47th Congr[ss House of Reprenentatives Document4th So_ D No.

Sixth Annual Report toCongress

of the

Federal Board forVocationalEducation

1922

SECTION L.-General Survey of the Work of the Board.SECTION 11.-Vocational Education.SECTION 111.-Vocational Rehabilitation of Persons Disabled in

Industry or Otherwise.

WashitonGovernment Printfng; Ounce

inS

FEDERAL BOARD FOR VOCATIONAL EDUCATION.MEMBERS.

JAmES J. DAVIS, Chairman,Secretary of Labor.

HERBERT C. HOOVER, HARRY L.i FIDLEIU, Vice Chairmiian,Secretary of Commerce. Labor.

HENRY 0. WALLACE, EDWARD T. FRANKS,Secretary of Agriculture. Manufacture and Commerce.

JOHN J. TIGERT, CALVIN F. MCINTOSH,Commi-ssioner of Educatiom. Agriculture.

E. JosI;rH ARONOfF', Secretary anid Chief Clerk.

EXECUTIVE STAFF.

J. C. WRIGHT, Director.C. H. LANE, Chief, FRANK CrUSHMAN, Chief,

Agric.tt1ural Education Jservice. Industrial Education Service.

ANNA E. RICHARDSON, Chief,Home Economics Education Seritice.

JOHN AIJIEL KRATZ, ChiCf,Vocationial Rehabilitation Division.

EABL W. BARNHART, Chief,Commercial Education Service.

JOHN CUMMIINGS,Editor and Statistician.

CERTIFICATE: By order of the DMrector of -the1Iederal Board for Vocational Educationthe matter contained herein Is published Rf; administrative information and is re(j'Iiredfor the proper transaction of the public bvisiqess.

11

- CONTENTS.

Page.Letter of transmittal ------------ - ----------

Section I.-GENERAL SURVEY OF THE WORK OF THE BOARD.

Organization chart of the Federal Board for Vocational Education- Face page 1Legislative requirements under which the board reports to Congress--1Administrative services of theboard-2__- ____-___-_____ - _- ?Reorganization of services In the year ended June 30, 1922-------------- 2Administrative policies of theboard------------------------------------- 8Representative character of administrative agencies--__-_- 4Social values determine public-school vocational training _-_-__-_-__- 6Vocational rehabilitation services--_____-_-__-____ -_-_ 7Extension of public-school functions-_-__-__-_-____-_-_-_ -_- 7Cooperation with t.heStates---- 8Administrative systems built up under the Federal acts--_-__ 8

Table I.-Enrollment in federally aided schools: 1918 to 1922 -- 10Table 2.-Expenditures of Federal, State, and local money under the

vocational education act: 1918 to1922-- ______ 13Plans for thefuture--__ I 20School mortality and part-time education for employed boys And girls 721Recommendations to Congress-- 2_{

Section 11.-VOCATIONAL EDUCATION SERVICE.

PART I.-AGRICULTURAL EDUCATION.

General survey of progress: 1917 to 1922 __-_-______-__-_----. 31Growth in enrollment in federally aided schools and classes-------- 32Character of courses aided _-_-_--_ 34Part-time education -- 36State supervision _--_--___-_-_-_-- 36Directed or supervised practice _-_-_-__-_-__---_._____- 37Teacher training _--_--__ ------_------ :38Research work of the service----------------_-------_-__-_-_40Cooperative activities--- 41Conferences--------------------__------__-41.Negro education--- 42

PART II.-TRADE AND INDUSTRIAL EDUCATION.

General survey of progress: 1917 to1922--_- _-_- -45General continuation schoolgrowth--__- ___- __-___-_ -_-__ 46Supervision---------------- 48Teacher training-_--_--_--_____----- 48National and foremanship training demonstration conferences -_-___ 50Publications-__----__---_-_ --_o

III

IV CONTENTS.

Pa.Trade and industrial education for girls and women---_-_-__-_ 52

Day trade schools -------53---------------53Part-time schools-55Eveningschools_-- ___--__-- ___________________- ________-5-55Training Inplants-56________________-- _-----------_----- byTeacher training--____ - 57Workers' educational movement--_-_-_- ---- -- 57

PART III.-HoM.E ECONOMICS EDUCATION.

General survey of progress: 1917 to1922--__-_- ______- ___._-__ 58Supervision-6______---- _____________-- ___________________________-00Work in the schools __----______________ _____ 62

All-dayschools-6____________-- _____-- ________________.______-_- 2Part-time schools--_-- ____-- _______________----____-______ -__Eveiling schools -6--7------------------------------------------6TTraining ofteachers--__---- _________--________________________- 69

Negro education 72Research and publications-_________--______--_______-_______________ 76Cooperative activities--______.___________ 78Conferences-------------------------------------------79Committee wvork--_____ 82Legislation____--________._____________ ------_84

PART IV.--COMMZRcIA.L EDUCATION.

General statement of conditions prior to 1917-_-__-___-___-__-_ 86rVeacher training in1916---------------_-________------- 87Traditional courses not vocational_ -______-------____________________ 88Traditional practices not questioned by commercial teachers-----------.89WVork of the commercial education service---------------------------- 8)State and city supervision improving--____________________________ 90Occupation surveys beingmade--______-_____-___________ 91Occupation analyses--__91_Conferences--___--__--_---_--_--__,__----- __-___-__- 92Courses for training commercial teachers------------------------------- 93Certification of commercial teachers-________________________________ 94Servicework-------------------------------------------- ------ 95The continuation schools--- 96Retail sellingeducation---------------------------------------- 97

General conditions prior to 1917_-__________-__________-_________ 97Service work, in storeeducation--__-___-_-____-_-_-__-__ 99State plans----------------------------------------------------- 1°0Teacher training-101

PART V.-PunCAnTIoNs IN 1922.

Statement of policies-------------------------------------- 08Agricultural education------------------------------------------- 103Trade and industrial education------------------------------ -- 1Q4Home economics education-----------------------------__ 104

CONTENTS. V

PART VI.-SUMMABY OF PROGRESS BY STATES.Page.

Alabama --105Arizona----------------------- 108Arkansas-----------------------_____-------------------------------- 109California_ __--_________________---___________________________ 112Colorado --- 115Connecticut----------------------___---------------------------- 117Delaware --- ------------------------------------------------- 119Florida _______________-_______-__-_-------------------------------- 121Georgia ---------------------------------------------------- 124Idaho ------------------------------------------------------------- 127Illinois_____,___________________-__---------------------------------- 129Indiana ------------------------------------------------------ 132Iowa __--__-- ___________________----------------------------------_ 134Kansas-----_137Kentucky ---- ---__________-_------- 138Louisiana --------------------------------------------------------- 141Maine __--_________________--______----________________ 143M-aryland_________-___________________-____________145Massachusetts . -------------__-________---_____________-_______- 147Michigan ------------------------------------------------------------ 160Minnesota---------------------------------------------------------- 102Mississippi -----------------------------

-------------------- _______- 165M-ssouri--_ 167Montana ------------------------------------------------------ 171Nebraska---________173Nevada --------------------------------------_________________ 176New Hampshire--__--_--_--_--__----_--_____--______---_-__- 178New Jersey----------------------------------------------------- 180New Mexico------------------------------------------- 184New York---------------------------------------------------------- 186North Carolina _--_--_--_---__-_-__---_-_-188North Dakota ------------------------------ - - - 192Ohio -------------------------- ---------------------------------_ 194Oklahoma ----------------_-_________--_____________________________ 198Oregon ___ -------------------------------------------------- 201Pennsylvania _----------------------------- 203Rhode Island ------------------------------------- 209South Carolina--------------_______-____---------------------------- 211South Dakota_----.--_------__-______----- - - 213Tennessee_----__.___--_--__--_-_____--_-__________-__-______ 215Texas _--------------------------------218Utah _--------__--_____-____---- - - - 221Vermont--__----------------------------- 225Virginia ---- 226Washington __----_-----_--_-_-_-__---------------------229West Virginia--_ _----_------------------------------------ 231Wfsconsin--------------------------------235Wyoming.__ ---------------------------------------------- 287

PART VII.-STATISTICAL REPORT.

Table 1.-VocatlonaI school' federally aided, for years ended June 30,1918 to 1922-_-------_----------, _ 239

Table 2.-Teachers In vocational schools federally aided, for years endedJune 30, 1918 to 1922-__--_---------- 240

CONTENTS.

Page.Table B.-Pupils enrolled in vocational schools federally aided, by sex, foryears ended Juuie 30. 1918 to 1922---------------------------------- 241

Table 4.-Federal money allotted to the States, expended, and unex..ended, for years ended June 30, 1918 to1922--_- __-_-_- __- __-__ 242

Table 5.-Federal money expended for reimbursement of vocationalschools for the year ended June 30, 1922, and increase in reimburse-ment, 1922, over 1921, by character of instruction and type of school.(Reimbursements of teacher-training institutions are not included.)_-- 243

Table 0.-Number of vocational schools federally aided, by States, foryears ended June 30, 1922, 1921, 1920, 1919, and 1918------------------ 244

Table 7.-Number of teachers of vocational courses in schools federallyaided, by States, for years ended June 30, 1922, 1921, 1920, 1919, and1918--------------------------------------------------------------- 252

Table 8.-Sex of teachers of vocational courses in schools federally aided,by States, for years ended June 30, 1922, 1921, 1920, 1919, and 1918----- 254

Table 9.-Number of pupils enrolled in vocational courses in schools, fed-erally aided, by States, for years ended June 30, 1922, 1921, 1920,1919, and1918--_----------------------------______________-_______ 262

Table 10.-Sex of pupils enrolled in vocational courses in specified typeof vocational schools -federally aided, by States, for years ended June30, 1922, 1921, 1920, 1919, and1918--___-__-__________________ 268

Table 11.-Number of vocational teacher-training institutions federallyaided, by States, for years ended June 80, 1922, 1921, 1920, 1919, and1918--____--____-- __________________-- ___________________-_ 274

Table 12.-Number of teachers of teacher-training courses in institutionsfederally aided, by States, for years ended June Sb, 1922, 1921, 1920,1919, and1918--___.--__________________---------------------_ 276

Table 13.-Sex of teachers of teacher-training courses in institutionsfederally aided, by States, for years ended June 30, 1922, 1921, 1920,1919, and1918-------------------------------------------------- 276

Table 14.-Number of pupils enrolled in vocational teacher-trainingcourses in institutions federally aided, by States, for years ended June80, 1922, 1921, 1920, 1919, and 1918----------------------------------- 282

Table 15.-Sex of pupils enrolled in vocational teacher-training courses ininstitutions federally aided, by States. for years ended June 30, 1922,1921, 1920, 1919, and 1918-------- 284

Table 16.-Vocational schools and classes reported as not receiving reim-bursement from Federal funds-Number of schools, enrollment, andnumber of teachers, by type of school, by States, for the year endedJune 80, 1922_ __--_-- __-- ___-- ______--_------______---__-_-__- 288

Table 17.-State directors and supervisors-Number paid or reimbursedout of Federal, State, and local funds, and number giving full time andpart time to supervision, by States, for years ended June 30, 1922, 1921,1920, 1919, and1918--____________-_______--- __-------------- 290

Table 18.-Amount of salaries of State directors and supervisors paid orreimbursed out of Federal and State funds, by States, for years endedJune 30, 1922, 1921, 1920, 1919,- and1918--__------------------ 294

Table 19.-Expenditure of Federal, State, and local money for vocationalagricultural education, by States, for years ended June 30, 1922, 1921,1920, 1919, and 1918-_______ - _______-______ _ 298

Table 20.-Expenditure of Federal, State, and local money for voca-tional trade- and industrial education, by States, for years ended June30, 1922, 1921, 1920, 1919, and1918--____-______-___-__-_-_____ 302

VI

CONTENTS.

page.Table 21.-Expenditure of Federal, State, and local money for vocationalhome economics education, by States, for years ended June 30. 1922,1921, 1920, 1919, and 1918-- 306

Table =.-Expenditure of Federal, State, and local money for part-timegeneral continuation education, by States, for years ended June 30, 1922,1921, 1920, 1919, and 1918-__--__-- _____________-_____-__________ 310

Table 23.-Expenditure of Federal, State, and local money for vocationalteacher training, by States, for years ended June 30, 1922, 1921, 1920,1919, and 1918----------------------------------------------------- 313

Table 24.-Reimbursement of trade and industrial and home economicsevening, part-time, and all-day schools, and of part-time general con-tinuation schools-Amount of Federal money expended for each type ofschool, by States, for the years ended June 30, 1922, 1921, 1920, 1919,and1918--____________-______-_-_-__-_____ 320

Table 25.-Availability of Federal funds for hoine economics and forall-day and evening trade and industrial schools, by States-Amnountexpended for home economics compared with 20 per cent of the totalallotment for trade, industry, and home economics; andl amount ex-pended for all-day and evening schools compared with 66' per cent ofthe total-for the year ended June 30,1922_-_--- - 327

Table 26.-Availability of Federal funds for each class of teacher train-ing, by States-Amount expended for training teachers of agriculture,of trade and industry, and of home economics, compared with 60 percent of total allotment for maintenance of teacher training, for theyear ended June 30, 1922---------------------------------______ 328

Table 27.-Unexpended balance and amount to be sent to the' State forvocational agriculture during the year ending June 30, 1923, by States-Allotment, expenditure, and unexpended balance for 1922, and allot-ment and amount to be sent to the State for1923-3__________ _ _ 29

Table 28. Unexpended balance and amount to be sent to State for voca-tional trade, industry, and home economics during the year endingJune 30, 1923, by States-Allotment, expenditure, and unexpendedbalance for 1922, and allotment -and amount to be sent to the Statefor 1923------------------------------------------------------ 330

Table 29.-Unexpended balance and amount to be sent to State for voca-tional teacher training during the year ending June 30, 1923, byStates-Allotment, expendit'ire, and unexpended balance for 1922,and allotment and amount to be sent to the State for 1923-_-______- 331

Table 30.-Interest earned on Federal vocational education funds de-posited with State treasurers, for the year ended June 30, 1922_------- 331

Table 31.-Allotment of Federal vocational education funds to the States,for the year ended June 30,1922--_--____________________ 332

Table 32.-Allotment of Federal vocational education funds to States,Ifor the year ending June 30,1923--___-__________-_- __-_-_-_ 334

Table 33.-Allotment of Federal vocational education funds to the States,for the year ending June 30, 1924-3__________-_______-_-----836

Table 34.-Allotment of Federal vocational-education funds to the States,for the year ending June 30,1925--________-___-___-___-__-_-_____ 338

Table 35.-Allotment of Federal vocational education funds to the States,for the year ending June 30, 1926, and annually thereafter -- 340

VII

VII CONTIENTS.

Section 111.-VOCATIONAL REHABILITATION OF PERSONS DISABLED ININDUSTRY OR OTHERWISE.PART I.-GENERAL SUBVEY.

Page.Size of the problem of vocational rehabilitation- 345Responsibility of the Federal Government -___-_-_____-_____-_______-346Need for a definite and permanent policy on the part of the FederalGovernment _- --- 346

Legislation in the States-_--___--__------- __---- _______________847Conditions met by States in accepting Federal act---------------------- 847Mandatory requirements in Stateacts3_-_-__- __________________-848Uniformity in legislation-_____----_--_--___--- 348Federal appropriations and allotments to the States-349Cooperative activities-of the division- 349Conferences-__--__--.____----_-- _____--__-- _______351State administrative systems-_--__--_------_-_-_____-____________352Cooperating agencies In the States------------------------------------ 52

PART II.-ILLUSTRATIVE CASES.Illustrativecases-------------------------------___________-____ 353

PART III.-SSUMMARY OF PROOREss IN THE STATES.Introduction-____--------___------------_--____-- 358Expansion of Stateservice--__--_---__- _858Scope of services-3361The case method---- -------------------------------- 361Variety of objectives-362

PART IV.-EXCERPTS FROM STATE REPORTS.California-3364Massachusetts-3_-- --- B69NorthCaroli-a-3-875Ohio- 377

PART V.-STATE STAFFS FOR VOCATIONAL REHABrLITATION OF PEnsoNs Dis-ABLED IN INDUSTRY OR OTHERWISE.

Alabama------------------------------------ 381Arizona-__---- _--------__----- .381California----_ 381Georgia- i---------________ .381Idaho-__--__------------------------ _--____ 381Illinois_ __- - - - - -__--_-- __ - - 382Indiana_---------__--------------------------------------------- 382Iowa ____----------------_---------882 -Kentucky _------_--_--_------____----- 382Louisiana -----------------------------_---- - 382-Maine-------- -------------------------------------- 382Massachusetts _--------_--_-----383Michigan __--__--_-_.-___--___-___-__________--------- 383Minnesota ___----__--_--___--___-_.-___-----__________-______-383Mississippi -------------------------------------------------3-8---3--Missouri------------------------------383Montana -------------------------------------------------------- 384-Nebraska_----_----_--_----------__------ 384Nevada----___----- 384New Jersey --- 84

CONTENTS.

Page.New Mexico _-. 385New York _,__ 385Nortlh Carolina ---385North Dakota ---385ehlio --------------------------- 7--------------------- 386Pennsylvania ------------------ 386RhodeIsland--- 386South Dakota --- 386Tennessee -------------------- 387Utah--l3l_- - - -- -- -- -- - --- -- -- 887Virgintia..------------------------------387West Virginia _- -__- -_- 387Wisconsin-- 387W17yonming-_-__----_--___ ----------------_387

PART VI.-PUBLICATIONS AN 1922.

Vocational rehabilitation of persons disabled In industry or otherwise_ _ 388

PART VII.-STATISTICAL REPORT. -

Table 1.-Vocational rehabilitation-Live roll of cases at beginning andend of fiscal year, new cases listed, and closures during the year, byStates, for the year ended June 30, 1922.--___-______-__-_-__ -_ 390

Table 2.-Vocational rehabilitation-Number of cases, registrations, andclosures, by States, for years ended June 30, 1922 and 1921 --___ 392

Table 3.-Vocational rehabilitation-Status of live roll cases, by States,June 80, 19222------------------------------------------_-_____ 392

Table 4.-Vocational rehabilitation-Closures classified as rehabilitatedand other, by States, for the year ended June 30, 1922-------_-___-__ 393

Table 5.-Vocational rehabilitation-Financial aid contributed and otherservice rendered by cooperating agencies in States, for the year ended -

June 30,1922--_ 394Table 6.---Vocational rehabilitation-Nature of disability for new cases

registered, for the year ended June 30, 1922--_ 395Table 7.-Vocatlonal rehabilitation-Origin of disability for new cases

registered, for the year ended June 30, 1922- 396Table 8.-Vocational rehabilitation-Age of new cases registered, for

the year ended June 30, 1922-_-----------__-_-_ -_-_ 397Table 9.-Vocational rehabilitation-Schooling of new cases registered, for

the year ended June 30, 1922-__------_---_-_ -_-__- 39STable 10.-Vocational rehabilitation-Number of cases requiring and re-

celving special services, for the year ended June 30, 1922--__-_-_-__ 399Table 11.-Vocational rehabilitation-Personnel of State staffs, for theyear ended June 30,1922--_--_-- _---- _---- _-_-__-__-_-_- __--- 400

Table 12.--Vocational rehabilitation-Expenditures from Federal, State,and local funds and from contributions, for years ended June 30, 1922and 1921, and by States, 1921-__------__.---_-_- ______-_ 401

Table 13.-Vocational rehabilitation-Classification of expenditures,covered by the Federal vocational rehabilitation act, from all fUnds,for the year ended June 30,1922-4__- _____-__-__-_______-____- 03

Table 14.-Vocational rehabilitation-Classification of expenditures notcovered by the Federal vocational rehabilitation act, for the year endedJune 80,1922--_----_ ---_--_--------_-

Table 15.-Vocational rehabilitation-Interest earned on Federal voca-tional rehabilitation funds deposited with State treasurers, for the yearended June 30. 1922--_------_-- 405

IX

x CONTENTS.

DIAGRAMS.PAt

I. Enrollment in federally aided schools: 1018 to 1922 - J_.-___-- ace page 9II. Matching the Federal dollar under the vocational education act--

expenditure of State and local money per dollar of Federalmoney expended: 1918 to 1922- I.

III. Expenditures from Federal, State, and local funds: 1918 to 1922-- 14IV. Percentage expended of Federal grants under the vocational edlu-

cation ,act: 1018 to 1922----------------..__-_-__-__-_---------- 15*'. Federal grants for the promotion of vocational education and

amount expended and unexpen(led, by years-------------1-----IVI. Percentage unexpended and expended of total Federal grants:

1918 to 1922 ---17VTII. Amount of Federal grants for agriculture, for trade, industry.

and home economics, and for teacher training, and amount ex-pended and unexpended, by years____________--____------- 19

VIII. Percentage unexpended and expended of Federal grants for agri-culture, for trade, industry, and home econoinics, and forteacher training, by years: 1918 to 1922 ------------------- 19

IX. Boys and girls In school and not in school: 1920 ------------ 22X. From school to work _-__-__-__---__7- - - 24XI. Number not in school in the ages 14, 15, 16, and 17 years and

number of all ages enrolled in federally aided part-time schools_ 26XII. State allotments of Federal grants in aid for'salaries of teachers

and supervisors of vocational agriculture, by years-__ Face page 31XIII. Agricultural schools federally aided, by years: 1918 to 1922---- 31XIV. Vocational pupils in agricultural schools federally aided, by

years: 1918 to 1922 -__________________--___-_-__-________ 33XV. Vocational teachers in agricultural schools federally aided, by

years: 1918 to 1922---------------------------------------- 33XVI. Enrollment in federally aided trade and industrial teacher-train-

ing classes : 1918 to1922-----7 ______ 44XVII. Enrollment in federally aided trade and industrial schools and

classes of all types: 1918 to1922--__-__-__________ 46XVIXI. Enrollment In federally aided evening trade and industrial

classes: 1918 to1922--__------------------------_ 47XIX. Enrollment in federally aided part-time trade and industrial, and

general continuation classes: 1918 to 1922_-------------- 49XX. Enrollment in federally aided all-day unit trade schools: 1918 to

1922------------------------------------------------------ 51XXI. Case procedure-vocational rehabilitation of persons disabled in

industry orotherwise--__________________ Face page 353

MAP.

Status of vocational rehabilitation, June 30, 19292--------_-_________ 344

LETTER OF TRANSMITTAL.

[FEDE.RAL BOARD FOR \OCATIONAL EDUCAT ION.

JFachi'10ton, I). O'., L)ecem.ber 1, 1922.TOIHE P{ESII)ET OF TIlE SENATE AND THE SPEAKER OF THLE HOUSE

OF REPRESENTATIVES OF THE SIXTY-SENIENTH1 CONGRES:By direction of the Federal Board for Vocational Education and

in accordance with the provision of the vocational education act ofFebruary 23, 1917, and the act providing for the vocational rehabili-tation of persons disabled in industry or otherwise of June 2, 1920,I have the honor to submit the following report.

Respectfully,JAMES J. DAVIS,

Chairmtn.HARRY L. FIDLER,

17Wee C'h1imnan.xi

P-h..

aI

DIRECTORJ. C. Wright

MP

ISECRETARY AND CHIEF Cl

E. Jos. AronoffJohn Cummings

II

-1

i I

Agricultural-Education ServiceC. H. Lane, Chief

I-

I

- ITrade r-nd I industrial Education Service

Frank Cushmn, Chief

I_- I

I

Home Economics Education ServiceMiss A. E. Richardson, Chief

I Ir- I

. j

I I I

V00AIrIONAL.

I

StandingCommittee

1%

,,onimerce

I

VOCATION-AL EDUCATION DIVISIONAdministering the act providing for the promotion

of vocational education.

r

CommercialEducation ServiceE. W. Barnhart,

Chief

Special a' ent.- -A Iion N I

., A+I. +.

-ISpecial agentpart-timeeducation1. S. Noall

No territoryassigned

tRegion No. IIRegion No. 111

24 StatesMiss A. S. Baylor

I

Re,'on No. IRegl on No. IV

24 StatesMiss G. Fisher

---l

I- -

-

Region No. INorth Atlantic

12 StatesClaude H.Anderson

Nort,'I Atlantic1 3 States

A. P. Williams

Region No. IIICentral12 States

J. A. Linke

IllinoisI ndianaI ovvaKansasKentuckyMichiganMinnesotaMissouriNebraskaNorth DakotaSouth (DakotaWisconsin

17 StatesH. 0. Sargent

I z aIdlesT. H. Quigley

i z :DtaTesC. F. Klinefelter

retail s6flingeducation

Miss 1. C. Bacon

North Atlantic13 States

G. A. McGarvey

ConnecticutDelawareMaineMarylandMassachusettsNew HampshireNew JerseyNew YorkOhioRhode IslandPennsylvaniaVermontWest Virginia

IllinoisI ndlana,I owaKansasKentuckyMichiganMinnesotiMissouriNebraskaNorth DakotaSouth DakotaWisconsin

I----Region No. IN,

Pacif icI 1 states".

H. A. Tiemann

ArizonaCaliforniaColoradoI claho,Ik A--+-,.,

ArizonaCaliforniaColoradoIdahoMontanaNevadaNew MexicoOregon -

UtahWashingtonWyoming

AlabamaArkansasDelawareFloridaGeorgiaKentuckyLouisianaMarylandMISSISSIF131MissourNorth CarolinaOklahomaSouth CarolinaTennesseeTexasVirginiaWest Virginia

ConnecticutDelawareMaineMarylandMassachusettsNew HampshireNew JerseyNew YorkOhioRhode IslandPennsylvaniaVermontWest Virginia

AlabamaArkansasFloridaGeorgiaLouisianaMississippiNorth CarolinaOklahomaSouth CarolinaTennesseeTexasVirginia

I

Regions as inAgriculturaland IndustrialEducationServices

Re Ions as inAlri culturaland IndustrialEducationServices

No territoryassigned

MaineI New Harnpshire

VermontMassachusettsConn eCtICUtRhode IslandNew YorkPennsylvaniaMarylandDelawareVirginiaNew Jersey

montanaNevadaNew MexicoOregonUtahWashingtonWyoming

L I

19581-22, (Face p. 1.)

CHAR7 OF 7HE FEDERAI BOARD roROROANIZA.rION EDUCA'"MON

FEDERAL BOARD FOR VOCATIONAL EDUCATIONJAMES J. DAVIS, Secretary of Labor, ChairmanHERBERT C. HOOVER, Secretary of Commerce Ex officioHENRY C. WALLACE, Secretary of Agriculture MembersJOHN J. TIGERT, Commissioner of Educationa I . r-.. "1% %, I . r- I 1-1 I r- F-1 a I 11 It - .11% A 4HARRY L. FIDLER, Laboi-, Vice Chairman.CALVIN F. McINTOSH, AgricultureEDWARD T, FRANKS, Manufacture and C

EDITOR AND STATISTICIANLERK

I

Region No. IISouthern12 States

P. D. Maltby

AlabamaArkansasFloridaGeorgiaLouisianaMississippiNorth CarolinaOklahomaSouth CarolinaT-ennesseeTexasVirginia

IC,,Dpecial agent

forgirls and women

Mrs. A. L. Burdick

No territoryassm,

IRegion No. IV

PacificI I States

H. M. Skidmore

--I

Special servicecolored schools

eglon, No. IIICentral

11) Q+.+.Mc

IRegion No. I

A*I--*.-Region No. 1:

Southern11? qtAtpq

ell $( ">. p fll-.,N , b,ew

ORGANIZATION CHART OF THE FEDERAL BOARD FOR VOCATIONAL EDUCATION

GENERAL SURVEY OF THE WORK OF THEFEDERAL BOARD.

In the present report to Congressa the Federal board gives a gen-eral survey of its work during the past five years. This period issufficiently extended to show real trends in the development ofVocational education under the national program set up in the vowa-tional edutcattion act of 1917. Moreover, in respect to the formila-tion of State plans the board has proposefi to the States that plansbe stuhmitted in the future on a five-year rather than a (ne-yearbasis, its heretofore, (covering in the first instance the period 1922to 1927. In a sense, therefore, the present report is quiinquennialrather than annual, covering the initial five-year period, 1917-1922,and marks the initiation of quinquennial programs in the severalStates.

J.Wl51.TIVE. REUUJIRMLENT8 UND)ER( WHICH THIEP Al)WAD OREV0TM TO

Under Section 18 of the vocational ediuction act of 1917 the Fed-cral Board for Vocational Edtieation is required to report to Con-gress annually on or bfore Deember 1 on the administration ofthle act, And to include in its report the reports malde by State hoardsott the administration of the act by the several States nrid on ex-"el)ditiure of miloney uinder the act in the States. Undler section 5 ofthe vocational rehabilitation act of 1920, providing for the vocationalrehabilitation of persons'disabled in industry oir otherwise and theirreturn to civil employment, the hoard is similuy required to reporttv Cong s, inelu(ing State reports to the board.For Vocational education in thO fields of agricultural, trade an(I

inulust'tial, home e.Coomife4, and commercial plrttuits stimmary de-scriptive reports of tivities and progress in the several States areprewnted in Seetion it, Part VI, 'and for vocational rehabilitstionin Section 11, Part XII. Tabulations, inCludling the statisticaland financial reso+ amde by States, art presnted in Sction II,Part VII , for vocAtional education, and in Section III Part VII,for Y00ationsl rehibilitAtion. On the administration of the twoacts under which it fnnction's \ho general report of the Federalboitrd is given in etkonJI and for the Several administrative serv-ices in SctionII,PIttI to IV, and Section I1I, Parts I and II.

1

REPORT FEDERAL BOARD FOR VOCATIONAL EDUCATION.

ADMINISThATIVE SERVICES OF TIE BOARD.

As shown in the accompanying chart, the administrative servicesof the board are organized in the following units:

Agricultural education service.Trade and industrial education service.Home-economics education service.Commercial education service.Vocational rehabilitation service.

REOItGANIZATION OF SERVICES IN TIE TEAR ENDED JUNE 80 1922t

In compliance with the provisions of the act approved August 9,1921, providing for the assembling of all Federal Government activiTties relating to ex-service men under a single administrative control

- in the newly established Veterans' Bureau, the Rehabilitation (So!-dier and Sailor) Division of the Federal Board was transferred tothe Veterans' Bureau on August 9, 1921. Following this transfer,the administrative services of the board were organized under adirector and five chiefs, one each for the services designated above.Changes involvedas a consequence of the transfer of the soldier re-habilitation work to the Veterans' Bureau have thus resulted inmaking the four coordinate services of the board operating under thevocational education act immediately responsible to the director,whereas formerly these services were immediately responsible to anassistant director for vocational education, Within these severalservices and within the service set up under the act providing forthe vocational rehabilitation of persons disabled in industry or other--wise, the continuity of administration has been perfectly maintained,being in no respect affected by the transfer of an administrative divi-Mon which had been from the beginning, except for the directorshipand certain joint services, administratively separate from the otherservices, maintaining separate files, operating under a separate bud-get, and at the time of the transfer occupy a separate building.In its fifth annual report to Congress on December 1, 1921 the

Federal board gave a Xcomlplete gaccount of its work under the act pro-viding vocational training for the war disabled up to the date oftr fer on August 9 of the fiscal year ending June 30, 192.,For more than three years the boa had given its est efforts to the

promotion of this great work of vocationally retraining our war dis-abled and returning them to re ativepuruit

nIn tt period

the board had placed in train er 11%OQ0, the nner in train-ing at the date of tr nsfer being jn round numi ers 89,006. It hadregistered over 400,Q cases, bn4had paeduK pn over 390,000 cas,determining eligibility fqor training. During thae moth of Julyt

2

BZORT VYXffLW JOfl -FO WATI0NAL WDUOATOW.

1921-th fLit iopth of the fisal year 1921-22, and the month ift-mediaely preceding t trufer of the work-46,128 men were en-tered in training, and this wa very close to the monthly averagenumber entering training for the preceding fiscal year (5,174). Ingeneral, men were being entered in training as fast as they werefound eligible for training and sufficiently recovered from their dis-abilities to undertake training. Pending cases included men stillunder medical care, men who for one reason or another did not electto take training, and a comparatively smnll number whose eligibilityfor training under the provisions of thre Federal act had not beendetermined.

L ADMINISTRATIVE POLICIES OF THE BOARP.

In general the administrative policies of the Federal board havebeen continued withoUt material modification during the year endedJune 80, 1922, which is the fifth full year of administrative experi-ence under the vocational -education act and the second full yearunder the vocational rehabilitation (civilian) act:In the field of vocational education the administrative policies of

the board were defined tentatively and published in the flrst bulle-tin issued by the bard in 1917, inso -far as these policies involvedinterpretation of the provisions of the vocational education act interms of concrete problems presented by administration of the act inthe several Statesq during the initial period of such administration.From year to year' as legislation in the several States, and the admin'-istrative developments involved in the promotion of vocational edui-cation in the public schools have presented new conditions, requir-ing new hlingS by the board to give full effect to the intentions ofCongress as expressed in the vocational education actj the board hasmade such rulings as occasion for them has arisen, and during thelast fiscal year ths ings have een assembled and incorporateddwith the Qriginl statement of policies issued in 1917.While thisoriginal statement of polci has bwn carfully revised

in detail and extended to embr*e every oial paronouent debyr the board during the five-year period,. the Wbad has found noccaliop to changeits original rulings in any material respect.No demand ha dAvelopqd in the tes for a change qf the board's

adiistrWaive intefpretitorw of the ecL The explanaiou oft'geperal acceptance by th Sta of the board's ruling isvry simple.No rungs by th board have been at any tme arbitrrily imposedupon the Stte& As formulated in the originl statement nd- 4ssuboq~enly 4eveloped and. w0dified, the e mdinitrativo policiw ofthebord rprt ic provisionstheI 'vocational educationact, a$ since this act has'been officially aept d by all of the States,

1981-22--

8

4 REPORT ?ZDER&L BOAR) FOR VOCAONAL ADUoAkrION.and has been thereby in effect made a part of the State laws, thepolicies defined -in the act have been legally established in the Statesindependently of Federal board rulings.In the interpretation of these provisions the States thehi§slV6s

have participated freely -so that; in a very real sense it is true thatthe administrative policies of the Federal board are in fact theadministrative policies and interpretations of the State boards andtheir administrative staffs acting in cooperation with one anotherand with the Federal board under the vocational education act.With careful regard for the limits prescribed by Congress, the effortof the Federal board has been to set up such administrative policiesas were most acceptable and advantageous to the'States, and such asthey themselves have favored and proposed.This policy of cooperating with the States in the formulation of

its administration rulings under the act is perhaps the most funda-mental policy set up by the board for its own guidance and pro-cedure. With respect to those discretionary powers specificallyreserved to it under the act, the board has consistently refused todictate arbitrarily to the States. In every detail of its rulings ithas, on the contrary, proceeded in full and open cooperation withState administrative agencies, giving consideration singly t whatwas conceived to be in the best interests.of the States themselves.At the same time, in so far as it has been able to do so, the boardhas contributed elements of guidance and leadership by promotingthe development of our national program for public-school voca-tional education consistently with the accepted principles of educa-tion in a democracy, which require that such education shall beadapted to develop vocational efficiency as one important factor ingood citizenship.

REPR NTATIVE OHARAOM OF ADMINBTItATIVE AGENCM.

A second fundamental policy set: up in- the vocational educationact, and generally adopted voluntarily under that act in the States,is in line with the best efforts which have bn made during thepast decade in the field of education in this country and in foreigncountries. Briefly stated, this lic is 'that public-school educa-tioxl shall be made a vital factr in te6 every-day affairs and inter-ests of the coithmiinities which provide financial support for sucheducation, and of thbe citizen taxspayrs and their familes, includingthe young and old of both esliing in these comiuiitie.Tinderthis policy education is not a thing apart, reserved for the coflpara-tively few who may be provided with meani and leisure for under-taking academic and fiiiversity training Wowevof great the educa-tional value of secondary school instruction formulated to meet the

E:POIT FEDLX BOARD IFOR VWATIONAXJ EDUOATION.

entrance requirem~ets of our colleges and universities:may be, suchinatbucwioR is only oneo sort of education, a'Rd it is not necessarily thesort of. education of gieatet valuee to those who do not ultimatelyenter our higher educational institutions. To be a vital factor in oursocial ilife' education must respond to the interests 6f every clas ofcitizens. Vocational education particularlymusti so far-as possible,respond to the interests of every vocational claw in the broad fieldof agriculture, industry, trade, commerce, and homemaking. It is,therefore, essential that these great classes shall be fairly repre-sented in the administrative agencies directing and promoting thedevelopment of public-school education.

Consistently with this fundamental principle of education, thevocational education act provided specifically for representation oflabor, agriculture, and manufactures in the membership of the Fed-eral board. Each of these broadly defined interests is in fact givendouble representation on the board, once through the Secretaries ofLabor, Agriculture, and Conumerce-ex officio members of theboard-and again through three'members appointed by the Presi-dent to represent labor, agriculture, and manufactures respectively.Education in its broadest aspects also is given representation throughmembership ex officio of the Commissioner of Education. This mem-bership is thus fairly devised to represent a wide range of practicalinterests of which public-school education, if it is to function ef-fctively in a democracy such as ours, must take full account

It is gratifying t6'note that the national pattern found in theFederal board membership. has been followed in many of the States,and that these several interests have been given from year to yearmore adequaterepresentation on local and State boards, official andadvisory, which are directing educational development in the Statesand local communities. These interests, although they are in some

respects special nd separate, are, of cours in no respect conflictingNosingle educational''initerest, either among those interests whichrelate' to the'advancement of science and art And of the higher tech-nical and professional training, or among those which relate to moreimmediately practical forms of education, can be affected unfavor-ably by the provision of adequate vocational training. in any line in

our' secondary schools, for those who have neither the means nor theleisure, add in many cases neither the special capacity nor the in-clination to pursue any selected line of academic training. As- thevocational requirements under our industrial system become more

divemsified, and at the same time more specialized and restricted,education itself must be correspondingly diversified, enriched, anddeveloped to supply Ithoselements of training and instruction whichare under modern conditions no longer provided in the wage-eqrningemployment themselves It is now geneally conceded that educa-

5

6 REPORT FEDERAL BOARD FOR VOCATIONAL EDUCATION4

tion is not made in any seas lew worth while by: bringing intoaccount these practical interests, or in any respect les really eiftcational in the highest conception of education. On the contrary,education 'in every phase of it has become in recent years more Vitland important precisely in proportion as these practical interestshave been brought into the account.

SOCIAL VALUES DETERMINE PUBLIC-SCHOOL VOCATIONAL TAINING.

A third fundamental policy of the board is one; which also isclearly implied in the provisions of the vocational (education acttinder which the board functions. It was cearzy the intention ofCongress that every vocational education activty promoted underthis art should be specifiwly vocational. Education which is notinspired with a specifically vocational purpose, however great thev1alle of shch education may be, is not brought under the purviewof the act. Equally it is true, however, that vocational trainingwhich is not essentially educational is properly a matter of privaterather than of public concern. The Federal board, as an agency forpromoting public-school vocational education, has insisted that sucheducation shall Pot degenerate into a narrow and socially valuelessjob-training process where educational values are subordinated toprivate exploitations. The clearly expressed and implied intentionof the vocational education act is that such educatio shall b con-sistently developed from the social point ofview and shall regardsingly the social welfare. Under this conception of vocational e4uca-tion it becomeswnecessary clearly to defne the functions of our publicschool system in providing trainingwhichhas vo ationl value. Ingeneral it may be said th tis the function of the school to providethat vocational tainin and instruction which ca not be or is notadvantageously: and Eadequately provided in the shop or ofce thefarm or in the home, independently of the school. In proportion asthe old apprenticeship system of training hs fall out of joint withthe industrial order, and in proportion a our iadustn have becomeincapable of providing adequae apprenti p training stwh aswill insure a-high order of sk ill and a s c develop It ofvocational efficiency-nd indirectly of industria fcie-iythepab-lle school must assume responsibility for providig isuch training infull operation with employer and loyee. This is merely an ex-tension into the field of education of th principle of speialition offunction which is characteris of :our economic and oial develop-ment generally. In agriture, alo, the public l hap largetask in bringing to the farmerboyadtottliadulhtfrr tof scientific resch in the 6.1 of agu ue ad u ging prw-tiezi vocational interpretation to these results, F in thv fl~d of

IMPORT FEDERAL BOARD FOR VOCATIONAL EDUOATION.

home making the public school must assume responsibilities of it

socially vital chOrater in- bringing to the home makers, present andprospctivethe results of scientific research in the field of child care,health, hygiene, and other home-making activities.Thus public interest has inspired, and must in the future inspire,

every development of vocational education under the vocational edu-etion act. The value of public-shool vocational education, as ofall publicechool education, must be measured not in terms of privategAMns and profits but always in torms of present and of deferredpublic welfare-in terms of citizenhip in its broadest aspects.

VOCATIONAL ENAILITWO SERVICM8.

As regards the rehabilitation of persons disabled in industry orotherwise, in so far as it is promoted under the act of 1920, the singlepolicy of the board is that it be specifically vocational. In the caseof a person disabled, the purpose of vocational training, if such train-ing is provided, must be the rendering of that person fit for re-munerative employment. In individual cases, however, the mostexcellent vocational tmraning may not do this, and in eyery ease thetraining program must be adapted to the individual need andcapacity tinder the handicap of the given disability.

Vocational rehabilitation does not, in fact, necessrly involve inindividual cams systematic vocational training of any sort. Fre-quently the mosd effectIve rehabilitation serio is finding an em-ployment adapted to the disabled personal capacity, and one in whichhis disability -will not be a handicap, and actually establishing himin that employment under safeguards and with provision for suchfollow-up work to insre sucs a may be required in the givencase. -Many other different sorts of special services may be involved.Rehabilitation is thugs in every instance an individual problem, in-volving in some but not all cases systematic vocational training, andin nearly every case a multitude of other service to render the personfit for and to establish him in remunerative employment.

EXTENSION OF PUDIJO-OHOOL FUNIONS.

These larger aspects of educational policy as defined in the voca-tional education act and in the act providing for the vocationalrehabilitation of persons disabled in industry or otherwise, implyan extension of the scope of public-school education to embrace thevocational interests of every class of our citizenship-the adult aswell as the adolescent, Arid fuiAlly, in so far is the school can renderservice the vocatinally disabled as well asthe vocationally fit. Dur-ing its five yiats of adminitiv experiece each year the Federalboard has feltM n intasing pressure originating in the States to

7

REPORT FEDERAL BOARD FOR VOCATIONAL, EDUCATION.

promote and direct this extension of Mcondary public-school func-tions, The demand on the part of our adult population for educa-tional service is, of course, not restricted to the field "of voratioialtraining anld instruction, but since the vocational interest is for thoadult necessarily a principal rand absorbing interest, it is largelyeffective in determining the character of the demand for adult edu-cation in the States. Naturally such education, if it is adsped tothe interests of adults, must be in a large measure vocational. Bymaking special. provision for the promotion of part-time and'eveningschool vocational instruction the vocational education act anticipatedthis demand. This act conceives public-school vocational educationto embrace (1) education of the youth in all-day schools, and for d

period after leaving these schools (2) in part-time class, andfinally (3) vocational instruction in evening and part-time classesfor pupils of all ages.

COOPMRATION WITH TH9 STATES.

Under the two acts definingAthe functions of the Federal boardcooperative activities in the field of vocational education and re-habilitation are indicated which imply the development of adminis'trative machinery in ceah of the 48 States. Administrative controlof these activities is centered for each State in the State board forvocational education, which is the administrative agency represent-ing the State in its cooperation with the Federal Government. Offi-cial contact with the States is entirely through the State boards,which prepare State plans-under which reimbursements out ofFederal money allotted to6 the SWtA are authoriZed. These plansare submitted to the Federal board for approval as being consistentwith the provisions of-the Federal acts appropriating money forallotment each year to the States, and hen submitted and approveda State plan becomes virtually a contract of cooperation between theFederal Government and the State. The Federal board does notparticipate in the administration of the plan within any State.Each year State vouchers covering expenditure of Federal moneywithin the State are examined'and Stite accounts audited in accord-ance with the provisions of the Federal acts, and the repot madeby the State boards to the Federal board are compiled and trns-mitted to Congress.

ADM!NI TIV SYSTS BeI' 11? uxD5XTHroE rd oRAL ACTS.

Each of the 48 States has been promoting vocationml educationunder State playn submitted ad approved a lly for a period offive yearn, and a brief Wrevew of exporieo uder the oca-tional education ct of 1917, it is bolieed, will be of interest to Con-gress.

8

DULAM L-E wmt i fedwGf oid" chOOe: 1918 to 1NI-- TOTAL ENROLLM0NT YEARLY INCREASE

plo*o ooaoooo apoooo pooI o oo o00 000

/64,D,4^"I"4J*..47

- I -~~~~I Iam - _ _..--

N; -.~f _r_ _ _ _ _ _ _ _ _ _

I

7Q 16*J5s87qJ1I-I-

:£NROLLMENT BY SEc'V LI.I FEMA-LE

. ______ I.0--00'O& 00 - /00 000 20 000 t00 000

AQ^ .C:V r0A. _OM ECONOMICS

^ 8 ^*~~~~~~~~~~'0 000_o_ 00 0 204i 0{

-~ *tiI. Iw<S__ ZZ@OJJ*4J-/*/ I; - 7ES4

.IEOLLLUMNBY CHARCTYEOEFSHTOuCOTL O

f . sX ' .........g'_t000 ....' "..o 000 too 00gag...........,lC00, 0 0

AO#CLTRA- , ,,, ,9*a0' :~OS~tA :O' ECONOw. i.C

: £tENROLLlMENT: SYTYPEOF SCHOOL

0 _ 8 ~/000 *0000 J000 e 0oO000

I I

a

/74

:3&1422/33,635

I ,U * I.I19581-22. (Face P. 9.)

.****

is*o

I..

I.,.

V4W

I.-

iD*lgof

AI.''el

'A&

W..

je,.

AtlJ

I*21'_&

J,04*

'4-SU4, ~

f"

Diagram I.--Enrollment in federally aided schools: 1918 to 1922.

BIAEPT0 FanDgRL BOARD FOR VOOATIONAL WUADUATOW.

This- act proposed an agreement or contract fr acceptance by theStates ii;the prpm4>tion and suppokt of public-school vocationaleducation. Each of the 48 States within a few months after the actbecame effective accepted the proposal, and, having entered intoagreement with the Federal Government, proceeded to develop itsState program under the Asuraniie of continuing and increasingannual grants from year to year. In the several years the numberof State directors and supervisors for vocational education employedunder control of the State boards has increased from 139 reported in1917-18 to 226 for the year ended June 30, 1922.In the local communities within the States programs of vocational

instruction in the public schools have been set up also under theassurance of Federal grants in aid for reimbursement on account ofsalaries paid to vocational teachers. From year to year the numberof schools of all type organized uder approved State plans has in-creased from 1,741 in 1917-18 to 2,089, to 3,150, to 3,877, and to 4,945in 1922.Reimbursements on account of salaries have been paid each year

to an increasing number of vocational teachers, the number of teach-ers in federally aided schools increasing from 5,257 in 1917-18 to6,252, to 7,669, to 10,066, and in the last year to 12,280.Pupils enrolled in vocational courses in the federally aided schools

have increased in the same period from 164,186 to 194,895, to 265,058,to 324,247, and to 475,828. The increase of approximately 150,000in enrollment in 1922, as compared with 1921, is nearly equal to thetotal enrollment reported for 1918. It is more than double the in-crease reported for any preceding year, and is in fact equal nearly tothe total increase in enrollment in the three years from 1918 to 1921.The progressively accelerating growth in enrollment in schools andclasses receiving joint reimbursements out of Federal, State, andlocal money and brought under State plans systematically formulatedto insure compliance with accepted standards in vocational educa-tion is the best and most conclusive sort of evidence that the Stateshave entered whole-heartedly into cooperation with the Federal Gov-ernment. In round numbers, the annual increases in enrollment havebeen 30,000 in 1919 over 1918; 70,000 in 1920 over 1919; 59,000 in1921 over 1920; and, as noted above, 150,000 in 1922 over 1921.In addition, Federal grants have been distributed by State boards

to teacher-training institutions, the number of such institutions re-ported for each year respctively being 94, 144, 136, _15, and 171.In thee institutions the number of teachers of vocational teacher-training course has increased from 524 to 8, to 1,082, to 1,143, andto 1,125 and the number of pupils enrolled in them courses-prospec-tive secondary public-Whool vocational teachers-has increased from

is

10 REPCBT FEDERAL BOARD FOR VOCATIONAL DUOATItON.

6,589, to 7,864, to 12,456, to- 16,824, and to 18,819. Summary totalsfor enrollment in federally-aided whools are given in Table 1, andare shown also in the accompanying graph.

TABLE 1.--Er&rollnment in tederally aided echoois (qatsei of teacher*hist8tutIon), by seav, character of instruction, and tope of school,;for eers^endfg June S0, 1918 to 1922.

TOTAL,-1BPDVING, PART-TIME. AND ALL-DAY SCHOOLS.

Sex and y'a.

1922.......................1.^.,...................................

1919 ....................1918.....................Male:

190.................................10 ......................... ..................... ................

.9t.............. ....................

.9...............................Female:1921...................... ............1921. ;

.......................................,....1918 . . ................

Enrollment.

Total.

476, =3M, 917

1164,1

Apleul-IlV.

60,23043j31,301

1 19,3383 15,453

ade

dumtfal.

130973

",737''1

765" 117,98

HomeGeeaomlcs

118,7060,319648,93839,414

0,799

Geeneal -osatlus-time.d

166,911119,85798,082(8,)8(3)

- - a - I f--l

288,92712, 306xv,si118,911

218,50131,941101,1374,544,l41

67,27840,66920,35116,o13,,01

2,7u1,no1,534

1, 28

11,86 80

93,W1i1%"910,

$ gel1

is.......... ...

14729

118,89"83,39048,9

301,084

50,11163 35F7"F.324

(8)

80,30440,2323,Z4

(')

EVE ~JU3 SCHOOLS.

1922........ b..,..,............. 133,SU1, Wn 47 * , o . ....

.............................. 8 1 is I' W 1, )30..........

....... ,I,...................... 122 33) 24, . ....

1 919............. ,17m 43,48 22,.1 .

1918 + 6,0 ( ,33 2,3,,00 , S

PART-lIME SCHOOLS.

. .,. .. .. ... 8,SU' 5,942 33,106 23,806 185,0111 . I ...... 0,9. 1,4W0 w0,Ws 8,s 119,0

1 9. . 174 f (' if 19 7,3 96,<1919. T ,i,,I 4,278770.49641918~~~~~~~~.... , , 7 0, 45,WS ) 70)_toll....... ........... ..........................,

ALL-DAT SCHOOLS.

...... . ........ tt................. $1, *, 2 W .. ....

1. ,f!F............ ........................ r 2b w 22, Ml ....

.......-..,...,..,:21^,,,,234 14,07 .......

1919 . ..... .. . I.. .. .. ! ........ 18,06 12i 45 ........... 1,W

lUJ *** ...... ..... i ; W 43 .... ..

.~ ~ ~ ~ ~ a-_.. :A..- m__

I - s b flul,4486; a plnult ad 288;bOS&0& P ebols106.

4S* rx

ginIiSJA

- - - l --- l l -

9.869604064

Table: Table 1.--Enrollment in federally aided schools (exclusive of teacher-training institutions), by sex, character of instruction, and type of school, for years ending June 30, 1918 to 1922.

460406968.9

RRPORT FEDERAL BOARD FOR VOCATIONAL EDUCATION.

Each year the States have reported expenditures of State andlocal money greatly in exce of the amount required under theFederal act to match the Federal grant in aid " for the same pur-pose." As reported for 1922 the total expenditure of Federal, State,and local money under the vocational edunction act amounted to$4,020,306.85 for vocational agricultural education, the amount ofFederal reimbursement being $1,436,397.89 and the anbunt of Stateand local money matched against this reimbursement $2,584,-908.96, or approximately double the Federal ant. For vocationaltrade and industrial education, exclusive of part-time continuationschool work, the corresponding figures were: Total expenditure,$3,846,779.55; Federal reimbursement, $785,270.03; expenditure ofState and local money, $3,061,509.52, or nearly four times the Fed-eral grant. For home-economics education the corresponding fig-uires are: Total expenditure, $2,116,306.06; Federal reimbursement,$246,628.97; expenditure of State and local money, $1,869,677.09, ormore than seven times the Federal grant. For part-time continuationschools the figures are, respectively, $2,570,902.11, $386,749.69, and$2,184,152.42, nearly $6 of State and local money being matchedagainst $1 of Federal reimbursement; and for vocational teachertraining, $2,216,848.08, $1,000,523.67, and $1,215,324.41. In 1922 atotal of $14,770,142.65 was expended in the States under State plansas )rovided in the vocational education act. Of this amount, $3,854,-670.25 represented Federal grants; $4,514,148.04 was State, and$6,401,424.36 was local money matched against the Federal grants-nearly $3 being matched against each Federal dollar in the aggre-gate expenditure under the act.Summary totals of expenditures in the past five years of Federal,

State, and local money under the vocational education act are ginenDIAGRAM IL-Matching the Federal dollar under the vocational education act-Ewpenditure of State and local moncy per (1ollar of Federal mooney expended:19.18 to 1922.

YEAR 3$1.00 $2.00 *.00

1918 $2.60

1919 $2.17

1920 $2.45

1921 $2.80 - --

1922 $2_83

in Table 2. Under the act if a Federal dollar is used in a State itmust be matched with a dollar of State or local money expended for

11

Diagram II.--Matching the Federal dollar under the vocational education act--Expenditure of State and local money per dollar of Federal money expended: 1918 to 1922.

12 REPORT FADESAL BOARD FOX VOCATIONAL EDUCATION6

the same purpose. The States are, of course, free not to accept theFederal grant in whole or in any proportion for all purposes orfor any particular purpose; they are' free, having accepted the grantfor any purpose, to restrict expenditure, of State and local money toan amount equal in combination to the Federal grant for the samepurpose. Being free to curtail and avoid expenditures of Stat andlocal money in any year, for aly or for all purposes designated inthe act, the States have chosen rather year after year to accept theFederal dollar and match it, not once only, but two or three, and insome cases seven or more times over.

TAIILx 2.-Expabditur., of Federal, State, and Iowi onmey under the ivoce-tional epiucaion act, for years ended June 30, 191.8 to 192.EXPENDITUUZS JORALL ?YPE8 OF VOCATIONAL SCHOOLS, NOT INCLUDING TEACUER-TRAINING INSTITUTIONS.

1. ~~~~~~~~Amountof expenditures. Poer"ntage OfepndtmClaifeatonofexpenditure.1-

Total.1922 ~~~~~~~~~~~~~~~~~~~19211920 1919 1918 1922 g = 190 11

TOW................................112,54294.57 1 10,507,197-90 16,888,501.763 53,970,07.12 12,610,92.71 10100.1000D000 100.0 100.0F=F edwalm dfalohe............ ...... 2,85,0458 2,,391,,088.94 1,745,299.28 1,135,823.79 638,430.47 22.7 ~22.8 25.3 J28.6 245FrmStassmney. ........3,594,285.95 1,22, 28.92i 2,008,305.44 1,168,405..31 833,400.06 28.6! 20.7 20.2 29.4 31.9

From losadmcey..................... 106,962.04 4,99,280.4' 3,134,807.,04 1,68,378.02 1,138,997.81, 48.8 47.5 45 420 48

Aplcua~~~~rnalaeb~~~~oola.4,020,~~~~306.85 39,082 2,728.06 1,413,938.49 739,933.27 190.0 100.0 100.0 100.0 100.00wsebols.......................... 4352,393.39 31,192,13.7 82,888.2961278From Fedffalmocey................ 1 78 ,12111 8,S 9 - O2867.13 273,282.06 35.71 35.1 36.5 37.4 36.-9

FioinStaft.money.----:............ , a,032.32 968,674. 1G. 678,824.43 39982.80! 220D,71.8 25.81 2.51 28.1i3 29.8From localmmey----------------- 1,548,876.84 ,232,22.88 868,575.34 4,276.56 24,937.21 3& 5 38.3 35.6 34.3 33.2

Tn'rde M.eIndulstli asehoo~s..............: 3,846,779.55 3,336,21&3.0 2,408,919.48 1.,628,327.02 1,180,039.06 100.0 j100.0$ 100.01 100.0 100.0

Fmm Petw*amoney............85,(240:31 6OM,821.79 509,38.27 426,192.84 252,989.54 20.4 20.5:I 21.11 25.2 26.3Prunow smimwey............1....I,2,2.11074,1I0.48! 786587.9W2 536,71856 402,045.90 29.2 32.3$1 32.7 33.0!i 38.236,485.211,576,336.2 1,112,960.20 05,*1.62 53,53.2 50.3 47.2!1 46.2 40.9 44.9

TI e~~~kwscools................ 2 U8,305.06 1, 822,347. 97 1,064,4890.0 5&4, 9&42 334,548.49 100.0 100.0 100.0 100.0 j_100.0

Fr~i O&UPo aMaeY......... 240,628.97 192,38.21 155,788.24 115,952.01 57,773,8 11.7 1-1 4. 209 17.3

Frun St&WmameY.668...............O,3W2.76 5,326-04' 329,633.53 155,536.88 114,790.09 31.6 32.7k 31.2 28.1 34.3Pr= lomlmcaney................. 1 201,294.33 1,64,634 72 589,087.289 282,706.53 161,9W398 56. 56.8 54.0 51.0 43.Z4

Partims IMuSuoamtiuatumc hools.......... 570,902.11 !1,9OM,543.42 987,807.17 374,148.19' 347,399.89 100.0 100-01 100.0 100.0 100.0

Frmedwmwe...................... 386I74-00 320,748.77 190,259.48 64,900. 1 54,435.010 15.0 1. 1.3 17.4 157FrmSwaemmey....................6M"56, 484,0OM.24 213',279.56 74,187.07 96,942.49W 29.7 24.8 I21.61 19.8 27.6FrololmW........................ 1,4213W.86 1,150,126.41 584,268.13 M.49.31 ! 197,022.37 5.3 58.8 5 '1 W 56.7

EXPENDITURES FOR TEACHER-TRAINING INSTITUTIONS.

TOtW.......................2,215,848.08From FedeWa mociey .................100,523. 67From StateMamey.----------------919,862.00From local money.................... 295,462.32

2,111,165.28I96,505.93 1951,671.80

192,987.55

1,8646,002.0873-1,202.55681,979.32253,479.21

981,109.34 408,829.56 100.0 100.0 100.0

184,96.82

181,168.0742,70&6.7

45.241..513.3 1

1M00.045.8 44.4 43.2

45.1 402I 40.8

9.1 15.4 1 105.04415,702.78

-. I'

100.0

0AI

04

~Iti

0

0

45.244.310.4

9.869604064

Table: Table 2.--Expenditures of Federal, State, and local money under the vocational education act, for years ended June 30, 1918 to 1922.

460406968.9

TABLE 2.-Expenditure of Fakral, State. and local money under the vocational eduaticm act, for year. ended June w, I918 to 192.5-Continued.EXPENDITURE8 FOR TEACHER-TRAINING INSTITUTIONS-Continued.

Cbmwificzton of expenditure.

Tmaiing tabharx of agratric---------

Vry Paderal anmey......................

From d ade onduerWsbet.............................

nFro la k ey ................................. ................Tmininlg tam-ara of trade or industrial subjects.

tim F &eu ,nw . ..............................

Pr loa m my..............................

TV*AFimg.t1 atof hcme ew omics...........-.-...

feiv_ 10m -. ;.... ...---------...................--..--Pram Smsw.ow.. ..

imai--- ----n-- -- -- -- -

Ammo

19X22 19'21

$6,002.90

3;, CW. 25304,180 729935.

700,147.38

int of expenditures.

1930 1919

$703,855.12 1336,580. 32 306,895.47I I~~~~~~~~~~~~3-4,2S.08324,OM49,611.56

637,112.75

2W,83. 31X32,013.273,731.7

460, 6-4.6

131,PM4.2126,27.7344,7837.54

262,07. 47

s I

1918 1 1922I--

,;j 121,2410 100 O

56, 57

53,03.21,11,5732

S1,785.0

46.041.312.7

100.0

'ercte of expenditure.

1921

100.0

48.846.2

7.0

100.0

.~~ ~ ~

im :~'1919 1918

0. 100coo.0 na0.46.1 j41.7 i13.2

IOQ.0

42.,

41.115.9

100.0

43.79.5

10.0334,14 3 ! 304, Ift 10 2125664.66116,26..43 OM 81 46 3 46 3 46.2 44.4 .47314 ! 3132L8 210,190.28 III,257136,2l .67 4.2 a 0 42. 42.5 44.3so,SOAi 37,615.3 £3,40.075 34,4.47' 63.862 8 5 &7 10.9 13 8.0

77, OM.8s 750,197-41 0,427.07 412,640 20_SW 0 1____ _____U7,8.721,32,4 3'.IA4L SV

33,0K75314 30.30W106,70.1 '6

253,005219,796 .1

12kOw668176,018 0D1,m7328373,514.77

00,313 48.338.4*8.3

44.4

41.514.1

.3X 7 ;i21.0 1

7

17 8

.4&44.7119

ids

).SOR.U

DIAGRAM IHI.-Expenditures from Fcderal. State. and 14oa funds: 1918 to 1922.

Expenditures from State (E) and local (=) funds

S2,0O00,0 $4,00O,000 S6000,000 $8,000,000 -S10.000,0o0aomo I szodooo SIsCw.000 1$7.000.000 1 19.000.000 1 S1t.000.000

4

OI

h

q

C9

rvm

:011w

tt

Diagram III.--Expenditures from Federal, State, and local funds: 1918 to 1922.

RWPOBT FEDERAL BOARD FOR VOCATIONAL EDUOATION. 15

,q,#yerr to yeor by free acceptance on the part of the Statestho amount of expenditures under the act has increased from $3,019,-709$t,4i 1918, to $4,951,776.46, to $8,535,163.84, to $12,618,363.18,z4izi the last year, as noted above, to $14,770,142.66. In this in-cr"ag gg4regate the proportion of State and local money-over-nutching the Federal grants each year in excess of the requirementsof the acthas increasml from year to year, indicating that the

DIAGRAM IV.-Percentwge expended of Federal grantscation aot: 1918 to 1922.

under thevocatiotnal edu-

IF IfIt .I

d 4*

rIEtWI;N iS

kIttso .,im; ,.1 f..... ES

gg H1E gt.;r _ t ZrME M E Et i ifL ! = !37

1-q ~ -W

;tEFstZ..g .... . .. j 1Firl1zX11Xr.:%tt X |~~~~. tbfp1 t2 11-fif~t

: w C m =ffiSgsik.... ... ..t~ .t A4ti~.^.

~~~~~~~~"H A' . -444b twm!.!,, _ , ieMI Ft' 1.IS

O4~ 9 L.. .e 'g . .... ...iI *r.. - |1r 1. fr 71 iyIP330~~~~~~~f7~ t|- U$ Xv }#-R EW@Er^ ~ ~ ~~~c@9. t.itttitJ em-ii ti ~t F2i"{-

80FrE~ut; 1919v 1920 192.Hz- L-2 1923 1924~if

I

a

2

4

1

1918 1919 Im 1921 1922 1923 1924,

Diagram IV.--Percentage expended of Federal grants under the vocational education act: 1918 to 1922.

16 REPORT FEDERAL BOARD FOR VOOAT¶OXAL EDUCATON*.

States hare found cooperation under the act to be of advantageto ttem.As additional evidence that the States are finding cooperation

under the act advantageous it may be noted that each year, as shownin the acompanying graph, the States have more completely utilizedthe Federal grants for reimbursement on account of salaries in thefields of agriculture, trade or industrial, and home-economices edu-cation. In 1918, the initial year of organization under the act, theStates expended approximately one-half of the Federal money avail-able in the allotments for that year. From year to year the propor-tion expended of these allotments has increased from 49.7 per centin 1918 to 67.6, to 81.1, to 92.4, and to 93.6 per cent in 1922. Underconscientious State supervision to maintain accepted standards inlocal communities it is improbable that the proportion expended ofthe Federal allotments shall increase much above the present pro-portion. Money turned back into the Federal Treasury each yearis evidence of strict compliance on the part of the States with therequirements of State plans proposed, approved in advance by theFederal board, and set up under the act and administered by Stateagencies.

These expenditures on account of salaries of teaches and super-visors and on account of maintenance of vocational teacher trainingin the States necessarily involve other large expenditures of Stateand local money which are not reported or matched against theFederal grants-such as expenditures for buildings and equipmt.

It will be apparent from the summary figures given above, andfrom the corresponding figures shown in detail by States in the tabu-lations from the statistical and financial reports, that Admintrtive machinery of very considerable dimensions has been built up 'Ieach of the 48 States during the past five years, and that this ma-chinery is in the process of constant adjustment and improvement tomeet the increasng requirements of progresvly expanding programs of Federal and State cooperation. In every State response tothe proposal of cooperation under a definite program for the promo-tion of vocational education has been liberal and effective in rulingthe intentions of songs as pressed in the.at of 1917.As regards the cooperation set up under the act providing for the

promotion of vocational rehabilitation of persons led in-dustry or otherwise in the two years of experience under this act theresponse on the part of the State has been equally gratifying. In34 States administrative machinery has been and is being built uptinder the act, and in other StWt legislation i in process of enact-ment which will enable them to fulfill the require t of the rha-bilitation program as defined by Conwes. Within the Stata whichhave aeepted the act to date arrangements for cooperation of the

DIm&m V.-Federal guts for the promatkrn of Loat*mA eduwatiou and amount expended aod(t vnexpcnded'by y/eOtr$.Expanded = Unexpended Available

YW ndmi Amount of S00.000 I.O0.C000 110020002000.0 0 =,OC.0&0 3.000X.0C 3.5C'.00J 4.000.0CG0 -.50,000 S.00,000so5C.5C0 6.o000.0006500000 7,00000June 30 rederel Z50.0 I 750000 50L0 75C.000 2250.000 2-50X0O 13225!. i375.000 i4 50.00 |475.000 5250030 j5750,000 16250.000 6.750.000 7Z50.000

1918 .*

1911 2.307,465.44 5 $' 7_.s3I1920 1,,9:#.Oi. U .HEE

1921 3,632t177.37 * *-* * *

.X _i i I 1z~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~1922 '20.93.7

19;23 4615,1582_'i1924 5,190.4402I s1925 6,168,718.08

1926 7.154,901.51Annl=, I* . I2 ( I I7.154,90i.51 _

I)111A.&M VL.-PermPtcias utmpe d md expended of total Federal grant: 1918 to 1922.

= Unexpended _ Expended

0

04

i

to

0

P.:0

OsQ

-.1

3

I.-.z

Diagram V.--Federal grants for the promotion of vocational education and amount expended and unexpended by years.

Diagram VI.--Percentage unexpended and expended of total Federal grants: 1918 to 1922.

18 REPORT FEDERAL BOARD FOR- VOCATIONAL EDUOATTON.

State boards with compensation and other State agencies hare beenpllt on a practical working basis, and the experience of these Statesis amply justifying the Federal program of cooperation with theStates for the promotion of this socially and economically importantundertaking. In this field, as in the field of vocational education, theStates have heen assistedd in the development of working programson a basic, of national welfare. UInder the Federal act State adminis-tratire agencies for rehabilitation and compensation have beenbrought into close association and fellowship from State to State,and thus the embarrassments of separation and isolated procedurewhich might tend to hinder State administrative systems have bee"iii large nwasure avoided. For effective development of a nationalprogram in this field especially cooperation and mutual understand-ing among the States is absolutely esential. Persons disabled in oneState are found resident in other Sates, s that differences in Statelaws and in interpretations of those laws frequently developp pro-ceduir wbhib require Careful adustment on an equitable basis. Co-operaosc under the Federal act has provided precisely the mediumof ad tWA (A a bnsis of mutual understanding that is essntial.

In thi bWd alo, as shown in' the reports made )y States, State.experditunr A greatly exceding in amnogt the Federal grantin aid, tan ti benefits derived from the cooaion of the Federal(4overaaat with the States are being found t. be out of all pro-portioa to te amount of the Federal grant. Tb. value of thes bene-fits is in fa 'qwkeindependent of the amount oflthe Federal grant.Primarily it is an intangible value of good wIll.a administrativeadjustiet fromx KState to State in the buuiww#t vocational rehabilitation of the disbled under a national swat working program.The advantags of this arrangement will bect apprent to one whoconsiders the difficultieswhich would erail b: encountered 'inperfecting 48 separate -State programs and s a ing the pro-grams to one ancftCMr without any nationalf of intentateadministrative guidance or cooperstios. In ithpi .nf participation of the Federal Governmet in thlis ww* e temust tup working agrement with each of the 47 ot with whichit must on occssion be brought into cootact. It i oivale tht48 programs for the vocational rohabilitat ofpmna disabledin industry or otherwise could be deveoped itdepedentyunderuncoordinated S.tate laws so as to insure equity from Stte to State,and a perfect understanding in the am.ption by the several Statesof their financial and social responsibiliti". Assuming that eachState developed a well-rounded and adequate program independentlyf other Stats, the nted for interstate djustment of State programs

would still be unavoidable, and it is believed that Federal participa-

DIAm Vn.-Auiomit of Federal granted for s ricultiue, for trade, industry, and home economics, and for teacher training, and almostexpended and uneexpe~ded, by years.I

DIAGRGM VIII.-Pereentage unexpended and expended of Federal. grant# for agriculture, for trade, industry, and home eCOnomic, anafor teacher tra4uiig, by years: 1918 to 19k.

ED Une expended _ ExpendedYea Agriculture Trade. Industry and Home EconomicsherTaing____340 I20 0 20 40 6i0 0E_0 20 70a o 80 60 40 20 o Z° Z @ so.%n SO L 30 to , to 1 301o I50 o I 90 30 1 _o , 10 ! 30 S5 f 70 1, 90 50 ! :-0 ! :0, roD 1 30. ! so 1 70 1 90I~~~~~~~~~~~~ ~ ~~,, I I-

Isi11919

1920

1921

lS22

500%

I~z

Is IiI 'I sII I

I'1 '

I I, 6?1%

I 6601.#1XIG[EhI

I 1

I

0

00

hd.

8

9

F- v_

F_ as.'.- __ - -

s _____E___

I

1 T--T , T1 I- T I I - I - - I - -I,- - -- -

IL=_% ;_I SA-4...

IJ

I.

Diagram VII.--Amount of Federal grants for agriculture, for trade, industry, and home economics, and for teacher training, and amount expended and unexpended, by years.

Diagram VIII.--Percentage unexpended and expended of Federal grants for agriculture, for trade, industry, and home economics, and for teacher training, by years: 1918 to 1922.

REPORT FEDERAI BOARD FOR VOCATIONAL PUOSTION.

tion, as a cooperating agency representing the Nation as a whole,gives precisely the means required to facilita4 the rapid doyelopmentand smooth working of State programs.

PLANS FOR TME F`UTUEP,

In its five years of administrative experience th Federal boardhas functioned principally as an administrative agency for bringingthe several State' administrations into close association with oneanother, to the end that each State may benefit from the experienceof other States and may, out of its own experience, contribute toadvancement in other States. Any aiequate account of plans forthe immediate future must take account of present conditions andplans in each of the several States. Apart from these working plansas developed in the States the Federal board can have no separateprogram for the future. Its program necessarily finds expressionfrom year to year in the plans prepared in and submitted by theseveral States. It is the function of the Federal board to work withthe States collectively and singly for the progressive improvementof their plans, but only in so far as the States themselves proposeor accept and write into their plans provision for the future, cana national program be perfected. The Federal board has neverpresumed to exercise any sort of administrative corol within theStates Such control is entirely an affair of State legislation. Ac-ceptance of the Federal act does not confer any administrative au-thority upon agents of the Federal board within State jurisdictions.Federal agents may observe and report upon administration withinthe States in so far as this administration involves expenditure ofFederal money, and the Federal board is required to determine thatsuch expenditures have been made under State control in conformitywith the provisions of and for the purposes contemplated by theFederal acts. Under these conditions the national programs forvodAtional education and vocational rehabilitation are the programsformulated by Congress in the Federal acts themselves, being in norespect prescribed by the Federal board. These programs areproerly xpree in the Federal acts in ver general terms, Essen-tiaily the national program for vocationileducation is that suche(lUCation shall be provided under public supeision and control in

the States and that it shall be promote and improved in accordancewith the highest ideals of education for cit ia. -In the field ofvocational rehabilitation of the disabled, a1ls, the national programis expressed in very general terms. Essentially the Federal Gov-ernment's participation in this field represents a national effort toavoid the appalling and generally avoidable economic waste of voca-tional disability as a result of accident, disease, or congenital defect.It is not essential or even desirable that plans for the future in this

so

IMPORT FED&I"LBOARD FOR VOCATIONAL EDUCATION.

work shall be uniform from State to State, and it would certainly beunwise for the Federal Government to undertake to impose upon theStates any single scheme ofprocedure. It is esential'only that plansin the States shall be in accord with national interest and that thework shall be initiated and promoted under State control in responseto the needs of each State.Whilethe board feels that much has been accomplished during the

five yeat pas under the vocational education act it feels at thesame time tha what has been achieved is considered only in corn-parison with cnditions prior to the passage of the Federal act. Itis impressed th the dimensions of the problems confronting edu-cational authirii in the States in every line of vocational educa-tion. These problems are clearly of national concern, and in com-parison wi and future needs the achievements of the pastfive year e largely in the nature of experimental: bginnings.' Onlya bare bgi ig h been made in the States in providing adequatevocation insrution for the boys and girls of our farming popu-lation toit them t take up the important work of producing theNation's raw maeiarls for food and clothing. In the fields of manu-factures aid commefct&Ol~ a beginIng hasnbeen made in providingpublic-school instruction that will develop vocational efficiency andskill. In the broad field of home making the unsolved problems con-fronting the public school are out of all proportion greater thanthose which have been solved-if, in fact, any of those problems maybe said to be solved. In each of these fields social and economicconditions are changing rapidly, and the solution of to-day beComesa problem for new adjustment to-xkorrow. In each of these fieldsalso the extension of the public-school functions to embrace thevocational interests of the adult population opens up wide ranges ofneeds which have no yet been provided 'for.Some account in detil of plans for the future and of the needs in

the different fields brought within the administrative interest oftheiFederal board will be found in the statements covering the work ofthe several services of the board. In general it is true of theseservices that programs fok the future, in so far as these have beenwritten into State plans, involve in each case continuous expansionof State facilities for vocationaldteacher training and for, vocationalinstruction in all-day, part-time, and evening schools.

SHOOL MORTALITY AND PART-TIM$ DUOATION FOR EMPL)TED BOYS AND'aiRLS.,

Under the provision of the act Which reserves one-third of theallotment for trade, industrial, and home economics education forreimibursemeients on accou nt of laries of part-time schoolteachers,speial provision is made in the'vocational education act for thepromotion of part-time education for employed boys and girls.

21

DLAI.&x I-B ois and girls in school and not in school: 1920.[Number attending school and population data supplied by Bureau of Census.]

NUMBIR IN SCHOOL NUMBER NOT IN SCHOOLAGE

-2AMW 1UNWA 1__WAS SO*_ UmS I, 1.SU$ 2.6<O00

I

7Tss*ts..8 TM

11 Y:

1t; Yr.

..

17 TV.

19Ir

2- T0 TM

21~--TM&:gm

ii

I

--,

I

S5,0 Sto

C1

M7S

S1*Mmm tv

1,271, °

15S73,254

0FX1,W,1 Z

d.,n1731

MIAPX

2AW

W7W

%W.L601jMM,"'401

-- ---= zlwz..

NESa-mgm

toM

7

I

I

.W

l1

wnV----

Diagram IX.--Boys and girls in school and not in school: 1920.

czarT FEBDBRL BoAnW FOR VOCATIONAL EDUOATIOQ. 2

States may spend more for part-time work, but at least one-third ofthis allotment, if expended at all, must be expended-for part-timeschool reimbursements. Details of expenditures under this provi-sion are shown in the tabulations of this report. The pfovisionlitself is evidence that Congress as earlyas 1917 appreciated the needfor making more adequate provision in our public-school systems forboys and girls who drop out of school prematurely to enter into wage-earning employment.In the accompanying diagram the not-in-school population is

shown for the school ages 5 to 20 years, in comparison with the num-ber in school at each age as returned at the Federal decennial censusof 1920.In 1920, as returned by the census, the population of school age

numbered 3302,876. Of these, 21,373,975 were returned as attend-ing school and 11,876,894 as being out of school. For the ages 14and 16t combined the out-of-school boys and girls numbered, accord-ing to the census returns, 783,681. Of 16-year-old boys and girls,971,257-were out of school. Of those 17 years old, 1,212,831 wereout of school-approximately two being out of-school for one inschool in this age. Of those 18 years old, '1,496,427 were out ofschool and 413,619 in school. For those 19 and 20 years of age, thenumbers out of school Were respectively 1,578,564 and 1,632,750.The large facts developed out of our national statistics of school

attendance are that as a constantly obtaining social condition wehave nearly 12,000,000 in 'the' 'ages 5 to 20 Years who are not inschool, of whom approximately 8,000,000 are in the ages 14, 15, 16,and 17 years and nearly 5,000,000 in the ages 18, 19, and 20.This out of-school population is recruited year after year by those

who graduate from and drop out of school at different stages intheir progress through the grades. Approximately it is true thatof 1,000 pupils entering grade 1 only 680 survive in school to grade8 and only 140 to the fourth year of the high school. On the basisof such official data as are available it may be' estimated that everyyear some 600,000 boys and girls drop out of school on completionof the eighth grade. To these figures must be: added the number ofthose who drop out of lower grades-approximately 140,000 fromthe seventh, 350,000 from the sixth, 350,000 from the fifth, and300,000 from the fourth. These estimated eliminations annuallyfrom Grades IV to VIII total over 1,700,000. In addition, it wouldappear that nearly 500,000 drop out of high school each year beforecompleting the four-year course; giving an estimated total of schooleliminations each year for those grades probably well in excess of2,000,000. Making any reasonable allowance for error in these esti-mates based upon such official figures as are- available, the numberof school eliminations each year is sufficiently large to constitute a

23

Di.caR&m X.-From school to work.-I - -.f

I- ! '0 %

4 I I

a a a~f-7

to

b

V

8

0'

4

t4

e

t0:pp-

O

itiDoe

Ztv

M9 P44ma

IIf8

iII

i 4I &a a

2

AGES

Diagram X.--From school to work.

REPORT FEDBEAL BOARD FOR VOCATIONAL EDUCATION.

problem of large dimensions in the field of part-time education. Onthe accompanying chart, based upon the 1920 Federal cenus data,the ages of maximum school mortality are apparent in the.width ofthe columns representing the flow of the school- population fromschool to work.

These 2,000,000 boys and girls who annually drop out of schoolhave, of course, the same legal right as has every other boy or girl inthe community to remain in school on full-time instruction at publicexpense to the completion of the high-school course. If they shoulddetermine to exercise this right every community would find it neces-sary greatly to increase its school facilities. While no accurate esti-mate can be made of the cost of providing education full time orpart time for these out-of-school boys and girls, if they came back toschool, some approximation can be made to the probable cost figuredon the cost per pupil in school as shown for all-day schools in officialstatistics, and as estimated for part-time school pupils from surveyreports. So figured, it may be roughly estimated that, if the 279,000boys and girls aged 14 not in school were to reenter school for a yeartheir education full time for one year would cost $20,000,000; if the500,000 115-year-old boys and girls out of school should come backinto school they would necessitate additional expenditures of over$4,000,000 a year; the 971,000 not in school in the age of 16 yearswould add $80,000,000, and) the 1,212,000 in the age of 17 years$100,000,000 to the public-school budget of expenditures each year.Approximately to provide full-time schooling for the boys and girlsaged 14, 15, 16, and 17 years who are not now attending school wouldcost the community $240,000,000 a year. No one questions the legalright of these groups to require additional expenditures in theseamounts if they choose to come back to school.No State program contemplates gathering in this out-of-school

population in the ages 14 to 17 years for full-time instruction, norhas any near approach been made in these programs to a conditionwhere part-time instruction for a few hours a week would be pro-vided generally in these ages. Enrollments of all ages in federallyaided part-time schools as reported to the Federal board for the year1921--22 totaled 228,655, or less than one-tenth of the boys and girls14 to 17 reported by the, census in 1920 as not attending school ofany kind. Of the vast majority of our boys and girls who drop outof the grades and the high schools it is true that they are left to driftinto employment and to make their adjustments to a wage-earningstatus unaided by the public school.

25

REPORT FEDERAL BOARD FOR VOCATIONAL EDUOATION.

At a conservative estimate, the earnings of 14 to 17 ;year oldiboysandl girls not in school exceed total expenditures in the country forall types of education, public awd priv&te-from kindergarten to. university. These boys and girls are contributing in this vast avqountto the economic well-being of society, instead of requiring of so-ciety an expenditure running into hundreds of millions which theymight require for full-time schooling. Total expenditures of Federalmiioney in 1922 for part-time school reimbursements anointed inround numbers to '$564,000, or approximately 19 cents for each boyor girl in the ages 14 to 17 not in school. The most liberal Xatch-D[AGRAM XI,-Nlumber not in Rchool I{n the ages A 1 16, an4 17 years and

number of al ages ea&roUed in federaUy aided part-time schools.

Boys and girls 14,16 )£(l 17 years old not in.2,967,661 4school-1920.

Enrollment in Federall2aided oart-tivas chools, al.....l. 228,655Fge921-22.ing and overmatching of the Federal grant in the States certainlywill not overfinance our part-time program. Although finder thestimulus of the Federal act and iin direct response to an obvious socialneed, the States have made rapid progress during the past five yearsin developingg part-time vocational education under State legisla-tion, it is recognized generally that work in this fielId is still in theinitial experimental stages, and that the educational needs of theout-of-sohwoo boy and girl far exceed the provisions which have asyet been made for those needs.

RECOMMZNDATIONS TO CONGRESS.

It is very generally felt in the States that our public schools shouldprovide more liberally for the vocational needs of home makers.In numbers employed the vocation of home making equals or ex-(eeds all other vocations combined, and as the avocation directlyconcerned with home conditions, the care of children in the home,and in general with the daily conduct of the household as the centerof family life, this vocation perhaps more nearly than any otherinvolves social welfare and deserves public support. The FederalIx)ard feels impelled to direct attention to the growing demand fortn(ore adequate provision than is made in the vocational educationoevt of 1917 for promoting home-making education in the publicscholms.

Provision is made in the vocational education act for makingstudies, investigations, and reports relating to vocational educationfor commercial pursuits, but this act did not provide for reimburse-inents on account of the salaries of teachers of commercial subjects

26

Diagram XI.--Number not in school in the ages 14, 15, 16, and 17 years and number of all ages enrolled in federally aided part-time schools.

REPORT FEDERAL BOARD FOR VOOATIONAL EDUCATION. 2

as in the case of teachers of agricultural and of trade, home eco-nomicsla'nd industrial swbjeets. In the section of this report dealingwith dieelopments in the field of vocational education for commer-cial employment an account is given of conditions which explainthis omicrion of appropriations from the act of 1917. It is felt thatvocational education in this broad field should be placed more nearlyon an equality with other types of vocational education, an(l that inthis field particularly under present conditions the stimulus of anational grant in aid would be of great value in developing practicalcourses of instruction, and in widening the scope of such instruc-tion to embrace something more than the traditional bookkeeping,stenography, and typewriting. A larger and truer conception ofcommercial education would seem to justify the demand for Federalgrants to cover reimbursements in this field.In the field of vocational rehabilitation of persons disabled in

industry or otherwise, although Ithe act providing for participationof the Federal Government in this work contemplated a permanentprogram, it provided funds for four years only. The board hasnow entered upon the third year under this program, and it will benecessary far Congress in the near future to take under considera.-tion provision for continuing the funds beyond the initial period.Any uncertainty as to continuance or amount of the Federal grantin aid to the States will embarrass the administration during theyear 1923-24. Already in certain States where appropriations tomatch Federal money are made biennially, legislation providing forthe fiscal year 1924-25 is under consideration, and State plans gener-aly contemplate expenditures and administrative arrangements atleast one or two years in advance.This rounding out of our national program of education and

rehabilitation in every line of vocational endeavor, having regardsingly to the public interests in providing for the edlucationlal needsof every class of our citizenship of both sexes and of all ages in thehome, on the farm, and in the shop, factory, or office, is in line withour traditional policy of extending freely to all equal oplportunitie.sso that each may benefit according to his or her capacities. In thiseffort to keep public-school education in line with the requirementsof our democracy the Nation as a whole has a vital interest whichcan not be (livide(l into 48 separate interests andldevolve(l upon theStates. In the several States education is partly an affair of the localcommunity and partly an affair of the State, and in the Nation as awhole it is partly an affair of the Federal Government, which withinits prescribed limits must participate and cooperate with the States.Ample evidence is presented in this report that the States themselvesare in full accord with the Federal program. Such evidence is foundeach ye",; in the reports of the States covering(lenelopments from

27

8 BERT FEDERAL BOAD FOL VOCATONAL EDUCATION.

year to year under the Federal acts. The following paragraph takenfrom one State report express fairly the principle underlying ournational program as a whole, a principle which is recognized in theStates generally. This State report, having noted the failure of theFederal Government as yet to provide for commercial education,comments as follows on the general program for vocational edu-cation:Under our Constitution it is the evident intent of the people that all Indl-

viduals shall have equal educational privileges and that all shall receive a rea-sonable degree of educational training. The first quarter of the twentieth cen-tury will be noted in the history of education as a period of rapid developmentof vocational education as a part of our public educational system. If we havea constitutional right to appropriate public money for the training of teachers,doctors, lawyers, and engineers, there Is no question about the validity of ourright and power to appropriate public money for the training of farmers,housewives, and mechanics.Our National and State programs of long standing for promoting

education in our colleges and higher technical schools clearly implyan extension of educational facilities freely to meet the needs of thecommoner vocations generally; and in providing for continuanceand expansion of the programs of cooperation with the States set upin the vocational education act of 1917 and the act providing for thevocational rehabilitation of persons disabled in industry or otherwise,Congress will be acting consistently with this fundamental principlein education.

28

SECTION I1.

VOCATIONAL EDUCATION SERVICE.Part 1.Part II.

Part Ill.

Part IV.Part V.Part VI.Part VII.

Agricultural Education.Trade and Industrial Education.Home Economics Education.Commercial Education.Publications in 1922.Summary of Progress by States.Statistical Report.

29

I)LAuxm XIL-t'tate allotment of Pederoi grant# i* aid for 8aWais. of teachers and 8upervieore of vocational agrlmture, by year,

N",wNinpshfrRtode Islend:wyoming

AI lotmentfor 1926

and .nnuetherateDOLLARS183,871.1,181,33.69126,526.79121,524,39121,36a30920,736.14107,318."106,0512.2104,781.77104,064.16100,770.9295~433,3690,489.7989,207.5286,689.2185,307.848"480.7483.27a6481,107.5480976.9377,9440468,303.4967,199.5263913.8763888.3152,004.2139,742.2835.7550635,477.3233,80a7932,602.8231,204.28,385hz27,330.2925,929.622,8".4221,995.2816,257.2617,239AO14,149.9393,645."12,643.2119,795.3910,000.

10400.0010,000.0010,000,00 p

ALLOTMENT FOR YEAR ENDING JUNE30

140,000

TOTAL FEDERAL GRANTFOR VOCATIONAL AGRICULTURE

199191991920192119221923192419251926*

$547,027.79782,575.76

1,022,637.751,266,875.309,510,993.691,759,219.512,036.SO2.122,526,826.863,021,987.39

*And nnuIlyttherflw

1"81-n. (Fe" P6 $1.) -

Diagram XII.--State allotments of Federal grants in aid for salaries of teachers and supervisors of vocational agriculture, by years.

PAT I.

AGRICULTURAL EDUCATION.

GEERAL stTRVEY OF PROGRSS: 1917 TO 1922.

In education as in other such enterprises it is felt worth whileoccasionally to take account of the general trend or direction ofdevelopments and of the mass achievement in any given line todate.The question is asked now: " Has the promotion of vocational

education in agriculture during the past five years under the Federalvocational education act been so considerable as to be susceptible ofaccurate measurement; and if so, what specific achievements can bewritten down to the credit of the national policy defined in that actin this brief initial period of organization, preparation, planning.and legislation in the 48 States "

Briefly stated, the conclusion of the whole matter is that vocationaleducation in agriculture in the United States has been, as a directconsequence of the policy defined in the Federal act of 1917, gener-ally introduced as a branch of the regular high-school curriculum;has been made to function on the farm; and the character of theteaching force has been markedly improved by the development ofsound teacher-training programs.

Two features of the program of vocational education in agricul-ture are of inestimable importance and are being carried out by Stateboards for vocational education to an extent and with a thorough-ness which must win universal commendation. In the first place,teachers of vocational education in agriculture are effectively pro-

1)IAORAM XIII.-Agrlouttral schools federally aided, b Vearl: 1918 to 1922.

eMrn tlNumber of SchoolsJune30 500 1000 1500 2000 2500___________ I . w ~

1918 609

1919 863

1920 1,375

1921 1,722 -

1922 2,175

El-Il-I-~~~~~~~

31

Diagram XIII.--Agricultural schools federally aided, by years: 1918 to 1922.

32 REPORT FEDERAL BOARD FOR VOCATIONAL EDUCATION.

moting the diffusion of scientific methods of agriculture, which is theindispensable basis of better farming. This they have been able toaccomplish through their affiliation with trained State supervisorsof agriculture, itinerant instructors, arid State agricultural collegesand experiment stations. Secondly, teachers are rightly insistingthat agricultural cooperative enterprises are the key to financial suc-cess in the business of farming. The vocational program in agricul-ture, then, is laying the foundation among American farmers: (1)For better farming and (2) for better business; and these two, com-bined with the social and educational forces, are making toward thegoal toward which our efforts are ultimately directed, namely, betterliving on the farm.

GROWTH IN ENROLLMENT IN FEDERALLY AIDED SCHOOLS AND CLASSES.

Agriculture was being taught for one semester or for a year inmany States before the passage of the Federal act of 1917, but inonly a few States-Indiana, Pennsylvania, New York, Massachusetts,Minnesota, Wisconsin, Michigan, and California-was agriculturegiven for one-fourth to one-half day for four years. SeveralStates-including Massachusetts, Mississippi, and Wisconsin-hadestablished special vocational agricultural schools with their countysystems; New York with its State agricultural schools; New Jerseywith its scheme of county vocational schools; Georgia and Alabamawith their congressional agricultural schools; Arkansas with its fourindependent agricultural schools; Michigan with its two countyschools; and Minnesota with its three schools of agriculture. It isimportant to note here that the organization of such vocationalschools has not grown with the establishment of a national systemof vocational education in agriculture of less than college grade.Under the direction of the Federal Board for Vocational Educa-

tion, in cooperation with-State boards for vocational education, voca-tionlal agriculture has found a place in the public schools of eachState, and the present scheme of school instruction with directedor supervise(l practice in agriculture on the home farm is indeed abig, advance over the one-semester idea of a few years ago.Before the passage of the Federal vocational education act there

was a tendency to judge the progress in agriqultural education bythe number of institutions offering courses -and the nuimber of stil-dents taking the work. While much ofthe6pericia.l teaching whichwent under the name of agricultural instruction has been eliminatedand real progress made in the haratter of-the-work given, theapparent decline in .interot shown in-th followi statistics is duelargely tolarmore careful-inquiry into work rej"rttd as agriculture.In the spring 1of9o16th lli'eau of- dulct, tmertmnt of theInterior, attempted to gather complete and definite information con-

REPORT FEDERL BOAMD. FOR VOCATIONAL EDUCATION. 38

corning the teaching of agriculture in the high schools, and especiallyagricultural schools of secondary grade. The following is a briefsummary of the schools reported:

Agriculture in secondary schools, 1915-16.Number of public high schools reporting teaching agriculture-_-___-_2,175Reporting teaching agriculture primarily:

As informational subject--__ 1,521As vocationalsubject-5--- -- --- -- - - --- -- -- 66

Number of students of secondary grade studying agriculture:Boys--------- ------- 24, 743Girls_----------------------------------------------------------- 16,812

At the close of the first year's work under the Federal vocationalact the 48 States reported 609 schools which had received Federal aidfor salaries of teachers of agriculture, while in the year 1921-22the 48 States reported 1,937 all-day schools which had received aidDIAGRAM XIV.-Vocatlonal pupi18 in agricultural schools federally aided, by

years: 1918 to 1.922.Yeor Ended Numbe ofJun.30 PuPlS LOO 10.000 1L000 20.000 28.000 30000 3000&oodoo 4b.000 50,000 S5koo OMoo

19 18 15.543 - ~ fgreeedxIncrm .nePrecednin yoer

IS919 19.933_

1920 31.301

1921 43.352 1 9HN

1922 60,236 ---and in addition 238 evening and part-time schools, giving a total of2,175 agricultural schools of all types. Reports of agents of thisboard show that the figure 609 includes practically only all-dayschools. In fact, little had been done in any of the 48 States in thepromotion of part-time and evening classes before the year 1921.There was, therefore, an increase in the number of schools receivingaid, including all-day, part-time, and evening, during the first five-year period of the administration of the Federal vocational educa-tional act of 257 per cent, the number of schools in 1922 being morethan three and a half times the number in 1918.DIAGRAM XV.-Vocational teachers in agricultural schools federally aided, by.k

- vears: 1918 to 1922.

YearEnded NumberofJun.30 Teachers 250 So 750 1,000 1250 1,500 1,750 2.000 2.250

1918 895 _PreceriOyear

1919 1.201

9219 2071* £-_ nrE

1922 2.290 J H

9.869604064

Table: Agriculture in secondary schools, 1915-16.

460406968.9

Diagram XIV.--Vocational pupils in agricultural schools federally aided, by years: 1918 to 1922.

Diagram XV.--Vocational teachers in agricultural schools federally aided, by years: 1918 to 1922.

84 WWOX FEDERAL BOAW FOR VOCATNAL EDUCATION.

The State reports for the year ending 1918 show only 15,463 pupilsenrolled in vocational classes in agriculture, while at the close of theyear 1922, the end of the first five-year period, the States report atotal enrollment of 59,276, which is an increase during the past fiveyears of 284 per cent, the number of pupils in 1922 being nearly fourtimes the number in 1918,At the outset each State designated the land-grant college as the

institution to train agricultural teachers. This continued throughthe five-year period with rather phenomenal developments in teacher-training programs.

CHARAUER OF COURSES AIDD.

In the study made by the Bureau of Education, Department ofthe Interior, as to the nature of the agricultural instruction in thehigh schools in the country in 1916 the schools were asked to indi-cate whether they were teaching agriculture as definite preparationwvith a vocational aim for farming, as information about agriculture,or for general cultural purposes. As many of the schools reportedthat they were teaching agriculture for two or all three reasons, it isevi(ldnt that they did not have a distinct purpose in their instruction.Although 25 lpcr cent of the schools reported the chief aim as beingvocational, the character of the work indicates that Many of theteachers had little conception of the meaning of vocational educationin agriculture. The instruction in many cases was confined to class-room only or supplemented with some laboratory work. Some teach-ers thought their textbook instruction was vocational, as their stu-dents lined on farms. The summary of replies shows that 20 percent of the schools confined their instruction to classroom work, 50per cent supplemented the classroom instruction with laboratoryexercises and trips to farms, and only 30 per cent combined class-room instruction and laboratory work with practical farm work.Three hundred and thirty-seven were using the home-project plan,although in only 261 schools wSs the home work given supervision1)y the instructor in agriculture. The schools reported, however, didnot include many of the State-aided schools which were using thisplan. Eighteen per cent of the schools reported school land for agri-cultural purposes. Of these schools 134, or about one-third of thenumber, had less than 2 acres.In contrast to the situation found to obtain throughout the country

in 1916, it is to be said that the program of vocational education inagriculture under the Federal act provides that all pupils enrolledin vocational classes shall do at least six months' directed or super-vised practical work in agriculture; that it is just as much the dutyof the agricultural teacher to supervise the- home practical work ofpupils as it is to give classroom instruction and laboratory work.

RUPO!? AEdAL BOAItD 'FOI VOOATIOIAL EDUCATION.

The two are inseparable in the vocational program. It is to be notedfurther that, with the coming of the vocational program in thehigh schools of the country, agritulture as an informational subjector as "a subject for general cultural purposes only has ,almost en-tirely disappeared from the curriculum of the rural high schools.There are a comparatively few of the vocational teachers of agri-

culture? engaged in the attempt to teach agriculture on a; vocationalbasis who do not look more largely to the communities in which theyare teaching for a determination of the content of courses they areoffering than to some cut-and-dried outline prepared by some, Stateofficial or to outlines such as may be found in textbooks. At present,textbooks, bulletins, general outlines, and college courses play a smallpart in determining what is taught. The teacher who is desirous ofattaining a considerable measUre of success in vocational agricultureis learning fast to look to the farms and the needs of the farm boysin the vicinity of his school when he is giving consideration to adetermination of what should be taught. It is to be understood,however, that textbooks, bulletins, and college lectures have not beendiscarded, but instead of being the determining factors in the selec-tion and orgahikation of subject matter they are becoming aids tothe solution of the problems the teacher has found as a result of astudy of the fearing of his' community. In other words, progress inconnection with the use' of coiiues of study during the five-yearperiod just passed is marked by the fact that a majority of Statesare+ now adapting courses to local conditions instead of requiringrather formal and basically uniform courses for a whole State, aswas the ease in many instances formerly.This adaptation indicates a shift from aI subject matter vihw-

point to a. vocational viewpoint in the selection and organization ofcontent of iin.struction. The futility of trying to "cover " the wholefield of agricultural subject matter in a topical Way with a view togiving the pupil a broad general knowledge which will function infearing has become apparent. Instead, attention has been directedtoward tho§ farming enterprises which are important in the respec-tive local communities and, on the basis of these concrete studies andexperiences, to the building of those broader generalizations and tothe tracing of those essential relationships which will bring the spe-cific instruction to' a larger fruition. Furthermore, from a practicalviewpoint such enterprises not only furnish the necessary objectiveteaching material but also the facilities for the most desirable typeof Ispervised; practice.The methods of adaptation commonly used are: The survey of

farm enterprises of the community, the organization of courses onthe basis of farm enterprise, the formulation of courses of study by

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