over several days. Three times it has been referred to vocational leaders of the entire country for criticism and suggestion. After each referendum the bill was modified so as to reconcile, as nearly as possible, all interests. All this was done in order to assist Mr. Reed in preparing a bill which would serve as effectively as possible the entire country.

We are here to present the needs of vocational education as we see them, and to most respectfully urge your favorable consideration. We also ask the privilege of presenting certain documentary statements from organizations and individuals over the country.

The CHAIRMAN. If there is no objection on the part of the committee, we will receive those statements.

Mr. MILLER. We have drafted quite a lengthy statement that we are not going to take the time to read this morning, but which I will ask permission to put in the record.

The CHAIRMAN. I would like to suggest, if the committee has no objection, that we will insert those at the proper places, when we make up the report of the hearings. They are received now, and you may hand them to the stenographer.

STATEMENT PREPARED BY MR. THOMAS H. QUIGLEY, HEAD OF INDUSTRIAL EDUCATION DEPARTMENT, GEORGIA SCHOOL OF TECHNOLOGY, ATLANTA, GA., FOR THE LEGISLATIVE COMMITTEE OF THE AMERICAN VOCATIONAL ASSOCIATION

A. A BRIEF RÉSUMÉ OF THE GENESIS OF THE SMITH-HUGHES VOCATIONAL EDUCATION ACT AND THE CAPPER-REED VOCATIONAL EDUCATION BILL

1. The Smith-Hughes vocational education act was for years before its passage actively advocated by the American Federation of Labor, the National Association of Manufacturers and other economic and social thinkers who saw the necessity of making adequate provision for public vocational education of less than college grade. It was indorsed by the department of superintendence of the National Education Association.

2. The National Society for the Promotion of Industrial Education to a great extent formed the meeting ground of labor leaders, employers, educators and other interested in the passage of the Smith-Hughes Act and other measures looking toward adequate public subcollegiate vocational training.

3. The Congress of 1914 authorized and the President appointed a Commission on National Aid to Vocational Education to consider and report upon this subject. The findings of the commission resulted in the Smith-Hughes Act of 1917.

Upon the passage of the Smith-Hughes Act the National Society for the Promotion of Industrial Education became the National Society for Vocational Education and some years ago, merging with other organizations of similar purpose, became the American Vocational Association.

5. The American Vocational Association is composed of approximately 10,000 vocational teachers, supervisors, and administrators of vocational education. Its meetings and activities are participated in by representatives of labor, representatives of employers, general educational administrators, and by vocational educators of all ranks.

6. The proposed Capper-Reed vocational education act (S. 3969 and H. R. 10812) sponsored by Senator Arthur Capper of Kansas and Congressman Daniel A. Reed of New York is the result of more than a year of careful canvassing of the States by the American Vocational Association.

7. Briefly the Capper-Reed vocational education bill, with the exception of certain proposed changes, which have grown out of the States' 13 years of experience in administering the Smith-Hughes Act, is, in effect, an addition to the existing trade and industrial education provision of the Smith-Hughes Act. The proposed changes are outlined under section D following.

B. A BRIEF RÉSUMÉ OF ACCOMPLISHMENTS UNDER THE TRADE AND INDUSTRIAL PROVISION OF THE SMITH-HUGHES ACT

1. That the present Federal cooperation with the States under the SmithHughes Act of 1917 stimulated the States to promote trade and industrial education and training is shown by the fact that every State promptly accepted the provisions of the act. With few exceptions the States and local communities use all Federal funds allotted, and now spend for the same purposes approximately $4 to every $1 of Federal aid.

2. The 1929 enrollment in federally aided trade and industrial classes included:

65,000 youths over 14, in full-time trade schools, preparing to enter the skilled trades___

Per cent

11. 6

367,000 working youths over 14, in part-time schools, learning while they earn a living.

65. 2

131,000 working adults, in evening schools training to improve themselves in their jobs...

23. 2

563, 000

Total..

100. 0

3. Special administrative, supervisory, promotional, research, teacher training, foreman and other occupational training techniques, peculiar to the necessities of trade and industrial education, have been and are being evolved as the joint experience of the Federal and State boards for vocational education make these evolutions possible.

4. The technique of occupational analysis to determine the amounts and types of training required for competency in any occupation has been developed largely by the Federal and State boards for vocational education, and thousands of teachers have been trained in its use in building practical functioning courses of study.

5. Occupations have been and are being analyzed by persons competent in those occupations.

6. The technique of training practical men and women how to teach the skills and technology of their occupations to learners in those occupations has been developed.

7. Thousands of men and women teachers skilled by practical experience in hundreds of trade and industrial occupations have been thus trained in the art of imparting their skills and technical knowledge to learners.

8. Throughout the Nation thousands of industrial foremen and other industrial supervisors have been trained to analyze systematically and better discharge their responsibilities toward their superiors and subordinates, to the end that the wage earners in our industries may receive the fullest encouragement for the development of their abilities and more cooperative and happier human relations in industry may result therefrom.

9. A nation-wide revival of intelligent and thorough apprenticeship training in the skilled trades is taking place.

10. An increased nation-wide recognition on the part of employers, employees, public educators, and of the general public of the common interest of all in the adequate vocational training of the wage earner; and the increasingly manifest desire of all to cooperate to this wholesome and economically necessary end have accompanied the increased enrollments under the Smith-Hughes Act.

C. SOME OF THE REASONS WHY THE CAPPER-REED VOCATIONAL EDUCATION BILL IS A NATIONAL NECESSITY AT THIS TIME

1. The present Federal fund allotted to the States for the aid of trade and industrial education, under the Smith-Hughes Act is used to within 3.3 per cent of the total annual grant. This financial margin of safety is necessary to avoid

deficits.

2. While the 563,000 people enrolled in federally-aided trade and industrial classes is an impressive tribute to the wisdom of the Congress in passing the Smith-Hughes Act, yet the 367,500 juvenile workers enrolled in part-time schools and classes represents but 9.2 per cent of the 4,000,000 young wage earners each year to whom such training should be made available; and the 131,000 adults represent but about 0.5 per cent of our approximately 25,000,000 adult wage earners. A far greater proportion of these wage earners could be reached and served by the vocational education program if funds were available.

3. Further Federal cooperation with the States in trade and industrial and commercial education is needed further to stimulate and aid the States in solving the pressing and momentous training problems incident to:

(a) The continuous vocational retraining of wage earners, temporarily unemployed, unsteadily employed, or likely to be, because of increasing mechanization, progress in business and industrial efficiency, and changing economic demands, into operators of the newer machines and processes or into new and expanding occupations, similar to the occupations in which they are experienced.

Anyone familiar with industrial and business life and with unemployment studies knows that there is a marked tendency for all workers to become set in their attitudes and habits of work. Such wage earners when an improvement occurs in the processes or machines which they are using are far less apt to be retained in employment than the workers who through the availability of vocational education are encouraged to develop the habit of continuously learning the new developments in their line of work. Illustrations of this are vocational training schemes in which compositors are learning the linotype; linotype operators learning the monotype; blacksmiths, boilermakers, and steel erectors learning to weld by the oxy-acetylene torch and the electric arc; machinists and toolmakers learning the use of the newer high-speed steels and precision grinders; and electricians learning to understand, install, and repair the newer synchronous motors, radio apparatus, photo-electric-control apparatus, talking moving-picture machines, television apparatus, and the rapidly increasing multitude of electrical devices.

Then, too, the wage earner who has been trained to keep abreast of the times in the job at which he makes his living, even though, due to increasing efficiency in the business in which he is employed, he loses his job, can learn a new line of work more readily.

But, although a worker may not have kept up to date and, due to increasing efficiency or depression in the business by which he has been employed, he loses his job, he can oftentimes be retrained at slight cost into a similar job in a new and expanding business. Illustrations of this are vocational classes for the retraining of railroad machinists into automobile and airplane machinists.

(b) The continuous vocational improvement of wage earners, temporarily unemployed, unsteadily employed, or likely to be, because of their lack of the hand and technical efficiency increasingly demanded of the occupations in which they are attempting to earn their livelihoods.

Despite popular notions to the contrary, modern industrial and business life demands an increasing number of artisans in the skilled hand trades. In the building trades buildings are still erected by hand work, and more and more buildings are required to house our businesses, factories, and our increasing population. In our discussion about the tremendously increasing installation of automatic machinery we sometimes overlook the fact that the more intricate and automatic the machinery we install, the more highly skilled men we must employ in the building of this intricate machinery.

There are more hand artisans employed to-day than ever in the history of the country.

Modern buildings and modern machinery require a degree of workmanship undreamed of years ago. The workman's cottage of to-day is a far more attractive and far more complicated affair with its wiring and plumbing than the workman's cottage of our father's day. The modern skyscraper is built to close specifications unknown by the building trades of a generation ago. Modern tool makers build automatic tools to-day to a degree of accuracy impossible by the older methods.

Along with the higher degree of workmanship demanded of the modern artisan, higher wages and lower production costs demand that guess work on the part of the artisan, resulting in waste of time and material, be replaced by systematic rapid planning based on technical knowledge. The carpenter untrained to read the plans, lay out mathematically and erect everything from joists to the finest of trim; the machinist untrained to run every machine and calculate and do every job that comes into the shop no matter how fine; and the sheet metal worker untrained to draft, assemble, and erect any shape required, inevitably find themselves unsteadily employed and drifting from job to job.

This statement not only applies to artisans in the skilled hand trades; it applies with equal force to wage earners in semiskilled factory and commercial occupations. The section man in a cotton mill untrained to figure the gear changes and to use the mass of technical information involved in his job; the office clerk untrained to use the bookkeeping machine, as well as all the other modern office

efficiency devices; the retail store worker untrained in the goods he attempts to sell, in their display to attract customers and in meeting and efficiently serving the public are prospective recruits for the army of the unemployed.

(c) The vocational training of older tradesinen into the lighter and more skilled branches of their respective crafts in which their past experiences will be continuing assets and declining strength will be no bar.

If a boy, girl, young man, or young woman in a skilled or semiskilled occupation remains untrained in the finer and more skilled branches of the occupation, his only asset to the employer is the speed and muscular strength of his younger and middle years. Middle age passes and along with it his economic value. His long practical experience, mature steadiness of character, and ripened wisdom count for nothing. The aging plasterer no longer able to apply his two or three tons of rough plaster a day and untrained in the finer branches of the plasterers' art; the newspaper pressman no longer able to lift the heavy newspaper forms and untrained to lighter and more delicate press work; the middle aged office file clerk no longer able to stand erect continuously, and untrained in other office jobs requiring only a sitting posture, are all headed for the human economic scrap heap.

But the aging plasterer trained in night school to do delicate cornice and similar work; the old newspaper pressman trained in night school to run the lighter job presses; the middle aged file clerk trained in night school to run the comptometer and other office machines requiring a sitting posture, all have ahead of them years of steady employment in occupations in which past experiences will still be continuing assets.

(d) The further encouragement of the training of apprentices in the skilled trades, and of learners in other occupations, to a high degree of all-round hand and technical efficiency in their chosen occupations, as insurance against future unemployment and loss of wages, and as assurance of an adequate supply of thoroughly skilled workers for the nation.

There is unquestioned evidence of the beginning of a healthy revival of apprenticeship throughout the United States. There is little doubt but that the provision of the Smith-Hughes Act granting Federal funds to the States in aid of part-time education, has been a very important factor, to say the least, in pointing the way by which apprenticeship may be made to attract the intelligent American boy. Regardless of why apprenticeship declined, it is patent that to attract the intelligent boy, the apprenticeship plan must first be made intelligent.

Not only must the apprentices receive a thorough round of practical manipulative experiences in their chosen crafts but practical experience must be made intelligible and educative by supplemental training in the mathematics, drafting, arts and sciences on which the practices of the crafts are based.

A sufficient number of the older types of apprenticeship have been thus modernized and a sufficient number of new apprenticeship schemes have been thus established to point the way to a sound revival of apprenticeship.

To encourage the States to carry this revival to proportions commensurate with the job to be done requires more Federal funds than are at present available for this purpose.

4. With the growing electrical, chemical, mechanical, and other technical control of industrial processes, there is a growing demand for the training of young people and adults as, what have come to be called, junior vocational technicians, and for entrance into which jobs collège training is not requisite.

Thoroughly practical training for such jobs, based upon careful analyses of their requirements, would offer, especially to young people unable to go to college, in communities containing such industries, attractive means of livelihood not otherwise open to them and would assure to the Nation a more adequate supply of practical technicians.

Illustrations of these occupations are cloth analysts and yarn testers in cotton mills, automobile body draftsmen, dye plant testers, loft layout men in shipyards, mill detailers in planing mills and refinery technologists.

5. Further Federal cooperation with the States is needed to meet the increasing demand for the training of trade, industrial and commercial foremen, forewomen, and other supervisors as the leaders and teachers of the millions of wage earners who, because of their highly specialized jobs, must receive the necessary training mainly on their daily jobs and therefore from their supervisors.

The foreman or supervisor has aptly been called the "keyman of industry." Upon him to no small degree depends the happiness of his subordinates in their jobs. He, perhaps more than any other person in the office, store or factory, can determine whether his subordinates, young and adult, shall use all available means to improve their own capacities.

6. Federal cooperation with the States in commercial education, not aided as such under the Smith-Hughes Act, would stimulate the States to bring the training for commercial pursuits up to the high standards of general and specialized efficiency demanded of office, retail, and other commercial workers by modern business organizations.

The Commission on Federal Aid to Vocational Education in 1914 did not recommend provisions for financial aid to commercial education because it felt that the need was being adequately met by courses in public high schools and private schools. However, it is now well known to educational authorities that such programs have utterly failed to keep pace with the demands of modern commerce and business. With the introduction of machinery on the farm and in the factory there has been a tremendous increase in production and with it a great decrease in the labor required per unit of product, thus releasing labor from production and making it available for distribution (or commerce). This increase in production has brought about an increasing demand for labor in distributing the goods thus produced. Hence, the 38 per cent increase of population in commercial occupations from 1910 to 1920 as compared with the 26 per cent increase of population in manufacturing and mechanical occupations, the 9 per cent increase in population in all occupations and the 13 per cent decrease in agricultural population. As a result of more than 12 years of experience throughout the United States in developing effective forms of trade and industrial vocational training, it is now evident that there has been gained sufficient knowledge as to the great need for effective specific commercial training and as to how to carry it on, to indicate the necessity for Federal aid for its encouragement.

7. Additional Federal funds are needed for the further stimulation of part-time education for the millions of wage earning boys and girls, entirely lost to the influence of any form of organized education, general or vocational.

Upon the future earning power of these boys and girls depends to a large extent the future consuming power, steady employment and general prosperity of our people.

These are our present citizens and future voters. Whether their lives shall be criminal or constructive depends largely upon the influences surrounding them in adolescent years. Part of the working month, week, or day in a part-time school has meant to hundreds of thousands of our boys and girls their only hope of an intelligent adjustment to civic and vocational life.

8. Additional funds are needed by the Federal Board for Vocational Education, by the States, and jointly, for the stimulation of research and for the collecting of research data vital to the efficient functioning of vocational education, including the determination of the exact physical and psychological characteristics that individuals must possess in order profitably to receive training for specific occupations, the development of efficient tests to this end, the accurate and continuous determination of the training needs of the people of the States, the continuous analysis of occupations and upon them the building and rebuilding of courses of study to meet changing occupational requirements, the accurate and continuous evaluation of the results of vocational training; and the dissemination of such facts.

D. A RÉSUMÉ OF THE RELATION OF THE CAPPER-REED BILL TO THE SMITH-HUGHES ACT AND THE GEORGE-REED ACT

1. The Smith-Hughes Act of 1917 (U. S. Code, title 20, ch. 2) provides:

(a) Two million four hundred thousand dollars annual aid to the States for trade and industrial education; $600,000 for home-making education; and $3,000,000 for agricultural education.

(b) That Federal funds be matched at least dollar for dollar and used for salaries and certain expenses, but not for buildings nor equipment.

(c) That for the States to participate in this aid the legislatures should formally accept the act and create or designate State boards for vocational education to administer the act within the States. (NOTE.-All State legislatures by 1918 had so accepted and created or designated.)

(d) A Federal board for vocational education, composed of the Secretaries of Commerce, Labor, and Agriculture, the Commissioner of Education, and one representative each of manufacturing and commerce, labor and agriculture, as the Federal Government's agency to cooperate with the States in carrying out the purposes of the act.

2. The George-Reed Act of 1928 granted to the States under the same conditions as the Smith-Huhges Act a maximum of $2,500,000 additional annual aid to agricultural and home economics education based on the farm population of the States; but granted no additional aid to trade and industrial education.