up schemes of training men and women qualified to deal with this particular kind of education, we did not at that time include commercial education. The reason was rather obvious. Commercial education had something of a development, a very considerable development, in the public schools and in private business schools. At any rate, we were not in a great need for commercial workers, we were not in the same need that we were for industrial and agricultural and other workers. That has changed considerably, and I am glad to say the present bill extends the vocational aid to include commercial enterprises.

The bill was pending in Congress for some three years before it was finally passed. It had general support, but in the pressure of things preliminary to the war, it was kept in committee, and finally did not merge until 1917. But I doubt if any measure ever received the more complete support of both houses of Congress. I doubt if any measure drafted by a commission ever received the consideration that that report received from the House and the Senate.

The bill itself was passed in 1917 in almost the identical language in which the commission, of which I had the privilege of being a member, presented it. A change was made in the administrative features, and that was about all.

Since that time the need has very evidently increased. The work showed us we have not solved the problem of vocational training, though we have made a great start.

of

The statistics on progress that will be laid on your table-this fact, for instance, that about 1,047,000, as presented by Mr. Miller, were in vocational schools, attest the very remarkable development during these last years, for it has been only 10 years approximately since this law went into effect. Inasmuch as the first two or three years the work of the Federal board was taken up with the war needs and the stimulation of the States did not take place until after the war closed, and the programs were not set up until that time. We need a wider educational opportunity for the children. We have compulsory education in every State in the Union now. We can tell the children to be in school until they are 14 years of age, and in many States 16, and in some, at least part time, until they are 18. But it is little avail that we compel the children to go to school unless we provide the kind of schools in which they can profit. It is a breeder of truancy to send children to schools by which they can not profit. To compel children to be in school without giving them adequate opportunities to use the talents which they possess is to create truants, as is evidenced by almost every report that has been made on the subject of crime and delinquency in this country, notably the study just completed by the crime commission of the State of New York, where a study of truancy in its relationship to schools was made, and a report of great significance presented.